12.1 A number of actual or potential alternatives for the control of OJD have been presented to the Committee through the inquiry process. Various issues that need to be taken into account when assessing these alternatives have been identified. These include the feasibility of the approach (determined by the biology of the disease and technical developments) and economic and social considerations.
12.2 The Committee recognises that there is a time dimension to some of these technical approaches. Some can be seen as most appropriate to the short term - for example containment through quarantine; others are more appropriate to the longer term or could change in light of changing circumstances, particularly the outcomes of research and surveillance being undertaken under the National OJD Program - for example, eventual eradication of OJD.
12.3 The Committee also recognises that the mode of delivery will have a considerable affect on the success of approaches chosen to meet particular objectives. Both the mode and costs of delivery are important aspects of any OJD control strategies, and will need to be considered in the planning of future programs. A control strategy is formed by a combination of a technical approach with a mode of delivery.
12.4 An orderly process to assess different control strategies in terms of the desired aim of OJD management is desirable.
12.5 The process adopted by the Committee involves :
a) developing a set of specific objectives to meet the aim of OJD management;
b) marrying a set of technical approaches (from Chapter 9) and modes of delivery to control of OJD (from Chapter 6) to form a set of `stand-alone' control strategies;
c) assessing the control strategies in terms of the set of objectives; and
d) adopting one or more individual or combinations of control strategies that meet the Committee's defined aim and objectives of OJD management.
12.6 The Committee determined that an appropriate broad aim for the management of OJD in Victoria is:
To minimise the adverse impacts of OJD on the wellbeing of the Victorian sheep industries, rural communities and individuals.
12.7 Specific management objectives that the Committee considers would contribute to achieving the broad aim of OJD management in Victoria are:
In the short term (next three years):
a) to prevent the further spread of OJD in Victoria;
b) to ensure control programs are based on `good science' (i.e. are technically feasible);
c) to support farmers with or suspected of having OJD-infected flocks to return to normal trading or change to a different enterprise;
d) for those with diseased flocks, to reduce symptoms in sheep;
e) to prevent the reinfection of destocked properties;
f) to ensure that control programs are cost effective (ideally for the individual farm as well as for the industry);
g) to ensure that the beneficiaries of control actions contribute to the cost of those actions;
h) to minimise adverse social impacts of OJD and OJD control programs.
In the long term (three years plus), as above, plus:
i) eradicate OJD from the Victorian flock - if feasible;
j) prevent reinfection of the Victorian flock from OJD.
12.8 As Victoria is part of the National OJD Program, the Committee does not wish to impose any adverse trading impact on Victorian producers relative to other producers of similar OJD status elsewhere in Australia. That is, in the short term, Victoria should not adopt a control strategy that would threaten the State's `control zone' status - and ideally position us for all or part of the State to have `protected zone' status.
12.9 The Committee has considered various aspects of program delivery in relation to the technical approaches identified in Chapter 9. For each technical approach the Committee has identified the mode of delivery that would be required for successful implementation. The results of the Committee's assessment are summarised in Table 12.1. In this table each technical approach is assessed as if it were the only approach used.
Table 12.1 indicates that attention to program delivery is critical to the success of all technical approaches. Not all aspects of program delivery are relevant or essential to every approach. However, in many cases most aspects are important and few can be neglected.
12.10 In Chapters 6 and 9 the Committee discussed technical aspects of a range of approaches and modes of delivery relevant to them. The Committee has formulated a range of potential control strategies by combining various technical approaches with relevant modes of delivery. Each separate strategy is discussed below.
12.11 Techniques or actions relevant to this approach are - various testing techniques, individual animal identification and identification of uninfected animals. Modes of delivery that are critical are the provision of information and education and assistance with obtaining `clean' sheep. Assistance with financial planning to manage OJD would also be helpful.
12.12 Inadequacies of available tests present the greatest technical barrier to this approach, while education and providing information tend to be slow and imperfect processes that will not achieve results overnight.
12.13 Relevant technical issues are - various testing techniques, methods to contain the infection within the property and/or district, methods to ensure the disease is not spread during transport or sale, the possible role of feral animals in transmitting infection and the use of artificial breeding as a way to make use of the genetic resource confined to the property or district.
12.14 All modes of delivery have the potential to be relevant to this strategy, although producers who run a closed flock will not need assistance to obtain `clean' stock. Modes of delivery that are critical to the success of this strategy are consultation with the stakeholders, provision of information and education, financial support for those excessively affected by restrictions on trading (particularly studs and store-stock breeders) and social support.
12.15 The technical feasibility of confining infection to a property may be questionable in many situations. Providing effective support for stud producers will be a significant challenge.
|
Technical Approach (see Chapter 9) |
Required Method of Delivery |
||||||||||
Consult with affected people |
Information and education and technical support |
Financial issues |
Social issues |
Accountability |
Adequacy of resources |
||||||
|
Inform'n and education |
Assist-ance with obtaining `clean stock' |
Compensation/ financial incentive |
Financial planning support |
Social support services |
Group develop't and action |
Appeals mech'm* |
Consist'y with flexibility |
Verifica-tion mech'm - for diagnosis |
|||
|
Market forces with vendor declaration |
N/a |
_ _ |
_ _ |
n/a |
_ |
n/a |
n/a |
n/a |
n/a |
+/- |
_ _ |
|
Containment - quarantine, etc. |
_ _ |
_ _ |
+/- |
_ |
_ _ |
_ _ |
_ |
_ |
_ |
_ |
_ _ |
|
Minimisation - farm management |
_ |
_ _ |
+/- |
_ _ |
_ _ |
_ |
_ |
n/a |
_ _ |
n/a |
_ _ |
|
Quality control + market assurance |
_ _ |
_ _ |
_ _ |
_ |
+/- |
n/a |
+/- |
_ |
_ _ |
_ _ |
_ _ |
|
Eradication - property destocking |
_ _ |
_ _ |
_ _ |
_ _ |
_ _ |
_ _ |
+/- |
_ _ |
_ _ |
_ _ |
_ _ |
|
Eradication - contamination reduction |
_ |
_ _ |
_ |
_ |
_ _ |
_ _ |
_ |
_ |
_ |
_ |
_ _ |
|
District-based flexible property management |
_ _ |
_ _ |
_ _ |
_ |
_ _ |
+/- |
_ _ |
_ |
_ _ |
_ |
_ _ |
|
Exclusion from Victoria |
_ _ |
_ _ |
+/- |
_ |
n/a |
_ |
n/a |
+/- |
_ _ |
n/a |
_ _ |
_= critical; _ = would assist; +/- = may assist; n/a = not relevant; * = for compensation and application of regulations.
12.16 Relevant techniques are - methods to reduce pasture contamination (spelling pasture, removal of diseased animals and protecting most-susceptible animals from infection), test-and-cull (requiring testing techniques), vaccination, good husbandry to avoid stress, treatment and selection for resistance. Use of techniques to contain infection, as described in the preceding section, are also required for this strategy.
12.17 This option places the main emphasis on the individual producer and their management of the property. Consequently, the critical modes of delivery are the provision of information and education, financial management advice and the opportunity for flexible management within a consistent regulatory environment. Financial assistance to initiate changes to management, social support and group action are also likely to be helpful. If farmers are to support this strategy they will need to be consulted as to whether this option is the one they want - it may not be attractive to all farmers.
12.18 The main risks to the success of this strategy are the long-term feasibility of minimising OJD by known management techniques and the costs of the management changes required.
12.19 Relevant techniques to this strategy are - various testing techniques, flock or individual animal identification, methods to exclude any source of infection (for example, new stock, stray sheep, feral animals and washed faeces) and artificial breeding to introduce new genetic material.
12.20 Consultation concerning the ways to develop and use market assurance is essential if it is to be supported. The option also requires good information and education and a satisfactory method to verify test results. If the genetic quality of the tested flocks is to be improved, there must be a way to obtain `clean' stock or new genetic material without compromising the status of the flock. For those in a market assurance program and their customers to have confidence in the program there must be consistency in the way it is regulated and administered. Financial assistance with the costs of testing and a system that minimises the financial risks associated with testing are most desirable.
12.21 Technical limitations of current tests and the need to exclude all sources of infection present difficulties for market assurance. Ensuring confidence in a program is a challenge for education.
12.22 Relevant techniques are - various testing techniques, flock or individual animal identification, rapid methods to decontaminate pastures and exclude any source of reinfection (for example, by new stock, stray sheep, feral animals or washed faeces) and artificial breeding to introduce new genetic material.
12.23 The only mode of delivery that is not critical to the success of this strategy is the development of a group approach. Eradication by destocking has been found to work in the absence of this mode of delivery. It would, none the less, be desirable in many situations.
12.24 Prevention of reinfection is the main technical concern with this option. Tests that cannot detect early infection could compromise eradication at the State level. Providing adequate financial support, consistency with flexibility and ensuring that `clean' stock can be found, all present challenges to this approach, particularly at the State or regional level.
12.25 Relevant techniques are - various testing techniques, flock or individual animal identification, gradual methods to decontaminate pastures, including vaccination, methods to reduce incidence of OJD in the flock (rotations, culling diseased animals, reducing age structure, etc.) and exclude any source of reinfection (such as by new stock, stray sheep, feral animals and washed faeces) and artificial breeding to introduce new genetic material. Techniques to contain infection will be required until eradication is achieved.
12.26 Modes of delivery that are critical are information and education, financial planning support and social support. One of the objects of the strategy is genetic maintenance. Consequently, if the strategy is successful, further assistance with this will not be needed. Group development could be useful to provide ideas and encouragement, but the strategy could be applied on a single property. Other modes of delivery would be helpful.
12.27 Whether eradication is technically possible by this strategy has yet to be established. Deficiencies in testing to establish freedom from infection are a challenge. The present indications are positive. Financial assistance might be critical for some producers, particularly studs, to weather the long period of reduced prices for stock. For other types of enterprises this would be less of a problem.
12.28 This approach would be aimed at long-term eradication from some districts and containment with minimisation in other districts. The approach would require identification of the prevalence of OJD-infected flocks in various localities and then the application of containment, minimisation or eradication techniques as appropriate. In other words, because a range of approaches is used, all techniques will be relevant to some producers.
12.29 Similarly, almost all modes of delivery are relevant. The need for social support may be diminished because farmers will have more choice and a sense of control over their properties. Consultation to determine which approach will be implemented in specific areas will be essential. Information and education, assistance with obtaining `clean stock', group development and action and financial planning support will also be critical.
12.30 Particular technical challenges for this strategy will be the difficulties of establishing freedom from infection in a flock or district and those associated with preventing reinfection. Achieving an adequate level of group co-operation and balance between consistency and flexibility will be the most difficult aspects of delivery of the strategy. Consultation will play a pivotal role in achieving this.
12.31 Should Victoria succeed in eradicating OJD from all or some regions of the State, techniques to prevent reinfection will be required. If any sheep are to be brought into the region or State, adequate testing will be required to ensure that these sheep are free of OJD. Effective surveillance and monitoring will be needed to ensure that OJD does not reappear, and to deal rapidly with any outbreaks that do occur. Otherwise, artificial breeding will be the only method that can be used to introduce new genetic material. Any potential reinfection from feral animals will have to be eliminated.
12.32 Consultation between State authorities will be essential, as will consultation with producers, who will be most affected by the required restrictions on trading. Information and education will also be critical. Achieving the required balance between flexibility and consistency will be required to allow trading between localities that have been shown to be free of OJD, without putting the objective of excluding OJD at risk. Such trade would require a mechanism to identify the status and origin of sheep being transported.
12.33 The greatest technical threats to exclusion will come from inadequacies of current testing and surveillance procedures. Reinfection could be present in the State for one to two years before it would be detected. The other technical threat comes from the potential of feral animals, particularly goats, to carry OJD. The other main threat to an exclusion strategy would come from people who break any OJD trading embargo. This might be done in ignorance or wilfully. Consultation, information and education would be required to reduce this threat.
12.34 It can be seen from Table 12.2 that none of the potential control strategies on their own meet all of the Committee's recommended OJD management objectives.
|
Possible control strategies (technical approach allied to required mode of delivery) |
Management objective |
|||||||||
|
Short- and long-term objectives |
Long-term objectives |
|||||||||
|
Prevent spread |
Techn-ically feasible |
Return to normal trade or new enterprise |
Reduce symptoms |
Prevent property re-infection |
Cost-effective control |
Benefic-iaries contribute |
Minimise social harm |
Eradicate OJD from Victoria |
Prevent State reinfection |
|
|
Market forces + vendor declaration |
_ |
+/- |
__F |
X |
_ |
X |
__F |
__ |
X |
X |
|
Containment - quarantine, etc. |
__V |
_ |
X |
X |
n/a |
_ |
__ |
_ |
X |
n/a |
|
Minimisation - farm management |
X |
__ F |
_F |
__ |
_ |
+/- |
__ F |
__ V _ F |
X |
X |
|
Quality control + market assurance |
_ |
_ |
__F |
X |
__ |
_ |
+/- |
_ |
_ |
_ |
|
Eradication - property destocking |
__ |
__ F +/- V |
__ |
n/a |
+/- |
__ F __ V |
__ |
_ |
__ |
n/a |
|
Eradication - contamination reduction |
X |
_ |
__ |
__ |
+/- |
+/-F +/-V |
__ |
__ |
+/- |
n/a |
|
District--based flexible property management |
_ |
__ |
__ |
_ |
__ |
__ |
__ |
__ |
_ |
n/a |
|
Exclusion from Victoria |
__ |
__ |
n/a |
n/a |
__ |
__ |
__ |
__ |
__ |
__ |
_ = meets objective well; _ = contributes to objective; +/-= need more information, may work in future; V = for Victoria; F = for individual farm; X = does not contribute to objective; n/a = not applicable.
12.35 Moreover, the Committee notes that a number of these control strategies would not be consistent with the maintenance of Victoria's `control zone' status on their own. Only the following control strategies will meet this requirement:
12.36 Each of these is, fortuitously, also technically feasible with existing knowledge under most conditions.
12.37 It has become evident to the Committee that, though the initial Victorian OJD Program was well intentioned, it was based on insufficient knowledge. It was planned and implemented in haste. It was pursued beyond a time when new information would have indicated that review of the Program was needed. It was delivered, particularly early in the Program, in an inflexible manner that at times showed a ruthless disregard for those affected.
12.38 It is also clear to the Committee that, though consultations were held with a section of those whom the program was intended to serve - the sheep and goat farmers of Victoria - there was inadequate consultation with most of those in the industry. Nor were others who could reasonably be considered to have an interest in the Program consulted or heeded when some attempted to protest about aspects of the Program. These people included private veterinarians, farm business counsellors and rural industry workers.
12.39 The evidence received by the Committee about the Victorian OJD Control Program was distressing. Even where the direct impact on farmers and their families occurred a number of years ago, the anguish caused by the financial and especially the social impacts of the Program is still evident today. While compounded by infected sheep appearing physically healthy, it became very clear to the Committee that this anguish was derived at least as much by the way in which the Program was delivered as by what it set out to do. That the Act under which the Program operated would allow even more draconian action is no excuse for delivering a Program in a manner that causes intense distress to farmers and drives a wedge between farmers and the field staff required to deliver the Program.
12.40 While the Committee notes that experiences of grief are normal responses to the loss of things of great personal value, it considers it important to acknowledge that individuals and communities have suffered significant psychosocial impacts from the OJD program.
12.41 The Committee wishes to stress that it considers that the hardship and distress suffered by those affected by the program of eradication of infected flocks has not been in vain. That these farmers chose or felt compelled to destock their properties has, in the Committee's firm opinion, meant that many other farmers in Victoria have been spared having their flocks infected with this insidious disease. A disease which, the Committee notes, causes an agonising death in severely infected sheep and is incurable.
12.42 The Committee concludes that the control of OJD remains an appropriate management objective, but that there is a need to revise the Victorian OJD Control Program in terms of its strategies, specific actions and the mode of delivery.
12.43 As noted in Chapter 2, the sheep industry is a major part of the Victorian economy and overseas markets for Victorian sheep products are significant and susceptible to real and perceived market assurance issues. While mortality rates from OJD are not generally high in Australian flocks, the mortality rates of infected farms appear to increase over time and can reach significant levels, with consequent financial and social impact.
That the broad aim for the management of OJD in Victoria be to minimise the adverse impacts of OJD on the wellbeing of the Victorian sheep industries, rural communities and individuals.
That specific objectives of revitalised Victorian OJD Control Program be:
In the short term (next three years):
a) to prevent the further spread of OJD in Victoria;
b) to ensure control programs are based on `good science' (i.e. are technically feasible);
c) to support farmers with or suspected of having OJD-infected flocks to return to normal trading or change to a different enterprise;
d) for those with diseased flocks, to reduce symptoms in sheep;
e) to prevent the reinfection of destocked properties;
f) to ensure that control programs are cost effective (ideally for the individual farm as well as for the industry);
g) to ensure that the beneficiaries of control actions contribute to the cost of those actions;
h) to minimise adverse social impacts of OJD and OJD control programs.
In the long term (three years plus), as above plus:
i) to eradicate OJD from the Victorian flock - if feasible;
j) to prevent reinfection of the Victorian flock from OJD.
12.44 Effective two-way communication has been identified by the Committee as essential to the success of any animal disease control program. Failure in this area has been responsible for much of the difficulty and distress associated with the Victorian OJD Program. Communication cannot be seen as an optional extra to be tacked on to a program. It should be an integral part of all stages of the program, adequately resourced and undertaken by appropriately trained personnel. The Committee concludes that mechanisms must be put in place to ensure that there is adequate communication between all parties involved in relation to future OJD control programs. Moreover, without the support and involvement of industry, disease control will not be successful.
That a broad-based Committee, to be called the Victorian OJD Advisory Committee, be established to give ongoing advice to the Minister on the management of OJD in Victoria. Its duties are to include:
a) provision of advice as to how best to implement the recommendations of this Inquiry;
b) consideration and provision of advice on how best to respond to the findings of research as it comes available;
c) provision of comment on how interstate OJD management is impacting on the Victorian sheep industry;
d) oversight of consultation on proposed changes to the Standard Definitions and Rules and the Manual of Procedures as they may affect the management of OJD in Victoria;
e) acting as an appeals body for disputes about property disease control plans;
f) providing advice on the provision of information on OJD and its management; and
g) any other matters relevant to OJD and the financial and social implications of its control.
That the membership of the recommended Victorian OJD Advisory Committee include:
a) an independent chairman (to be appointed by the Minister);
b) a person representing the broader sheep industry (to be nominated by the Victorian Farmers Federation - Pastoral Group);
c) a person representing merino sheep breeders (to be nominated by the Victorian Sheep Breeders Association;
d) a person representing meat breeds (to be appointed from a panel submitted to the Minister by the major breed associations);
e) a person representing those producers directly affected (to be nominated by the OJD Action Group);
f) a person representing private sheep veterinary surgeons (to be nominated by the Sheep Veterinary Society of Victoria - a special interest group of the Australian Veterinary Association);
g) a person representing stock agents (to be nominated by the Victorian Stock Agents Association);
h) a person representing rural workers (to be nominated by the Australian Workers Union);
i) a research scientist who is not currently employed by the public service with experience in OJD research (to be appointed from a panel of names submitted to the Minister); and
j) a social scientist with experience in rural counselling (to be appointed from a panel of names submitted to the Minister).
Representatives of the Department of Natural Resources and Environment's animal health policy and program delivery sections should assist and support the Advisory Committee but not have voting rights. The Advisory Committee may co-opt additional non-voting members to provide extra areas of expertise as required. A nominee of the National OJD Program be invited to participate as the observer.
That adequate resources be provided to enable the recommended Victorian OJD Advisory Committee to undertake its business and to consult effectively with its constituencies.
That a process and system of ongoing consultation to a cross-section of affected and other interested parties be established to provide input into regular review of the detailed program and its delivery.
Any and all changes to the program and delivery need to be well communicated to all those affected, including those delivering the program. Government officers, private veterinarians, stock agents, saleyard managers, show organisers and shearers and other rural workers must be included in this consultation.
12.45 All evidence presented to the Committee indicates that the prevalence of OJD in Victoria is very low at present. However, if steps are not taken to contain the disease, it will inevitably spread across the State. The costs of OJD to Victoria's sheep and goat industries would then be considerably more than the current cost of eradication. Infectious and contagious diseases can, and have been, eradicated, although often taking many years. Eradication by destocking is also considered to be much less costly than indefinite restrictions on trading aimed at preventing spread of the disease. Consequently, the Committee has concluded that it is in the interest of the whole industry and for Victoria to retain the option of Statewide eradication should research currently under way show that this is technically feasible.1 This requires that prevalence of infection should be at least contained to present levels and, preferably, reduced.
12.46 At the same time, the Committee has established that both eradication and containment usually impose a heavy financial burden on individual farmers that outweighs any benefits of these strategies, particularly where no compensation is paid. In other words, individual farmers are taking the cost when most benefit from their actions is given to others. The Committee concludes that this issue needs to be addressed, especially as the most effective technical approach to eradicating OJD from an individual farm remains destocking allied to spelling paddocks for two summers.
12.47 The Committee is also mindful that current research and surveillance work could increase the tools available for minimising or eradicating OJD. The option of eradication through more flexible approaches than whole-property destocking already appears feasible for some properties.
12.48 A more flexible approach also responds to the fact that Victorian sheep farmers run different breeds, have different production systems and trading patterns - and may have very different financial positions. While the Committee is mindful that not all control approaches will be appropriate in all circumstances, it concludes that a more flexible approach to the control of OJD in Victoria can be taken without compromising future options.
That a formal control program be in place and be designed to ensure that the minimum requirements of the National OJD Program's Standard Definitions and Rules for `control' zone are met and maintained. Flocks and properties known to be infected or that are `suspect' or `under surveillance' will need to be managed in a manner that prevents the spread of OJD.
That the Victorian OJD Control Program provide for increased choice by affected producers and offer a combination of control strategies. Such control strategies shall include containment with individual farm management minimisation; containment with gradual contamination reduction or district-based flexible property management; and voluntary destocking. Containment is to be obtained through a combination of testing, quarantine and hygiene. The specific strategies adopted are to be chosen by the affected producer or group of producers in consultation with government or accredited veterinarians, acknowledging that not all strategies may be practical or feasible in all circumstances.
That an option of farm-based eradication by destocking be retained and encouraged by way of reinstating a compensation scheme.
That any and all such control strategies only be provided in conjunction with a delivery program that has been designed in conjunction with farmers, neighbouring farmers, social scientists, the rural finance industry and communication experts and all those being given the responsibility of delivering the program.
That the time frame for affected producers to decide which option best meets their own circumstances be flexible, with the producer retaining the ability to adopt a destocking option with allied compensation at any time.
That adequate resources in type and quantity be provided from Departmental resources for all aspects of delivery.
12.49 The Committee has identified the need of those affected by OJD for both consistency and flexibility in a program to control OJD. There needs to be sufficient consistency for farmers to undertake the management of their properties in a reasonably predictable environment. At the same time, the characteristics of a particular region and property alter both the risks associated with OJD and practical management options. The Committee considers that there should be flexibility in any control program to take account of these characteristics. It also considers that those who know most about local conditions are the local people. Mechanisms should be in place to ensure that these people are involved in making decisions about OJD control at the local or regional level. The Committee concludes that clear guidelines are needed to provide a consistent framework for detailed decisions concerning management of OJD, but that these guidelines should allow flexibility at regional and local levels.
12.50 In many instances it will be desirable that a regional or district focus should be given to OJD control. Such an approach would be particularly appropriate if and when any new `nodes' of infection are identified. The Committee concludes that regional and local co-operation should be fostered.
12.51 Existing groups such as `Bestwool 2010' and `Landcare' could be used, or new groups focused on sheep disease control created. Groups focusing on sheep disease control could perhaps focus on prevention and control of all sheep disease facing a district, such as footrot as well as OJD. The employment of professional facilitators may assist the establishment of such groups. The Committee considers that existing umbrella organisations, such as the Catchment Management Authorities, are well positioned to foster such groups.
That each Department of Natural Resources and Environment region be provided with resources to support and encourage the formation of catchment-based OJD advisory/support/information groups. Such groups should be charged with the responsibility of developing district and/or regional strategies and approaches. All such strategies would need to be subject to consistent Statewide guidelines, but encourage flexibility at a regional and local level to respond to regional and local circumstances. Such catchment-based groups could also provide guidelines for the preparation of property disease control plans that reflect individual property circumstances in the context of the particular region.
That groups of local farmers, perhaps in conjunction with local Bestwool 2010 groups or other similar groups, be encouraged to work together to take on responsibility for their own disease prevention and control.
12.52 It was evident to the Committee that some farmers had been denied involvement or consideration of their reasonable needs in decisions concerning the control of OJD on their properties. The Committee considers that farmers have a right to negotiation where the management of their properties and their wellbeing is concerned, although this right cannot override their obligations to the welfare of other farmers. The Committee concludes that there should be a process that ensures all affected farmers are given a primary role in planning OJD control on their properties. This process requires that they be given sound advice concerning their options and obligations and, should they be dissatisfied with the process, access to a process of appeal.
12.53 A Property Disease Control Plan may or may not provide for the eradication of OJD from the property - it must, however, ensure that OJD infection is contained to the property.
District veterinary officers or accredited veterinarians should assist producers to prepare property and district disease control plans and be responsible for the approval of Property Disease Control Plans. Approval to be subject to meeting any current Statewide or regional guidelines. Such approved Property Disease Control Plans are to be given a legal basis in statute.
That an independent appeals mechanism for Property Disease Control Plans be provided.
12.54 Adequate, accurate information and effective education have also been identified by the Committee as essential for an effective disease control program. These were not consistently provided as part of the Victorian OJD Program. Like good communication, they require adequately and appropriately trained personnel. They also require ready access to up to date research results.2 Inadequate, outdated or inaccurate information can frustrate a control program, cause distress, prevent farmers from implementing effective controls on their properties and deny affected people services that could be of benefit to them.
12.55 The Committee concludes that there is much to be done to improve the standard of information and education in relation to OJD. This situation needs to be addressed as a matter of urgency.
12.56 The nature of information and the media used to present it need to be tailored to the requirements of individual producers. In addition to use of printed media, the Committee notes that the ABC Rural Radio reports are widely listened to by the farming community and that an increasing number of producers have access to the Internet and the `World Wide Web'. Field days have been successfully used in NSW.
12.57 The Committee also considers that the general dissemination of accurate information can be a powerful tool to counter the stigma that may affect the owners of infected flocks.
That an increase in resources be made available to provide information to assist all sheep and goat producers in the State to obtain a clear understanding of OJD and available management tools to prevent and deal with infection. In particular, new authoritative material is required to assist producers to take advantage of alternative control strategies, such as containment with individual farm management minimisation or containment with gradual contamination reduction or district-based flexible property management as well as voluntary destocking.
That materials providing information on support services be substantially overhauled and upgraded and better tailored to the target user. Communication experts and user groups need to be involved in the preparation of such material. Use of easy-to-read pamphlets and newsletters, provision of regular information to the rural press and radio, creation of Web-page material and the publishing of authoritative technical papers are all required.
12.58 The need for confidence in sources of uninfected sheep was emphasised to the Committee on many occasions. The Committee supports the current national Market Assurance Program but considers that there needs to be greater incentive for producers to enter the Program and expansion of mechanisms to assist farmers to find sources of `clean' stock. While the Committee is aware that current tests do not guarantee OJD-free sheep, the Market Assurance Program significantly reduces a producer's exposure to the risk of infection.
12.59 Mechanisms to provide purchasers of any sheep with meaningful information on the OJD risk associated with the purchase have also been proposed to the Committee. This entails use of a compulsory vendor declaration. Such a declaration is seen as providing the basis for effective use of market forces in containing the disease and encouraging more producers to enter the Market Assurance Program. The Committee considers that this proposal deserves further investigation.
12.60 Systematic flock identification and a rigorous procedure for identifying individual animals from farm to the conclusion of abattoir monitoring has been proposed as a method for expanding the information obtained from abattoir monitoring. The Committee understands that such identification would allow abattoir monitoring to be used to assess the OJD status of all flocks. In addition, flock identification would enable the origin of sheep and infection of OJD or other disease to be determined and thus provide quality assurance for product identification and traceability.
That mechanisms to minimise the exposure to financial risk of stud and/or flock owners who undertake testing for market assurance purposes be explored in collaboration with producers.
That the Department of Natural Resources and Environment seek discussions with industry and producers on the costs and benefits of a compulsory vendor declaration that specifies the OJD status of a flock with respect to known risk factors of infection, including but not restricted to any flock testing.
That as a priority, each sheep in Victoria to have property identification. In addition, that the State of Victoria actively promote the adoption of a national program of property identification and encourage industry and appropriate national organisations to investigate the feasibility of individual identification of sheep.
In the absence of a national program, the Government should unilaterally introduce a requirement that all sheep flocks entering Victoria be subject to certification showing the origin and zone status of the sheep.
12.61 Effective diagnosis of infection is essential to any disease control program. The Committee has come to the conclusion that, if enough animals are sampled, present blood tests are reasonably reliable for the identification of infection flocks when infection is fairly advanced. They are not effective in diagnosing infection that has only recently entered a flock. Blood testing of a large sample from a flock is also expensive. Pooled faecal culture provides a cheaper and more sensitive flock test that can detect infection slightly earlier than blood tests, albeit requiring longer time to get test results.
12.62 Both the existing blood tests and pooled faecal culture testing may be inadequate to prevent the risk of animals at early stages of infection being moved on to other flocks. Research into the gamma interferon test promises to provide a test that can detect infection before shedding of bacteria occurs. The Committee concludes that alternative, cheaper and more-effective diagnostic tests are needed and every effort should be made to introduce them.
12.63 The Committee was provided with evidence that quality control with respect to OJD testing has, at times, been inadequate. In addition, quality control processes already in place and their significance were not made clear to affected producers. This has led to distress and uncertainty. Considering the serious implications of a positive diagnosis for a flock owner, the Committee considers that there is no room for mistakes in diagnosis of OJD. If there is any ground for doubt, access to independent verification of diagnosis is needed and should be provided for.
12.64 Furthermore, the Committee has received evidence that the way in which some farmers have been notified of a positive diagnosis has been inappropriate, insensitive and unhelpful. The Committee considers that this aspect of program delivery must be improved.
That the procedures for obtaining statistical samples be clearly defined and distributed in an easy-to-understand form. Any such guidelines need to be consistently applied.
That pooled faecal testing be introduced into Victoria as an alternative routine test for diagnosing infected flocks as soon as possible.
That the Government urgently seek and/or provide additional funding for the work on gamma interferon test research.
That testing protocols be significantly improved, including ensuring that the `evidence chain' is foolproof and that independent verification can be obtained on request, at the cost of the producer, for all positive results.
That all test results be confidential and hand delivered to the owner of the infected stock by trained staff.
12.65 The Committee regards as a high priority the determination of the distribution and prevalence of OJD in Victoria. While considerable information has been obtained, this does not provide definitive evidence of the apparent low prevalence of OJD in the State, nor absolute assurance that OJD is confined to the locations in which it has so far been found.
12.66 Comprehensive data on flocks in all parts of Victoria are needed to determine the further effort and cost that will be required to control, and potentially eradicate, the disease from all or parts of the State. Information is also needed about localities and flocks that have a low risk of being infected and which could, over time, be declared free of OJD and used as sources of `clean' stock.
12.67 The Committee concludes that abattoir surveillance can provide the most cost-effective and comprehensive way to undertake the surveillance necessary. Comprehensive abattoir testing will extend into areas not currently subject to trace forward and trace back.
12.68 Abattoir surveillance can and, in the Committee's opinion should, be used to identify flocks that should be brought into the control program. It would not, however, remove the need for other forms of testing in particular circumstances, for example for market assurance and confirmation of infected status of a flock.
That abattoir testing be urgently extended across the whole of the State, with ongoing surveillance systems put in place in all abattoirs.
That all abattoir test results be provided to the relevant producer as well as the Department of Natural Resources and Environment for determination of regional infection status and identification of the source of infected flocks.
12.69 The Committee received evidence that transmission of OJD could result from faecal contamination of transport trucks and saleyards as well as the disposal of waste from these facilities and from abattoirs.
That protocols be prepared as a matter of urgency to ensure that there be adequate hygiene practices to ensure that the facilities for transport, sale or slaughter of sheep are not a source of M. paratuberculosis contamination. Such protocols to be developed in conjunction with the Environment Protection Authority (EPA), saleyard managers, transport industry, agricultural show personnel and producer groups.
That an intensive and ongoing information and education program be initiated and monitoring and surveillance systems created and used to provide feedback for continual improvement of systems.
12.70 The Committee finds that compensation for destocking is necessary if farmers are to support this as a method of control and to ensure that farmers are not forced from the industry through no fault of their own. The Committee has also found that the industry as a whole benefits from eradication through destocking, while individual producers who destock their properties bear the cost. The Committee concludes that compensation is needed to redress this inequity and that it is appropriate that the industry as a whole provides this compensation.
12.71 The Committee also considers that the greater majority of farmers whose flocks have been infected by OJD are suffering through no fault of their own. Moreover, the Committee is aware that the introduction of the disease into the State has been argued as being in large part due to the inadequacy of Federal and State government controls. The disease not only impacts on the industry, but has an adverse impact on associated farm workers, farming families and their communities.
12.72 The Committee notes that properties `under surveillance', especially studs and `commercial breeders' are under trading restrictions that essentially limit any trading for periods of 18 months or more while the farm undergoes testing to ensure that the flocks running on the property are not infected. In many instances, the flock proves to have been never infected. They cannot easily change their enterprise as they are still running their original enterprise. This is an unusual circumstance in an animal disease control program as such financial hardship is being experienced by owners of flocks not identified as infected.
That compensation be reinstated for all those producers who choose to destock infected flocks and decontaminate their total property or, subject to an approved property disease control plan that provides for OJD eradication being in place, a defined part/s of their property.
That the levy system be retained and the Government give consideration to increasing the levy rate, in consultation with industry, to reduce the period of debt.
That further investigation be undertaken into mechanisms to offer studs and `commercial breeders' unaffected market-based compensation rather than a flat-rate value compensation. Such mechanisms may require the introduction of a levy scheme based on a percentage of sale price rather than the current flat rate based scheme.
That compensation be provided for flocks `under surveillance' that have substantially diminished income due to trading restrictions particularly registered studs and `commercial breeders'. Further investigation and consultation be undertaken to determine appropriate levels of compensation, guidelines for eligibility and funding sources.
That an independent compensation appeals mechanism be put in place as an immediate priority.
12.73 The Committee has identified inequity associated with regulations aimed at containing OJD. Again the industry as a whole benefits, while individuals whose trade is restricted pay the costs of providing this benefit. Farmers with properties under quarantine or surveillance may experience financial hardship and the viability of their enterprises may be put at risk. Capital works are commonly needed to ensure containment of infection. These works benefit other producers rather than the farmer who owns the property. Unlike most notifiable diseases, quarantine and `under surveillance' requirements under the Victorian OJD Control Program are in place for 18 months or more. Consequently the Committee considers that there is a special case for additional assistance to be provided to such producers.
12.74 The Committee has identified a number of mechanisms by which such inequities can be redressed. These include provision of financial support to owners of infected flocks and `suspect' or `under surveillance' properties, as well as assistance to these owners to maintain and use their genetic resources.
12.75 Producers who derive most of their income from sheep are often the most vulnerable to the impact of the identification of OJD in their flocks. It may not be easy for them to change their enterprise without significant loss of income.
That the Rural Finance Corporation's `OJD Loan Scheme' be continued with a wider range of financial support mechanisms to be offered by the Government, including no, low or suspended interest loans - for those who have destocked as well as those prevented from trading while under `suspect' status quarantine or are subject to trading restrictions while `under surveillance'.
That assistance be given to affected producers to identify funding sources for capital works such as fencing and sheds allied to on-farm management as part of Property Disease Control Plans.
That the Government subsidise artificial breeding programs of infected flocks to retain genetic resources as a preliminary to destocking and to enable studs to continue trading.
That the Government actively seek the involvement and assistance of insurance, banking and other financial institutions in assisting OJD-affected farmers and ensure that high-quality information is made available to such organisations about the implications of the various control strategies available in Victoria.
12.76 Evidence to the Committee indicated that some of the needs of OJD-affected farmers would be met best by in-kind support. This particularly relates to development of groups aimed at co-operative approaches to OJD control obtaining critical information and assistance with farm planning. It is usually desirable for farmers who destock their properties to establish a clean flock during the period of decontamination for restocking at the end of this period. This can only be done if there is somewhere to run the flock and adequate fodder is available. The Committee concludes that in-kind assistance in these areas would ease the burden of OJD and help farmers to move forward.
That the Government, together with industry, promote self-help groups by providing funding for facilitators.
That industry promote ways to help with locating clean fodder and agistment of OJD-free sheep while properties or parts of properties are being decontaminated.
That support be continued for free farm business planning and the preparation of Property Disease Control Plans through Farm$mart, the Rural Financial Counselling Program and Department of Natural Resources and Environment initiatives.
12.77 The Committee has found that OJD and the Victorian OJD Control Program have led to many undesirable social impacts. Much of this has been compounded by financial hardship and inadequate communication with farmers.
12.78 Adverse social impacts, though falling particularly heavily on affected farmers, are not confined to them. Department of Natural Resources and Environment staff, who are required to undertake heavy workloads, implement an often unpopular program and undertake tasks for which they were not trained, have also suffered stress.
12.79 The Committee found that social support services provided have been too little, too late and not well tailored to those who need them. The Committee concludes that there is a considerable need to improve social support services and to ensure that there are trained personnel equipped to deal effectively with the communications and social aspects of program delivery and, in particular, adopt a more proactive approach.
12.80 The Committee also notes the conclusions of its consultants, Dr Bernadette Hood and Professor Terence Seedsman, who undertook an analysis of the social and mental health implications of the Victorian OJD Control Program. Acknowledgement that there have been experiences of loss and grief is required so that people and their communities can move on. Support programs need to be sensitive to the attitudes and concerns of the farmers in need of support and consequently programs need to be packaged in consultation with communities to facilitate access. The involvement of professional bodies working in the communities also needs to be harnessed. Support needs to be sensitive to gender and age differences.
That the provision of advice and counselling services, as currently provided for in the Community Connections contract, be maintained, but revised to ensure that local contracted counsellors make personal contact with all affected producers referred to them.
That additional local support programs and structures be developed in consultation with the affected communities, as well as with local government and professional bodies working in the communities. Separate support programs may be required for those involved with the delivery of the Victorian OJD Control Program.
That support facilities provide a range of specialist services, from crisis intervention to regular and accessible loss and grief counselling for individuals and/or groups.
That ongoing independent evaluation of support structures be used to determine usage patterns and perceptions of efficiency in terms of individuals establishing and managing a positive and productive pathway through their experiences of loss and grief.
12.81 The Committee has received evidence that past and current procedures of notifying producers that their flocks are infected or may be infected as the result of a trace forward or trace back or proximity to an infected flock often creates high levels of emotional stress.
That Departmental staff involved with face-to-face program delivery be trained in communication and social counselling skills and in all aspects of the Victorian OJD Control Program.
That an independent, trained, professional social counsellor accompany veterinary staff when the initial contact with producers is made to inform them that their property has been confirmed as infected with OJD. The Committee notes that this may require change to current regulations.
That the necessary notification of neighbours and clients of infected flocks be undertaken by officers of the Department of Natural Resources and Environment, on request from the affected producer.
12.82 The Committee does not consider that producers should be required to personally kill and dispose of their own un-saleable sheep and lambs, as this adds an unreasonable stress at a time when the producer is already facing considerable emotional stress.
That, on request, the Department of Natural Resources and Environment undertake or arrange the destruction of livestock from infected flocks that are not otherwise able to be sold.
12.83 The Committee understands that rapidly restocking a property or part of a property after decontamination minimises the cost of eradicating OJD. However, many farmers have difficulty obtaining Market Assurance Program accredited flocks.
12.84 Current techniques to assist in the maintenance of genetic resources where flocks are destocked or trading restrictions imposed are limited in their application, and expensive.
That the Government assist industry to create a regularly updated listing of Market Assurance Program accredited flocks and that this listing be made generally available to assist producers source sheep for restocking. To this end, the Department should liaise with industry and stock agents to obtain such information.
That the Department continue to reimburse affected producers the cost of testing untested flocks being considered for restocking.
That the State of Victoria seek an increased emphasis by the National OJD Program on the research of methods to maintain the genetic resources of destocked and quarantined flocks.
12.85 Victoria was a strong advocate for the establishment of a National OJD Program and remains a strong supporter of and contributor to the Program. The research component of the Program is especially important to assist in the Program being able to meet its objective of providing sufficient information to allow an informed decision to be made on the national management of OJD, including "particularly the feasibility and cost-effectiveness of eradication."
That Victoria remain an active participant in the National OJD Program.
That Victoria should be a strong advocate of research into and application of techniques for obtaining disease-distribution data, as well as research into techniques that will assist identification of the disease in recently infected sheep and research into the rate of spread within flocks. Research into cross-species infection of OJD and bovine Johne's disease in sheep should also be given a high priority.
12.86 The spread of OJD into Australia and possibly into Victoria was from the importation of infected sheep from overseas. The Committee is aware that there are strains of Johne's disease that are found overseas that have not been recorded in Australia.
That the State of Victoria maintain active liaison with the Australian Quarantine and Inspection Service (AQIS) to ensure that quarantine controls are adequate to ensure that there is minimal risk of OJD-infected sheep entering Australia in the future.
12.87 The results of the current National OJD Program should become available around the end of 2003. There is an expectation that at this time, the States and the Commonwealth will adopt a nationally agreed program. If, and when this occurs, it would be appropriate for the Committee's recommended OJD Control Strategy to be reviewed to ensure consistency.
12.88 The Committee has previously concluded that the absence of a test that will pick up infection prior to the shedding of bacteria and the absence of a vaccine that will prevent infection are the two major limiting factors in tightly targeting a control program. If, and when either technique becomes available, it would be appropriate to review the Committee's recommended OJD Control Strategy.
That the Committee's recommended Control Strategy be reviewed if and when a nationally agreed OJD Control Strategy is in place and/or when a test is available that picks up infection prior to the shedding of bacteria and/or when a vaccine is available that will prevent infection.
1 The key additional information required to determine whether Statewide eradication is feasible is considered to be a reliable Statewide distribution of infection and the availability of a test that will establish whether infection is present in an individual sheep prior to the sheep shedding bacteria.
2 For example, as noted in Chapter 7, recent research now indicates that it is prudent not to run young cattle on destocked properties being decontaminated.
