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Fresh (chilled or frozen) beef and beef products from Japan, the Netherlands, New Zealand, the United States and Vanuatu – draft review

December 2016

© Commonwealth of Australia 2016

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Cataloguing data

Australian Government Department of Agriculture and Water Resources 2016, Fresh (chilled or frozen) beef and beef products from Japan, the Netherlands, New Zealand, the United States and Vanuatu – draft review, Department of Agriculture and Water Resources, Canberra.

This publication is available at agriculture.gov.au.

Australian Government Department of Agriculture and Water Resources
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Liability

The Australian Government acting through the Department of Agriculture and Water Resources has exercised due care and skill in preparing and compiling the information in this publication. Notwithstanding, the Australian Government Department of Agriculture and Water Resources, its employees and advisers disclaim all liability, including liability for negligence and for any loss, damage, injury, expense or cost incurred by any person as a result of accessing, using or relying upon any of the information or data in this publication to the maximum extent permitted by law.

Stakeholder submissions on draft reports

This draft report has been issued to give all interested parties an opportunity to comment on relevant technical biosecurity issues, with supporting rationale. A final report will then be produced taking into consideration any comments received.

Submissions should be sent to the Australian Government Department of Agriculture and Water Resources following the conditions specified within the related Biosecurity Advice, which is available at: agriculture.gov.au/biosecurity/risk-analysis/memos

Review of fresh beef imports Acronyms and abbreviations

Contents

Acronyms and abbreviations v

Summary 1

Anthrax (Bacillus anthracis) 3

Aujeszky’s disease (Suid herpesvirus 1) 3

Bovine brucellosis (Brucella abortus, B.melitensis, B.suis) 4

Bovine tuberculosis (Mycobacterium bovis) 4

Bovine viral diarrhoea virus (BVDV) 4

Cysticercus bovis 4

Echinococcosis 4

Paratuberculosis (Mycobacterium avium subspecies paratuberculosis) 5

Salmonella enterica serotype Typhimurium DT104 (DT104) 5

Vesicular stomatitis 5

1 Introduction 6

1.1 Australia’s biosecurity policy framework 6

1.2 This policy review 6

2 Method 10

2.1 Risk review 10

2.2 Hazard identification 11

2.3 Risk assessment 12

2.4 Risk management 16

2.5 Risk communication 17

3 Hazard identification 18

3.1 Hazards not present in applicant countries 28

4 Risk assessments 40

4.1 Anthrax 40

4.2 Aujeszky’s disease (Pseudorabies) 48

4.3 Bovine brucellosis 53

4.4 Bovine tuberculosis 60

4.5 Bovine viral diarrhoea virus 67

4.6 Cysticercus bovis infection (infection with metacestode of Taenia saginata) 75

4.7 Echinococcosis 85

4.8 Paratuberculosis (Mycobacterium avium subspecies paratuberculosis) 90

4.9 Salmonella enterica serotype Typhimurium DT104 99

4.10 Vesicular stomatitis 122

5 Risk management 129

5.1 Introduction 129

Glossary 137

References 143

Tables

Table 1 Hazard identification and refinement 19

Table 2 Risk estimation matrix 121

Review of fresh beef imports Acronyms and abbreviations

Acronyms and abbreviations

Term or abbreviation / Definition /
Ab-ELISA / absorbed-enzyme-linked immunosorbent assay
ACSSuT / ampicillin, chloramphenicol, streptomycin, sulphonamides and tetracycline resistance
ACSuT / ampicillin, chloramphenicol, sulphonamides and tetracycline resistance
ADV / Aujesky’s disease virus
AHA / Animal Health Australia
ALOP / appropriate level of protection
APHIS / USDA Animal and Plant Health Inspection Service
AUSEVETPLAN / Australian Veterinary Emergency Plan
BA / Biosecurity Advice
bovine TB / bovine tuberculosis
BSE / bovine spongiform encephalopathy
BTEC / Brucellosis and Tuberculosis Eradication Campaign
BVDV / bovine viral diarrhoea virus
CA / competent authority
CBPP / contagious bovine pleuropneumonia
CCFH / Codex Committee on Food Hygiene
CCHF / Crimean-Congo haemorrhagic fever
CDC / Centre for Disease Control
CFR / Code of Federal Regulations
CFSPH / Centre for Food Security and Public Health
CFT / complement fixation test
CMI / cell-mediated immune response
CP / cytopathic
DAID / Domestic Animal Infectious Disease
DoH / Department of Health
DT104 / Salmonella enterica serotype Typhimurium definitive type 104
EAD / emergency animal disease
EADRA / Emergency Animal Disease Response Agreement
EFSA / European Food and Safety Authority
ELISA / enzyme-linked immunosorbent assay
ESAM / Escherichia coli and Salmonella monitoring programme
ESR / Institute of Environmental Science and Research
EZ / Ministry of Economic Affairs (the Netherlands)
FAO / Food and Agriculture Organization of the United Nations
FMD / foot and mouth disease
FSANZ / Food Safety Austrlaia New Zealand
FSIS / USDA Food Safety Inspection Service
HACCP / Hazard Analysis Critical Control Point
HS / haemorrhagic septicaemia
IPP / Intensive Paratuberculosis Programme
LHSC / Livestock Hygiene Service Centre
LSD / lumpy skin disease
MAFF / Ministry of Agriculture, Forestry and Fisheries
MARAN / Monitoring of Antimicrobial Resistance and Antibiotic Usage in Animals in the Netherlands
MBM / meat and bone meal
MHLW / Ministry of Helath, Labour and Welfare
MLVA / multiple-locus variable-number tandem repeat analysis
MPI / Ministry for Primary Industries (New Zealand)
MQAP / Milk Quality Assurance Programme
NAHMS / National Animal Health Monitoring Systems
NCP / non-cytopathic
NID / notifiable infectious diseases other than domestic animal infectious diseases
NLRAD / National List of Reportable Animal Diseases
NMD / National Microbiological Database
NZ / New Zealand
NVBJCP / National Voluntary Bovine Johne’s Control Program
NVMA / The Netherlands Food and Consumer Product Safety Authority
OIE / World Organisation for Animal Health
OIE Code / OIE Terrestrial Animal Health Code
OIE Manual / OIE Manual of Diagnostic Tests and Vaccines for Terrestrial Animals
OIE WAHIS / OIE World Animal Health Information System
PCR / polymerase chain reaction
PFGE / pulsed-field gel electrophoresis
PI / persistently infected
PR / pathogen reduction
PRV / Pseudorabies virus
RIVM / National Institute of Public Health and the Environment (the Netherlands)
RT-PCR / reverse transcriptase polymerase chain reaction
RVF / Rift Valley fever
SC / Small-colony type (for Mycoplasma mycoides subsp. mycoides)
SCAHAW / Scientific Committee on Animal Health and Animal Welfare
SHV-1 / Suid herpesvirus 1
SGI1 / Salmonella genomic island 1
spp. / species
SPS Agreement / WTO agreement on the Application of Sanitary and Phytosanitary Measures
subsp. / subspecies
TB / tuberculosis
TFAP / Tuberculosis Freedom Assurance Program
US / United States
USDA / United States Department of Agriculture
VS / vesicular stomatitis
WAHID / World Animal Health Information Database
WB / Wesslesbron disease
WTO / World Trade Organization

Review of fresh beef imports Summary

Summary

A number of Australia’s trading partners have formally approached the Australian government for market access for fresh (chilled or frozen) beef and beef products for human consumption. In this document the term ‘fresh’ implies chilled or frozen product. Unless otherwise stated, it is assumed that any biosecurity risk applicable to fresh beef product is equivalent to or less than that applicable to fresh beef.

In line with Australia’s international trade obligations, the Australian Government Department of Agriculture and Water Resources committed to undertaking a review of the import conditions for fresh beef and beef products from specified countries. In this review, specified countries are referred to as applicant countries.

To access the Australian market for fresh beef and beef products, applicant countries undergo a two-part review process that identifies food safety and biosecurity risks, and applies conditions that exporting countries must meet. The first part of the review is undertaken by Food Standards Australia New Zealand (FSANZ), an independent statutory agency within the Australian Government's Health portfolio with responsibility for food safety. The FSANZ review assesses the level of risk posed by bovine spongiform encephalopathy (BSE) to the health of Australian consumers. A favourable FSANZ BSE assessment allows access for heat-treated shelf-stable beef products into Australia, subject to compliance with existing biosecurity requirements and finalisation of agreed health certificates for importation. The second part of the review is undertaken by the Department of Agriculture and Water Resources and evaluates animal biosecurity risks associated with fresh beef and beef products access to mainland Australia. The Australian External Territories are not in considered in this review.

This biosecurity review considered importation of fresh beef and beef products from applicant countries that have a favourable BSE assessment by FSANZ, and have also formally applied to the department for access for fresh beef and beef products. To ensure consistency with existing import policy, New Zealand and Vanuatu were included as applicant countries in this review as both are FSANZ assessed and approved countries with long-standing access for fresh beef and beef products.

Applicant countries considered in this review were:

·  Japan

·  The Netherlands

·  New Zealand

·  United States

·  Vanuatu

Beef and beef products included in this review were meat, bone and offal from domesticated American bison (Bison bison), buffalo (Bubalus bubalis—water buffalo or domestic Asian water buffalo), or cattle (Bos taurus and Bos indicus), as fresh (chilled or frozen) beef and beef products derived from fresh beef. For the purpose of this review, offal was considered the heart, oesophagus, organs of the abdominal cavity (other than reproductive organs), the muscular tissues of the head, tissues of the diaphragm, the tail, and tendons.

The review specifically excluded:

·  brain, all pulmonary and reproductive organs, including udders (and associated lymph nodes)

·  milk and dairy products

·  gelatine and collagen derived from bovine skins and hides (including casings produced from this type of material)

·  edible bovine fats or bovine tallows included as a minor ingredient of a processed product

·  natural casings, heat-processed meat-based flavours and retorted beef and beef products for human consumption, because separate import requirements apply to these products

·  blood and blood products excepting that which is naturally contained in meat flesh after slaughter and bleeding.

The department adopted the following standards as the benchmark for the assessment of the unrestricted risk estimate associated with imported fresh beef and beef products from the applicant countries:

·  Australian Standard for the Hygienic Production and Transportation of Meat and Meat Products for Human Consumption (2007) (Australian Meat Standard) (FRSC 2007).

·  Bovine spongiform encephalopathy (BSE): requirements for the importation of beef and beef products for human consumption– effective 1 March 2010 (Australian BSE requirements) (FSANZ 2010).

·  Imported Food Control Act 1992 which requires imported food to comply with the Australia New Zealand Food Standards Code.

The Department of Agriculture and Water Resources assessed the animal biosecurity risks (excluding BSE which is covered by FSANZ) associated with the proposed importation of fresh beef and beef products from the applicant countries in this draft review. Human health concerns are the responsibility of the Australian Government Department of Health (DoH). The Department of Agriculture and Water Resources consulted with DoH in the development of this draft review. For those diseases of human health significance, DoH is currently undertaking an assessment of the human health risk and, if required, will recommend appropriate risk management measures. Where DoH assesses that the risk to human health was higher than Australia’s appropriate level of protection (ALOP), the recommended risk management measures will be incorporated into the final risk review.

The review took into account new and relevant peer-reviewed scientific information, advice from scientific experts, and relevant changes in industry practices and operational practicalities. The department recognises that there might be new scientific information and technologies, or other combinations of measures that may provide an equivalent level of biosecurity for the disease agents identified as requiring risk management. Submissions supporting equivalent measures will be considered on a case-by-case basis.

Hazard identification identified several significant bovine diseases which are currently exotic to all the applicant countries and Australia. These diseases are:

·  contagious bovine pleuropneumonia

·  Crimean-Congo haemorrhagic fever

·  foot-and-mouth disease

·  haemorrhagic septicaemia.

·  lumpy skin disease

·  surra

·  Rift Valley fever

·  theileriosis

·  trypanosomiasis

·  Wesselsbron disease

Country freedom from these diseases is an appropriate risk management for imports from these countries and risk management will be covered under a country freedom clause in the required certification. No risk management was required for rinderpest as the disease was declared globally eradicated in 2011 (OIE 2013a). Information validating this approach for the applicant countries is summarised in Chapter 6 (Hazard Identification).

The following diseases were identified in the hazard identification stage as requiring risk assessment:

·  anthrax

·  Aujeszky’s disease

·  bovine brucellosis

·  bovine tuberculosis

·  bovine viral diarrhoea virus

·  Cysticercus bovis

·  echinococcosis

·  paratuberculosis

·  Salmonella enterica serotype Typhimurium DT104

·  vesicular stomatitis

The conclusions of risk assessment for each of these diseases in terms of estimated risk from the importation of beef and beef products and, if required, the proposed risk management measures to achieve Australia’s ALOP are summarised below.