The Australian quarantine system is supported by Commonwealth, state and territory quarantine laws. Under the Australian Constitution, the Commonwealth Government does not have exclusive power to make laws in relation to quarantine, and as a result, Commonwealth and state quarantine laws can co-exist.
Commonwealth quarantine laws are contained in the Quarantine Act 1908 and subordinate legislation including the Quarantine Regulations 2000, the Quarantine Proclamation 1998, the Quarantine (Cocos Islands) Proclamation 2004 and the Quarantine (Christmas Island) Proclamation 2004.
The quarantine proclamations identify goods, which cannot be imported, into Australia, the Cocos Islands and or Christmas Island unless the Director of Animal and Plant Quarantine or delegate grants an import permit or unless they comply with other conditions specified in the proclamations. Section 70 of the Quarantine Proclamation 1998, section 34 of the Quarantine (Cocos Islands) Proclamation 2004 and section 34 of the Quarantine (Christmas Island) Proclamation 2004 specify the things a Director of Animal and Plant Quarantine must take into account when deciding whether to grant a permit.
In particular, a Director of Animal and Plant Quarantine (or delegate):
must consider the level of quarantine risk if the permit were granted, and
must consider whether, if the permit were granted, the imposition of conditions would be necessary to limit the level of quarantine risk to one that is acceptably low, and
for a permit to import a seed of a plant that was produced by genetic manipulation – must take into account any risk assessment prepared, and any decision made, in relation to the seed under the Gene Technology Act, and
may take into account anything else that he or she knows is relevant.
The level of quarantine risk is defined in section 5D of the Quarantine Act 1908. The definition is as follows:
reference in this Act to a level of quarantine risk is a reference to:
(a) the probability of:
(i) a disease or pest being introduced, established or spread in Australia, the Cocos Islands or Christmas Island; and
(ii) the disease or pest causing harm to human beings, animals, plants, other aspects of the environment, or economic activities; and
(b) the probable extent of the harm.
The Quarantine Regulations 2000 were amended in 2007 to regulate keys steps of the import risk analysis process. The Regulations:
define both a standard and an expanded IRA,
identify certain steps, which must be included in each type of IRA,
specify time limits for certain steps and overall timeframes for the completion of IRAs (up to 24 months for a standard IRA and up to 30 months for an expanded IRA),
specify publication requirements,
make provision for termination of an IRA, and
allow for a partially completed risk analysis to be completed as an IRA under the Regulations.
The Regulations are available at www.comlaw.gov.au.
International agreements and standards
The process set out in the Import Risk Analysis Handbook 2007 (update 2011) is consistent with Australia’s international obligations under the SPS Agreement. It also takes into account relevant international standards on risk assessment developed under the International Plant Protection Convention (IPPC) and by the World Organisation for Animal Health (OIE).
Australia bases its national risk management measures on international standards where they exist and when they achieve Australia’s ALOP. Otherwise, Australia exercises its right under the SPS Agreement to apply science-based sanitary and phytosanitary measures that are not more trade restrictive than required to achieve Australia’s ALOP.
Notification obligations
Under the transparency provisions of the SPS Agreement, WTO Members are required, among other things, to notify other members of proposed sanitary or phytosanitary regulations, or changes to existing regulations, that are not substantially the same as the content of an international standard and that may have a significant effect on trade of other WTO Members.
Risk analysis
Within Australia’s quarantine framework, the Australian Government uses risk analyses to assist it in considering the level of quarantine risk that may be associated with the importation or proposed importation of animals, plants or other goods.
In conducting a risk analysis, DAFF Biosecurity:
identifies the pests and diseases of quarantine concern that may be carried by the good
assesses the likelihood that an identified pest or disease or pest would enter, establish or spread
assesses the probable extent of the harm that would result.
If the assessed level of quarantine risk exceeds Australia’s ALOP, DAFF Biosecurity will consider whether there are any risk management measures that will reduce quarantine risk to achieve the ALOP. If there are no risk management measures that reduce the risk to that level, trade will not be allowed.
Risk analyses may be carried out by DAFF Biosecurity’s specialists, but may also involve relevant experts from state and territory agencies, the Commonwealth Scientific and Industrial Research Organisation (CSIRO), universities and industry to access the technical expertise needed for a particular analysis.
Risk analyses are conducted across a spectrum of scientific complexity and available scientific information. An IRA is a type of risk analysis with key steps regulated under the Quarantine Regulations 2000. DAFF Biosecurity’s assessment of risk may also take the form of a non-regulated analysis of existing policy or technical advice. Further information on the types of risk analysis is provided in the Import Risk Analysis Handbook 2007 (update 2011).
Glossary
Term or abbreviation
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Definition
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Additional declaration
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A statement that is required by an importing country to be entered on a phytosanitary certificate and which provides specific additional information on a consignment in relation to regulated pests (FAO 2010).
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Appropriate level of protection (ALOP)
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The level of protection deemed appropriate by the Member establishing a sanitary or phytosanitary measure to protect human, animal or plant life or health within its territory (WTO 1995).
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Area
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An officially defined country, part of a country or all or parts of several countries (FAO 2010).
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Area of low pest prevalence
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An area, whether all of a country, part of a country, or all parts of several countries, as identified by the competent authorities, in which a specific pest occurs at low levels and which is subject to effective surveillance, control or eradication measures (FAO 2010).
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Certificate
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An official document which attests to the phytosanitary status of any consignment affected by phytosanitary regulations (FAO 2010).
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Consignment
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A quantity of plants, plant products and/or other articles being moved from one country to another and covered, when required, by a single phytosanitary certificate (a consignment may be composed of one or more commodities or lots) (FAO 2010).
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Control (of a pest)
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Suppression, containment or eradication of a pest population (FAO 2010).
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DAFF Biosecurity
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The unit, within the Department of Agriculture, Fisheries and Forestry, responsible for Australia’s biosecurity policies. Previously known as the Biosecurity Australia and the Australian Quarantine and Inspection Service (AQIS).
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Endangered area
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An area where ecological factors favour the establishment of a pest whose presence in the area will result in economically important loss (FAO 2010).
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Entry (of a pest)
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Movement of a pest into an area where it is not yet present, or present but not widely distributed and being officially controlled (FAO 2010).
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Establishment
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Perpetuation, for the foreseeable future, of a pest within an area after entry (FAO 2010).
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Fresh
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Living; not dried, deep-frozen or otherwise conserved (FAO 2010).
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Host range
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Species capable, under natural conditions, of sustaining a specific pest or other organism (FAO 2010).
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Import permit
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Official document authorising importation of a commodity in accordance with specified phytosanitary import requirements (FAO 2010).
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Import risk analysis
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An administrative process through which quarantine policy is developed or reviewed, incorporating risk assessment, risk management and risk communication.
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Infestation (of a commodity)
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Presence in a commodity of a living pest of the plant or plant product concerned. Infestation includes infection
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Inspection
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Official visual examination of plants, plant products or other regulated articles to determine if pests are present and/or to determine compliance with phytosanitary regulations (FAO 2010).
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Intended use
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Declared purpose for which plants, plant products, or other regulated articles are imported, produced, or used (FAO 2010).
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Interception (of a pest)
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The detection of a pest during inspection or testing of an imported consignment (FAO 2010).
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International Standard for Phytosanitary Measures (ISPM)
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An international standard adopted by the Conference of the Food and Agriculture Organization, the Interim Commission on phytosanitary measures or the Commission on phytosanitary measures, established under the IPCC (FAO 2010).
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Introduction
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The entry of a pest resulting in its establishment (FAO 2010).
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Lot
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A number of units of a single commodity, identifiable by its homogeneity of composition, origin etc., forming part of a consignment (FAO 2010).
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National Plant Protection Organization (NPPO)
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Official service established by a government to discharge the functions specified by the IPPC (FAO 2010).
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Official control
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The active enforcement of mandatory phytosanitary regulations and the application of mandatory phytosanitary procedures with the objective of eradication or containment of quarantine pests or for the management of regulated non-quarantine pests (FAO 2010).
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Pathway
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Any means that allows the entry or spread of a pest (FAO 2010).
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Pest
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Any species, strain or biotype of plant, animal, or pathogenic agent injurious to plants or plant products (FAO 2010).
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Pest categorisation
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The process for determining whether a pest has or has not the characteristics of a quarantine pest or those of a regulated non-quarantine pest (FAO 2010).
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Pest free area (PFA)
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An area in which a specific pest does not occur as demonstrated by scientific evidence and in which, where appropriate, this condition is being officially maintained (FAO 2010).
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Pest free place of production
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Place of production in which a specific pest does not occur as demonstrated by scientific evidence and in which, where appropriate, this condition is being officially maintained for a defined period (FAO 2010).
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Pest free production site
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A defined portion of a place of production in which a specific pest does not occur as demonstrated by scientific evidence and in which, where appropriate, this conditions is being officially maintained for a defined period and that is managed as a separate unit in the same way as a pest free place of production (FAO 2010).
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Pest risk analysis (PRA)
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The process of evaluating biological or other scientific and economic evidence to determine whether an organism is a pest, whether it should be regulated, and the strength of any phytosanitary measures to be taken against it (FAO 2010).
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Pest risk assessment (for quarantine pests)
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Evaluation of the probability of the introduction and spread of a pest and of the associated potential economic consequences (FAO 2010).
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Pest risk management (for quarantine pests)
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Evaluation and selection of options to reduce the risk of introduction and spread of a pest (FAO 2010).
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Phytosanitary certificate
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Certificate patterned after the model certificates of the IPPC (FAO 2010).
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Phytosanitary measure
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Any legislation, regulation or official procedure having the purpose to prevent the introduction and/or spread of quarantine pests, or to limit the economic impact of regulated non-quarantine pests (FAO 2010).
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Phytosanitary regulation
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Official rule to prevent the introduction and/or spread of quarantine pests, or to limit the economic impact of regulated non-quarantine pests, including establishment of procedures for phytosanitary certification (FAO 2010).
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Polyphagous
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Feeding on a relatively large number of hosts from different genera.
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PRA area
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Area in relation to which a pest risk analysis is conducted (FAO 2010).
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Quarantine pest
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A pest of potential economic importance to the area endangered thereby and not yet present there, or present but not widely distributed and being officially controlled (FAO 2010).
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Regulated article
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Any plant, plant product, storage place, packing, conveyance, container, soil and any other organism, object or material capable of harbouring or spreading pests, deemed to require phytosanitary measures, particularly where international transportation is involved (FAO 2010).
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Restricted risk
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Risk estimate with phytosanitary measure(s) applied.
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Spread
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Expansion of the geographical distribution of a pest within an area (FAO 2010).
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SPS Agreement
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WTO Agreement on the Application of Sanitary and Phytosanitary Measures (WTO 1995).
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Stakeholders
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Government agencies, individuals, community or industry groups or organizations, whether in Australia or overseas, including the proponent/applicant for a specific proposal, who have an interest in the policy issues.
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Systems approach(es)
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The integration of different risk management measures, at least two of which act independently, and which cumulatively achieve the appropriate level of protection against regulated pests (FAO 2010).
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Unrestricted risk
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Unrestricted risk estimates apply in the absence of risk mitigation measures.
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