ProblemswithFeralAnimalManagementinNewSouthWales

SubmissiontotheNSWNaturalResourcesCommission

reviewofpestmanagement

November2015

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TableofContentsThesubmitters..........................................................................................................................................1Introduction..............................................................................................................................................2

Summaryofrecommendations.......................................................................................................3Recommendationsaboutspecies.............................................................................................................3Generalrecommendations.......................................................................................................................3

Recommendationsaboutspecies....................................................................................................51. Cullferalhorses.................................................................................................................................52. Developagoatpolicy........................................................................................................................73. Declaredeerpestsandimprovecontrolmethods............................................................................74. Reducewilddogcontrol....................................................................................................................95. Prohibitreleaseofgamebirds..........................................................................................................96. Assessdovesandactaccordingly....................................................................................................107. Phaseoutringneckparrots.............................................................................................................108. Requirefishwarnings......................................................................................................................1110. Developared-earedsliderpolicy....................................................................................................1111. Buildredfinbarrier..........................................................................................................................13

Generalrecommendations............................................................................................................1412. Adoptanationalleadershiprole.....................................................................................................1413. Developaforesightingcapacity......................................................................................................1414. Reformfundingprocesses...............................................................................................................1515. Createanadvisorycommittee........................................................................................................1516. ReformclassificationsundertheNon-indigenousAnimalsRegulation2012..................................1617. Fundsocialresearch........................................................................................................................1718. Acknowledgewelfareconcerns.......................................................................................................1719. Updatedistributionmaps...............................................................................................................1720. Rejectbounties................................................................................................................................1821. Bewaryofcommercialisation.........................................................................................................18

References......................................................................................................................................19

ThesubmittersTheInvasiveSpeciesCouncilcampaignsforbetterlawsandpoliciestoprotecttheAustralianenvironmentfromweeds,feralanimalsandotherinvasivespecies.Emailisc@invasives.org.au.TheNatureConservationCouncilofNSWisthepeakenvironmentorganisationforNewSouthWales,representing150membersocietiesacrossthestate.Togetherwearecommittedtoprotectingandconservingthewildlife,landscapesandnaturalresourcesofNSW.Emailncc@nature.org.au.BirdLifeAustraliaisAustralia’slargestorganisationdedicatedtotheprotectionofbirdsandtheirhabitat.Email:info@birdlife.org.au.

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IntroductionThisisasubmissionfromtheInvasiveSpeciesCouncil,BirdLifeAustraliaandtheNatureConservationCouncilofNSW,collectivelywhicharecommittedtotheconservationofNSW’shighlydiversebiota,andprotectionandrestorationofitsnaturalhabitats.ItisinresponsetotheIssuesPaperreleasedbytheNaturalResourcesCommissiontoimproveferalanimalmanagementinNSW,requestedbytheMinisterforPrimaryIndustries.WewelcometheinterestbytheNaturalResourcesCommission.Feralanimalsareamajorconcerntotheconservationcommunity,asthemaincauseofmammalextinctionsandmammalendangermentinAustralia.TheActionPlanforAustralianMammals2012,writtenbythreeleadingmammologistsandsponsoredbytheAustralianenvironmentdepartment,ratesferalcatsthenumberoneproblemforAustralia’sthreatenedmammals,withredfoxesinthirdplace.1.(Inappropriatefireregimescomesecondandhabitatlossfourth.).Catsandfoxeswereidentifiedasthemaincauseofextinctionof18species,andamajorcontributingfactortoanotherthreeextinctions.OtherferalanimalsthatseriouslythreatenAustralia’svulnerableandendangeredanimalsandplantsincludedeer,rabbits,blackrats,mosquitofish,carp,wolfsnakesandcanetoads.Thenativespeciesatthreatfromtheirimpactsincludefrogs,birds,invertebratesandplants.Therecoveryplanforshinynematolepis,togiveoneexampleofavulnerableplant,listssambardeerasthegreatestthreattothespecies’survival.2

Feralanimalcontrolisdifficultandexpensive,andfundingisoftennotallocatedinthemostprudentways.Thepublicmayexpecttheworstpeststodaytobetargeted,whenafocusinsteadonnewandemergingpestsoftendeliversthebestreturnsoninvestmentandmakesitpossibletosignificantlyaddressthepeststhatarelikelytobeofconcerntothepublicindecadestocome.Wherefundingforcontrolisepisodic,inresponsetofluctuatingbudgets,itcanbeineffectualbynotmaintainingthesustainedcontrolneededtoreducepopulations.Weliveatatimewhengovernmentsarguetheyshouldreducespending,butbudgetcutstopestcontrolseldomservethepublicinterest.Anygovernmentthatunderspendstodayismerelycreatingagreatercostforthefuture,aspestpopulationsthatcouldhavebeenreducedforamoderatebudgettodayescalateinscaletobecomemoreexpensiveproblemsforthefuture.

ItisimportantthatpestauthoritiesinNSWandthroughoutAustraliahaveoneeyeonthefutureratherthanfixingalltheirattentiononasetlistofknownpests.AwiderangeofspeciescouldestablishinNSWinthefuture.Therearereasonstobeconcerned,forexample,aboutblack-spinedtoads,smoothnewts,barbarydoves,guineafowlandnewaquariumfish,baseduponrecentAustralianevidence.

Nationalintergovernmentalprocessesonbiosecurityandinvasivespeciesmainlyinvolveagriculturalministersandagriculturedepartmentswithformalchannelsofinputfromindustrystakeholders.Theenvironmentalimpactsofpeststendtobeaccordedalowerprioritythanagriculturalimpactsthroughtheseprocessesandaresometimesneglectedaltogether.

ThesubmissionhasbeencompiledbytheInvasiveSpeciesCouncil.Itdoesnotaddressallferalanimalissues,butinsteadfocusesonareaswherewebelieveimprovementsareneeded.Alistofrecommendationsisprovidedfirst,followedbydetailsabouteachrecommendation.Thesearegroupedintorecommendationsaboutspecificspeciesorgroupsofspecies,followedbygeneralpolicyrecommendations.

1Woinarski,BurbidgeandHarrison(2014)2https://www.environment.gov.au/resource/national-recovery-plan-shiny-nematolepis-nematolepis-wilsonii

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Summaryofrecommendations

Recommendationsaboutspecies1. Innationalparkswithferalhorseproblemsreinstateaerialcullingandonsiteeuthanasiato

avertfuturemanagementdisasters.

2. Developagoatpolicytoensurethatagrowinggoatindustrydoesnotresultinlanddegradationcausedbyincreasingnumbersofferalgoats.

3. a.Declaredeerpests,removeanylimitationsontheirharvestsothattheycanbemoreeasilycontrolledandimplementastatewidecontainmentprogram.

b.Reviewregulationsfordeerfarmingtoreducetheprobabilityofescapes

c.Developabetterdeercontroltoolkitincorporatingawiderrangeofcontroltechniques.

4. Reducegovernmentinvestmentinwilddogcontrol.

5. RemoveexoticgamebirdsfromtheGameandFeralAnimalControlAct2002andprohibittheirreleaseintowildorsemi-wildsituations.

6. InvestigatethestatusofbarbaryandlaughingdovesincaptivityinNSWtoseeifapolicyiswarrantedtoreducetheriskofferalpopulationsforming.

7. Introduceaphase-outofIndianringneckparrots,allowingpetownerstokeepthering-neckstheyhave,butnottobreedorreplacethem,leadingtoaprohibitiononthisspecieswhennocaptivebirdsremain.

8. Introducealegislativerequirementthatshopssellingaquariumandpondfishdisplayasignwarningagainstdisposaloffish,snailsandplantsinwaterwaysandsuggestingsafealternatives.

9. Developared-earedsliderpolicytotoensurethereisnofurtherspread,toreviewtheprospectsoferadicationandprovidemorepublicinformationaboutthethreatstheypose.

10. BuildabarrieraccordingtotheguidelinesofKnight(2010)topreventredfinperchcolonisingtheKedumbaRiverandharmingendangeredMacquarieperch.

Generalrecommendations11. Provideagreaterleadershiproleinnationalpolicy,forexamplebyacceptingthe

recommendationstothe2015SenateInquiryintoenvironmentalbiosecurity,supportingtheproposaltoestablishEnvironmentHealthAustralia,improvingtheNationalEnvironmentalBiosecurityResponseAgreement,improvingtransparencyandinvolvementoftheenvironmentalsectorinbiosecuritydecision-making,andclosingoffpathwaysforhighriskenvironmentalinvasivespecies.

12. Developaforesightingunittomonitorpesttrendsandbetterpredictfutureproblems.

13. Reformfundingprocessessothatlong-termfundingofpestcontrolisachieved,andfundingachievespublicgoodratherthanprivategain.

14. Establishapestanimaladvisorycommitteetoreviewtheoperationofcurrentpestmanagementactivities,identifygapsandopportunities,respondearlytofuturerisksidentifiedduringforesightingandimproveengagementandcooperation.

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15. ReviseclassificationsundertheNon-indigenousAnimalsRegulation2012inSchedule1toalignwiththeriskassessmentsconductedfortheVertebratePestsCommittee.

16. Fundsocialresearchintothebehavioursofthosewhodeliberatelyorunwittinglyspreadpests,toguidepolicyresponses.

17. NSWDPItoacknowledgegrowingpublicconcernsaboutanimalwelfarebybecomingmorepro-activeinitsoperationsandthemessagingitundertakes.

18. UpdateNSWDPI2009websitemapsofferalanimaldistributions.

19. Rejectanycallstointroducebounties.

20. Bewaryofproposalstoreduceferalanimalnumbersbycreatingmarketsfortheirproducts.

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Recommendationsaboutspecies1. CullferalhorsesFeralhorsepolicyinNSWappearstohavebeencompromisedbycapitulationtobrumbylovers,resultinginpolicysettingsthatwillbringgrieftothegovernmentinfuture,causeimmensesufferingtohorses,generatewelfareconcernsandcreateverydamagingenvironmentaloutcomes.

KosciuszkoNationalParkepitomisestheproblems.InanABCnewsitempublishedonlineon23May2015,TomBagnatfromtheNSWNationalParksandWildlifeServiceisquotedsayingthatinKosciuszkoNationalPark,existingcontrolmeasures–whichconsistoftrappingandre-homing–are‘notkeepingpacewiththegrowthinthepopulation’.3

Bagnatisreportedsayingthatin2009theparkheldabout4,200horses,whilea2014surveyindicatedthenumberhadreachedabout6,000–afterrangershadremoved2,000horsesintheinterveningyears.AccordingtotheKosciuszkoNationalParkHorseManagementPlan,thehorsepopulationin2003wasonly1700.4

NSWhasruledoutculling,followingoppositionfrombrumbylovers,whowanthorsesrunningfreeinnationalparks,andhorsestreatedhumanely.Thereissomeacceptancefrombrumbyloversthathorsenumbersinnationalparksaretoohigh,justifyingsomehorseremoval,buttheyholdmisconceptionsaboutwhatmethodsarehumane.

Bagnatisquotedsayingthat2,600horseshavebeenremovedfromKosciuszkoNationalParksince2003,anddespitepopularbelief,mostweresubsequentlykilled:‘We'vere-homedabout30percent,therestofthemendupbeingtransportedandtakentoknackeries.’

Bagnatcriticisedthestresshorsesendurewhentheyaretrapped.Itismorehumanetoshoothorsesfromhelicoptersorontheground,ortoeuthanasethemintraps,thantotrapandtransportthemtoaknackerytobekilled.Bothalternativesarefarquickerandcheaperaswellasmorehumanebutarenotallowed.InasubmissiontotheVictorianGovernment,theRSPCAendorsedshootingasamethodofcontrol:

‘Webelievethatthebiggestissueinferalhorsemanagementishowstressedthehorsebecomeduringcontrolactivities.Intheabsenceofhumane,effective,non-lethalalternatives,shooting,insomecircumstancesandwhendoneproperly,isgenerallytheleaststressfulmethodofcontrol.Iflethalcontrolbyshootingisproventobenecessary,shootingshouldbecarriedoutinsituandeffectiveprotocolsmustbeemployed.WesupportthestanceonshootingfromSharpandSaunders’Modelcodeofpractiseforthehumanecontrolofferalhorsesandtheassociatedstandardoperatingprocedureforthegroundandaerialshootingofferalhorses…aerialshootinginparticular,whenperformedunderstrictprotocolsbyhighlycompetentoperators,canbethemosthumaneandeffectiveoptioninsituationswherethecountryisruggedandlargescalecontrolisrequired.Concernsthatlethalcontrolmaybe

3http://www.abc.net.au/news/2015-05-23/cull-being-considered-to-combat-growing-number-of-brumbies/64904584NSWNationalParksandWildlifeService(2008)KosciuszkoNationalParkHorseManagementPlan.DepartmentofEnvironmentandClimateChange(NSW)

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publicallyorpoliticallysensitiveorrelativelyexpensiveshouldnotoverrideconcernsforthehorses’welfare.’5

Becausethenumberofhorsesthatcanbetrappedissosmall,theferalpopulationkeepsgrowing,portendingmassiveproblemsinthefuture,includingwidespreaddegradationofhabitats,trafficaccidents,horsestarvationfromdepletionofpastures,accusationsofparkmismanagement,andahorsepopulationsolargethatmasscullswillbecomenecessary,resultinginnegativepublicityandaccusationsaboutaproblemthatwaslefttogetoutofcontrol.

Arecentdevelopmentduringthe2015winterwasthereleaseofaboutonequarterofthetrappedhorses6,mostlybecausetheywerepregnantmaresthatpro-horselobbyistssaidshouldnot,forhumanereasons,betransported.Populationreductionscanhardlybeachievedundersuchcircumstances,giventhelimitednumberofhorsesthatcanbetrapped.

Horsecarcassescanbecomeaproblemwhenlethalmethodsareused.Theirdisposalmaygreatlyincreasethecostsofcontrolandbeimpracticalininaccessiblesites.Whileapulseofhorsecarcassesmaynotleadtoapermanentincreaseofferalcarnivores,ashorsenumbersincreasethenumberofhorsecarcasseswouldbeexpectedtoincrease,evenifthegoalismerelytostabilisethepopulationatahighlevel.

Thecurrentpolicyisostensiblyabouttreatinghorseshumanely,butitisnothumaneforthosehorsesthataretrappedandtransportedtoknackeries,norwillitlookhumaneinthefuturewhenverylargenumbersofhorseswillneedtobeculledbecausethepopulationwasallowedtogrow.

InadjoiningNamadgiNationalPark,intheACT,horsesareculled,andthehorseproblemisnegligible.Victoriadoes,however,havehorseproblemsandcontrolactionsinNSWneedtobeaccompaniedbysimilaractionsovertheborderinVictoria.

InNSW,feralhorsepopulationsareexpanding,notonlyintheAustralianAlps,butinBurragorangValley/Warragamba,GuyFawkesandsomepartsofthenortheast,requiringaresponseinmultiplelocations.

TheNSWDPIhasmappedareaswithferalhorsesandtheirdensities.7Theproblemtodayislargelyonnationalparks.Ifferalhorsepopulationsareallowedtoexpand,theproblemwillincreasinglybeonefacingprivatelandmanagersandallpubliclandmanagers.

Thestateshouldreformitspolicytoembraceaerialcullingandonsiteeuthanasia.ItcanbeassuredofpublicsupportfromawiderangeoforganisationsandpotentiallytheRSPCA.Tokeeptothecurrentpolicyistocourtdisasterinfuture.

Recommendation1:Innationalparkswithferalhorseproblemsreinstateaerialcullingandonsiteeuthanasiatoavertfuturemanagementdisasters.

5VictorianAlpsWildHorseManagementPlanPublicSubmissions.SubmissionNo67,RSPCA(Victoria).22July20136KosciuszkoNationalParkWildHorseManagementPlanReviewUpdateforStakeholders,NSWNationalParksandWildlifeService.3Sep20157http://www.dpi.nsw.gov.au/__data/assets/pdf_file/0019/423352/feral-horses.pdf

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2. DevelopagoatpolicyFeralgoatsareincreasinginnumbersinwesternNSW.8Theyposeaconundrumforthestatebecausetheyaredamagingtolandscapeswhilealsoprovidingincome.9TheMeatandLivestockAssociationispromotinggoatfarming,andbetween2003and2014goatslaughterinAustraliadoubledto2.129million.10AccordingtotheMLA,‘Around90%ofAustralia’smeatproductionisderivedfromrangeland[wild]goats,themajorityofwhicharemusteredfromsemi-aridwesternregionsoftheeasternstates.’

Goatharvestingisoftenseenasawayofreducingferalgoatimpacts,butitcannotbereliedupontodoso.11Indeed,thereisthepotentialformismanagementbysomelandholderstoresultinseriouslanddegradation.Thiscouldoccurwherelandholdersdecidetostockfencedgoats,butbecauseoffailedexpectationsorneglecttheanimalsformferalherdsthatcontributetolanddegradation.Degradationcouldalsoariseiflandholderswithsemiaridpropertiesdamagedbyovergrazingoptforashort-sightedstrategyofrunninggoatsinhighnumberswithoutconsequencefortheerosionandotherharmthiscauses.ThelargenumbersofgoatsevidentonsomepropertiesinwesternNSWsuggestthatmanylandholdersareoperatinglikethis.Theyareobtainingafinancialreturnfromtheland,butatthecostofdegradingthevegetationandsoil.Theirstrategyisnotinthepublicinterest.

AstudyofferalgoatharvestinginWesternAustraliafoundthatharvestingratesfellwhenrainfallwashigh,presumablybecausegoatsweredifficulttoharvestwhenwatersuppliesweredispersedandvehicletracksmuddy.12Harvestingratesalsodroppedwhenthepriceofgoatmeatfell.Thisstudyshowedthatharvestingcannotbereliedupontokeepgoatnumbersatmodestlevelsbecauseharvestingratesaresensitivetopriceandweatherconditions,suchthatlowpricescanseeariseingoatdensities.

Landholdersarecross-breedingferalgoatswithboergoatstobroadenthegeneticbaseofthewildpopulation,includingononepropertyclosetoYathongNatureReserve13,whichfacesseriousferalgoatproblems.Thisbroadeningofthegenepoolcanbeexpectedtoimprovethesuccessofferalgoats,resultinginmoregrazingpressureonfragilelandscapes.

TheNSWgovernmentshouldundertakeaninvestigationthestate’sgoatindustry,withaviewtodevelopingoptionstolimitthelanddegradationthatisoccurring,andwhichmayincreasesignificantlyinfuture.Risingtemperaturesthatcausestresstosheepandcattlecouldseemorelandholdersrelyingongoats,resultinginacceleratedratesoflandscapedegradation.Low(2011)warnedaboutthisscenarioinaclimatechangereportfortheQueenslandGovernment.14

Recommendation2:Developagoatpolicytoensurethatagrowinggoatindustrydoesnotresultinlanddegradationcausedbyincreasingnumbersofferalgoats.

3. DeclaredeerpestsandimprovecontrolmethodsDespitetheeconomicandenvironmentalproblemsdeercausetheyaremanagedundertheGameandFeralAnimalControlAct2002asaresourceforhunters.Theyaretreatedverydifferentlyfromgoats,

8Khairoetal.(2013)9Khairoetal.(2013),Hacker&Alemseged(2014)10MLA(2015)11Khairoetal.(2013)12Forsythetal.(2008)13MLA(2015)14Low(2011)

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whichcausesimilarproblems.AhuntinglicensemustbeobtainedfromtheGameandPestBoardtohuntdeer15.Huntersmustnotpursuethemusingspotlights‘orelectronicdevicesthatenhancevisionorhearing’,orshootthemfromavehicleorhuntthematnight.Therearebaglimits,andthereareclosedseasonsforfallow,red,Wapitiandhogdeer.16

Noneoftheserestrictionsapplytoanyonehuntingrabbits,foxes,goats,pigs,haresorcats.TheDPIwebsitesaysthatclosedseasonsexist‘duetoanincreasedlikelihoodofanimalwelfareconcerns’.Therealreasonistoconservedeerpopulationsforthebenefitofhunters.Thereisnothingdifferentaboutdeerwelfaretojustifyaclosedseasonwhennoneappliestogoats,pigsandotherhuntedspecies.Spotlights,nighthuntingandvehiclesareprohibitedonlybecausetheyareeffective,allowinglargenumbersofdeertobeculledinashortspaceoftime.

Whatiscalled‘EcologicalDeerManagement(EDM)programs’areoperatinginfourNSWStateForests.17Useoftheword‘ecological’isperverse.Theguidelinesspecifythatitisanoffencetoharvest‘morethanonebuckperEDMforestinacalendaryear’.ThisisdespiteHerbivoryandenvironmentaldegradationcausedbyferaldeerhavingbeenlistedasaKeyThreateningProcessinNSW.18TheEDMprogramsareclearlybeingruntoprovideongoingrecreationalopportunitiesforhunters,nottoprotecttheecologicalvaluesofstateforests,whichwouldbebetterservedbyabandoningbaglimits.TheconservationcommunitycommendstheNSWGovernmentforhavingdisbandedtheGameCouncilin2013.TheGameCouncilclaimedtobeprovidingapublicbenefitbycontrollingferalanimalswheninfactitwasservingtheinterestsofhunters,inparticulardeerhunters.Itopposedthedeclarationofdeeraspests.Hunterscanplayausefulroleinpestcontrol,butonlywhentheyoperateunderthesupervisionofauthoritiesaspartofwell-coordinatedcontrolprogramsthatmaintainhighhuntingpressurewhereneeded.

FeraldeerrepresentthegreatestemerginganimalpestprobleminAustralia(StrahanandVanDyck2008).FarmersinNSWareincreasinglycomplainingaboutdeerimpactsonfarmproductivity.19Deerposeathreattovariousrareplantsincludingorchids20andthreatenedspecies21.Populationswererelativelylowuntilthe1990s,butarenowrapidlyincreasinginmanyplaces,partlybecauseofreleasesbyhunterstocreatenewhuntingopportunities.AndrewMoriarty,aformeremployeeoftheGameCouncil,haspredictedthatoncurrenttrends,the‘range,abundanceandimpacts’ofdeerwillspreadtorivalthatofferalpigsandgoats.22TheCSIROhaswarnedthatdeercouldspreadamajorlivestockdisease,bluetongue,whichexistsinAustraliabuthasyettocauseharm,andalyme-likediseaseofhumans.23Fortheseandotherreasons,deershouldbedeclaredapestanimalandastatewidecontainmentstrategydeveloped.

Queensland,SouthAustraliaandWesternAustraliahavedeclareddeerferalpests.Huntersdonotwantdeerclassifiedaspestsbecauseitunderminestheimageofdeerasnoblegameanimalsthatrequireskilltohunt.ButapestclassificationinNSWwouldnothinderhunting,justasitdoesnotlimitthehuntingofotherferalpests.TheNSWgovernmentshouldstopputtingtheaspirationsofhuntersaheadofthecostsimposedonfarmersandtheenvironment.

15http://www.dpi.nsw.gov.au/hunting/hunting-licences16http://www.dpi.nsw.gov.au/hunting/what-can-i-hunt17http://www.dpi.nsw.gov.au/__data/assets/pdf_file/0006/507867/identify-harvestable-deer-ecological-deer-management-forests.pdf18http://www.environment.nsw.gov.au/threatenedspeciesapp/profile.aspx?id=2001219http://www.theland.com.au/news/agriculture/general/news/deer-cost-farmers-dearly/2724010.aspx20Duncanetal.(2009)21NSWScientificCommittee(2004)[sixNSWthreatenedplantspecieslistedatriskfromferaldeer:22Moriarty200923Simpson&Srinivasan(2014)

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FeraldeercannotbeentirelyeradicatedfromNSW,buttheirspreadcanbelimited.Smallerpopulationsaregoodcandidatesforlocaleradication.Targetedeffortshouldcontainanddrawintheoutlimitsoflargerdeerpopulationstopreventfurtherspread.Whereseriousecologicalandeconomicdamageisbeingcaused,ongoingreductionindensitieswillbenecessary.

Capacitytoquicklyrespondtonewdeerreleasesfromillegallyrelocationsorescapeesfromdeerfarmsareessential.Regulationsgoverningdeerfarmfencingandaccountabilityforescapeddeerrequirereview.

TheNSWDPIshouldinvestmoreindevelopingnewmethodsofdeercontrol,includingtraps,baitsandaerialshooting.Becauserecognitionofdeerasmajorpestshaslaggedbehindrecognitionofmanyspecies,adiversetoolkitofcontrolmethodshasnotbeendeveloped.AtpresentDPIresearchinferaldeercontrolisregardedastoopoliticallysensitiveandhasstopped.

Recommendation3:

a. Declaredeerpests,removeanylimitationsontheirharvestsothattheycanbemoreeasilycontrolledandimplementastatewidecontainmentprogram.

b. Reviewregulationsfordeerfarmingtoreducetheprobabilityofescapesc. Developabetterdeercontroltoolkitincorporatingawiderrangeofcontrol

techniques.

4. ReducewilddogcontrolTheconservationcommunitydoesnotsupportthewidespreadkillingofdingoesandwilddogsbygovernmentagencies.Thisrepresentsapublicsubsidyforagriculturalproductionatacosttotheenvironment.Dingoesandwilddogsplayausefulecologicalrolebypreyingonferalpigs,goats,deer,andalsokangaroos,whichinhighnumbersdepleterareplants.Dingoesandwilddogssuppressfoxes,andthereisevidencethattheyalsosuppressferalcats,althoughscientistsdisagreeabouttheextenttowhichthisoccurs.Theconservationcommunityhopesthatfutureresearchwillclarifytheroledingoes/dogsplayinsuppressingcatsandfoxes,andhopesthatNSWpolicywillbeadjustedtoreflectthis.

Recommendation4:Reducegovernmentinvestmentinwilddogcontrol.

5. ProhibitreleaseofgamebirdsTheNSWDPIlistseightbirdspeciesasgamebirds24,sevenofwhichdonotoccurinthewildinNSW(seeTable1).Allsevenspecieshaveformedferalpopulationselsewhereintheworld25.FiveofthemhaveformedferalpopulationsinotherstatesofAustralia26.Thesebirdscanonlybehuntediftheyarereleasedintooutdoorsituations,creatingariskthatferalpopulationscouldform.HuntershavebeenresponsibleforsomeofAustralia’sworstpestproblems,includingtheredfox,anagentofextinctionandmajoragriculturalpest.Ducks,pigeons,quail,mynasandstarlingsarealreadyavailabletohunters,

24http://www.dpi.nsw.gov.au/hunting/what-can-i-hunt25Long(1981)26Christidis&Boles(2008)

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asareawiderangeofferalmammals.ExoticgamebirdsshouldberemovedfromtheGameandFeralAnimalControlAct2002andtheirreleaseintowildorsemi-wildsituationsprohibited.

Table1.NSW‘GameBirds’

GameBird LocationsofFeralPopulations

BobwhiteQuail WestIndies,NewZealand,England

CaliforniaQuail NorfolkIsland,KingIsland(Tasmania),NewZealand,Chile,Argentina,Hawaii

GuineaFowl NorthQueensland,SouthAfrica,Cuba

Partridge Europe,Canada,Mexico,Hawaii,NewZealand

Peafowl IslandsinTasmania,WA&SA;Pakistan,California,Hawaii

Pheasant KingIsland(Tasmania),RottnestIsland(WA),NewZealand

Turkey King&FlindersIslands(Tasmania),Hawaii

Recommendation5:RemoveexoticgamebirdsfromtheGameandFeralAnimalControlAct2002andprohibittheirreleaseintowildorsemi-wildsituations.

6. AssessdovesandactaccordinglyThebarbarydovewasaddedtothelistofAustralia’swild-breedingbirdsin2008,27followingevidenceofaferalpopulationbreedinginAliceSprings,whichhassincebeenremoved.Adelaidealsohasarecentlyestablishedferalpopulation,whichhasnotbeenremoved.BarbarydovesareonthelistofapprovedbirdsforNSW,butthereiseveryprospectofthemformingferalpopulations–ifbirdsescapeorarefreed.

AnotherapprovedbirdinNSWisthelaughingdove,despitetheexistenceofaferalpopulationoccupyingalargeareaofSouth-westernAustralia.BothspeciesposeariskforNSW.Abancouldproveunwiseifitresultedinaviaryownersreleasingtheirbirds.NSWshouldinvestigatethestatusofthesespeciesincaptivityinNSWandseeifapolicyiswarrantedtoreducetheriskofferalpopulationsforming.

Recommendation6:InvestigatethestatusofbarbaryandlaughingdovesincaptivityinNSWtoseeifapolicyiswarrantedtoreducetheriskofferalpopulationsforming.

7. PhaseoutringneckparrotsTheIndianringneckparrotoftenescapesfromcaptivityinAustralia,withevidenceofbreedingnotedinWesternAustralia.28Ithasformedferalpopulationsinmanypartsoftheworld,includingEngland,Africa,AsiaandNorthAmerica.29TheDepartmentofAgricultureandFoodinWesternAustraliaconductedascientificriskassessmentfindingthatthisparrotposesanextremethreat(thehighestof

27Christidis&Boles(2008)28https://www.agric.wa.gov.au/birds/indian-ringneck-parakeet-animal-pest-alert?page=0,229Long(1981)

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fourcategories)toAustralia.30ThisassessmentwasendorsedbythenationalInvasivePlantsandAnimalsCommittee.31Theringneckisaseriouscroppestinitsnativerangeandcouldcompetewithnativeparrotsforfoodandhollows.NSWshouldintroduceaphase-outofthisspecies,allowingpetownerstokeepthering-neckstheyhave,butnottobreedorreplacethem,leadingtoaprohibitiononthisspecieswhennocaptivebirdsremain.

Recommendation7:Introduceaphase-outofIndianringneckparrots,allowingpetownerstokeepthering-neckstheyhave,butnottobreedorreplacethem,leadingtoaprohibitiononthisspecieswhennocaptivebirdsremain.

8. RequirefishwarningsMorethananyothersector,aquariumhobbyistshavethepotentialtoincreasethenumberofintroducedspeciesinNSW.Themajorpathwayofintroductionispeoplewhodisposeofunwantedaquariumfishbyreleasingthemintowaterways.Exoticsnailsandwaterplantsalsoescapeviathispathway.TheNSWGovernmentrecognisestheriskandhaswebsiteinformationaboutappropriatedisposaloffish.Butthisinformationcaneasilybemissedbythepublic.Thegovernmentshouldgofurtherandintroducealegislativerequirementthatshopssellingfishdisplayasignwarningagainstdisposaloffish,snailsandplantsinwaterwaysandsuggestingsafealternatives.Thisshouldbesupportedbyanongoingeducationprogram.Theimpostonstoresisjustifiedbytheseriousthreatsposedtowaterways.RisingtemperatureswillincreasethenumberofexoticfishspeciesthatcanestablishinNSWwaters.Thenortheastofthestateisespeciallyatrisk.

9. Additionalworkisrequiredatthenationalleveltolowertheincidenceoffreshwaterescapesandthisisdiscussedbrieflyinsection11:‘Adoptanationalleadershiprole’.

Recommendation8:Introducealegislativerequirementthatshopssellingaquariumandpondfishdisplayasignwarningagainstdisposaloffish,snailsandplantsinwaterwaysandsuggestingsafealternatives.

10. Developared-earedsliderpolicyNSWhassmallwildpopulationsofthered-earedslider(Trachemysscripta),afreshwaterturtleontheIUCNlistof100examplesoftheworld’sworstinvasivespecies.32AriskassessmentbytheQueenslandgovernmentfound‘considerableevidencethatred-earedsliderscannegativelyaffectlocallynativeturtlespecies’–theymaturemorequicklythanlocallynativeturtlespecies,aremoreaggressive,havehigherfecundityandgrowlarger.33Theycouldimpactonrarefrogsandotheraquaticprey.Tadpolesofnativefrogspeciesmaynotbeabletorecogniseanewexoticpredator.Thereisasignificantriskofcaptivebredred-earedsliderturtlesspreadingdiseasesandparasitesintowildreptilepopulations.34Thereisevidencethatamalaria-likebloodparasitewastransferredtotwonativeturtlespeciesfrom

30https://www.agric.wa.gov.au/birds/indian-ringneck-parakeet-animal-pest-alert?page=0,231https://www.agric.wa.gov.au/birds/indian-ringneck-parakeet-animal-pest-alert?page=0,232Loweetal.(2000)33CsurhesandHankamer(2012)34CsurhesandHankamer(2012).IllegallysmuggledspecimensarelikelytohavepassedthroughAsianwetmarkets,wheretheyarehousedinterribleconditionswithmultiplespeciesfromallovertheworld.Reptilediseasesarehardtodetect,withsomehavinglongincubationperiods(ScottO’Keefe,personalcommunication).

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infectedred-earedsliderturtlesintheLaneCoveRiver,Sydney.35Burgin(2006)saidtheyshow‘allofthehallmarksofbeingthereptileequivalenttothecarp’fortheirimpactsonwetlandbiodiversity.

InQueenslandthisturtlewasbannedfrompossessionandsalein1985,andwhenferalpopulationswerediscoveredin2004,aneradicationcampaignwasmounted.Illegallyheldpetswerevolunteeredafterapublicitycampaignwasmounted.Theeradicationwassuccessful.SouthAustralia,Queensland,VictoriaandWesternAustraliahaveissuedpestalertsandpublicinformationaboutthered-earedslider.36WesternAustraliahasalsorunaneradicationcampaignwithcommunitysupport,recentlyachievingsuccess.37

InNSWthisturtlecannotbelegallykeptasapet,butthereappearstobenoseriousefforttocontainitsspread.ItisnotlistedontheDPI’spageaboutpests,noronanOfficeofEnvironmentandHeritagepageaboutpests(thoughitismentionedonanOfficeofEnvironmentandHeritagepageaboutfreshwaterturtles).

Burgin(2006)wascriticaloftheNSWgovernmentforshowingnointerestinthediscoveryofslidersatYerambaLagoon(SouthSydney):

“theimplicationsofthefindwerenotrecognised,despiteprovidingevidencethatfiveofthesixfemalescapturedhaddevelopingovarianfollicles(theotherwasimmature)andtherewasevidencethattheywerelayingeggsinthearea.Thedatawereignoredbygovernment,anddismissedbyscientificreviewers,asbeinginconsequentialbecauseofthelownumberscaptured.”38

ThereisadramaticdifferenceintheapproachestakentowardsthispestspeciesbytheQueenslandandNSWgovernments.Queenslandhaspublishedariskassessment39,andrunaneradicationcampaignassociatedwithamediacampaign.VictoriaandWesternAustraliahavealsotakenpromptactiontoremoveslidersfromwaterways.40

TheNSWgovernment,bycontrast,hasdonealmostnothing.ThisisdespiteHendersonandBomford(2011),intheirreportDetectingandpreventingnewincursionsofexoticanimalsinAustralia,recommending‘prioritybegiventoeducatingthepublic,particularlythroughmediacoverage,abouttherisksposedbyred-earedsliders,sothatpeoplearelesslikelytokeeporreleasethem,andaremorelikelytorecogniseandreportsightings.’

Wearenotsayingthatred-earedsliderscannecessarilybeeradicatedfromNSW,buttheirstatusinstateshouldbeassessed,andpoliciesdevelopedtopreventfurtherspread.Thepossibilityoferadicationshouldbereviewed.Thereshouldbemorepublicinformationabouttheenvironmentalthreattheypose,inrecognitionofthefactthattheyareoneofthemostcommonsmuggled,illegallykeptandillegallyreleasedwildlifespeciesinAustralia.Thereisanurgentneedtoensuretheydonot

35DepartmentofAgricultureandFood(WA)(2009)36https://www.agric.wa.gov.au/amphibians-and-reptiles/red-eared-slider-animal-pest-alerthttp://pir.sa.gov.au/__data/assets/pdf_file/0004/231961/Red_earedSlider.pdfhttp://agriculture.vic.gov.au/agriculture/pests-diseases-and-weeds/pest-animals/a-z-of-pest-animalsandhttps://www.daf.qld.gov.au/plants/weeds-pest-animals-ants/pest-animals/a-z-listing-of-pest-animals/photo-guide-to-pest-animals/red-eared-slider-turtle37http://www.pestsmart.org.au/last-known-red-eared-slider-in-western-australia-captured/?utm_source=Invasive+Animals+CRC+subscriber+list&utm_campaign=cff662851c-Feral_Flyer_issue_281_17_Sept_2015&utm_medium=email&utm_term=0_dca65e59c7-cff662851c-3626093338Burgin(2006)39CsurhesandHankamer(2012)40DepartmentofAgricultureandFood(2009);DepartmentofEnvironmentandPrimaryIndustries(nd)

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establishintheMurray-Darlingcatchment,where,likecarp,theycouldcontributetoalossofenvironmentalvalues.

Recommendation9:Developared-earedsliderpolicytotoensurethereisnofurtherspread,toreviewtheprospectsoferadicationandprovidemorepublicinformationaboutthethreatstheypose.

11. BuildredfinbarrierIntroducedredfinperchposeathreattotheendangeredMacquarieperch.TheywererecentlydetectedintheHawkesbury-Nepeancatchment,whichhasaviableMacquarieperchpopulation.JamesT.Knight(2010)ofthePortStephensFisheriesInstitutehaspreparedadetailedreportadvocatingabarrierbeinstalledontheKedumbaRivertopreventredfinfromcolonisingthisriverfromthedamandharmingtheperchpopulation.TheNSWgovernmentshouldactonthisrecommendation,andinvestigatewhetherotherMacquarieperchpopulationscanbeprotectedwithbarriers.

Recommendation10:BuildabarrieraccordingtotheguidelinesofKnight(2010)topreventredfinperchcolonisingtheKedumbaRiverandharmingendangeredMacquarieperch.

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Generalrecommendations

12. AdoptanationalleadershiproleAsthestatewiththelargesthumanpopulation,NSWshouldbeprovidingagreaterleadershiproleinnationalpolicyonbiosecurityandinvasivespecies.Nationalbiosecuritypolicyisdependentonacooperativeapproachwithothergovernments,largelyguidedbytheIntergovernmentalAgreementonBiosecurity.NSWshouldexertmoreinfluencetoachievemuchneededreforms,forexamplebyacceptingtherecommendationstothe2015SenateInquiryintoenvironmentalbiosecurity,supportingtheproposaltoestablishEnvironmentHealthAustralia41,improvingtheNationalEnvironmentalBiosecurityResponseAgreement,improvingtransparencyandinvolvementoftheenvironmentalsectorinbiosecuritydecision-making,andclosingoffpathwaysforhighriskenvironmentalinvasivespecies.AquaticfreshwaterfishimportsareanobviousareawhereNSWcouldprovideneededleadership.

LeadershipintheseareaswouldnotonlybenefitNSWbutallofAustralia.

Recommendation11:Provideagreaterleadershiproleinnationalpolicy,forexamplebyacceptingtherecommendationstothe2015SenateInquiryintoenvironmentalbiosecurity,supportingtheproposaltoestablishEnvironmentHealthAustralia,improvingtheNationalEnvironmentalBiosecurityResponseAgreement,improvingtransparencyandinvolvementoftheenvironmentalsectorinbiosecuritydecision-making,andclosingoffpathwaysforhighriskenvironmentalinvasivespecies.

13. DevelopaforesightingcapacityWhenmanagingpests,preventionisfarbetterthancure,andearlyinterventionisfarmorecosteffectivethanmanagingpeststhathavebecomeabundant.Toanticipatenewandemergingpestproblems,NSWshoulddevelopaforesightingcapacity.Aforesightingunitcouldmonitornewtrendsinaquacultureandanimalhusbandryandnewlyestablishedpestsinotherstates.Examplesofwhatshouldbemonitoredinclude:onlinepetstores;huntingmagazinesthatdiscussnewhuntingopportunities;thegoatindustry;interstatepestincursionsandestablishmentssuchasthatofthesmoothnewt;theaquariumindustry;changingpublicexpectationsaboutanimalwelfare;climatechangeanditsimpactsonpestsandproduction.

The2009HawkereviewoftheEPBCActidentifiedtheneedtofocusonfuturethreatsandrecommendedtheestablishmentofafederalforesightingunittoidentifypotentialandfuturethreatsandsetinplacepreventativestrategies42.TheestablishmentofaNSWforesightingcapabilitywouldaddressthisgapatthenationallevelandprovidespecificadvicerelevanttoNSW.

Aforesightingunitwouldachievemoreefficiencyifithadafocusonallpests(weeds,invertebratesandmarinespeciesaswellasferalanimals).

Recommendation12:Developaforesightingunittomonitorpesttrendsandbetterpredictfutureproblems.

41CoxandBooth(2013)andhttp://invasives.org.au/project/environment-health-australia/42Recommendations23(2)and(3)inHawke(2010)

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14. ReformfundingprocessesISCspokewithacommercialhunterwhodoescontractworkfortheNSWNationalParksandWildlifeService,cullingferalanimals,whichhesaidwasoftenuselessbecausefundingwassoepisodic.FundsoftenbecameavailableneartheendofafinancialyearandhadtobeacquittedduringlateJune,which,becauseofweatherconditionsatthattime,wasoftennotconducivetohuntingsuccess.Alternatively,fundingwasavailableforoneortwoyearsbutnotforthenext.Thehuntersaidthattwoyearsoffoxordeercontrolcaneasilybeundonebyoneyearofnocontrol,achievingnolongtermgain.Hesaidcontrolprogramsshouldrunforatleastfiveyearstobeeffective.Localgovernmentalsofindsitselfinthissituationwhenfederalgovernmentfundingforferalanimalcontrolisnotfollowedbyafurthergrant.Awell-recognisedprincipleofpestcontrolisthatprogramshavetobesustainedtobeeffective.Theissuespaperreleasedinconjunctionwiththisreviewmentionstheneedto‘ensurelongtermfunding’,andonemeasureofthesuccessofthereviewwillbewhetheritestablishesreliablemechanismstoensurelongtermfunding.

Oneobstacletocontinuityoffundingariseswhengovernmentsrespondtostrongsectorpressurebyreallocatingbudgets.Oneexampleofconcernismorepublicfundinggoingintowilddogcontroltotheneglectofotherpests.Spendingisoftenreactive,aswhenmorefundingisgivenforpigcontrolaftertheirnumbersexpandafterrain,whenthesamefundingwouldhaveachievedmuchmorehaditbeenspentonpigcontrolduringpreviousdryyearswhennumberswerelower.

Fundingforpublicinterestpeststhatcauseenvironmentaldamage,suchascats,israrelyprovidedbygovernment,exceptonNPWSreserves.Incontrast,thegovernmentreadilyfundsprivateinterestpestcontrol.Mostpestsdoinfacthaveenvironmentalandagriculturalimpacts,butgovernmenthastypicallyprioritisedspendingonagriculturalimpacts.

Fundingshouldbereallocatedtoensuremorelongtermconsistencyoffunding,andmorepublicfundingofpublicinterestpests,bothonpublicandprivateland.Theprivatesectorshouldbefundingpestcontrolthatbenefitscommercialinterests.Theroleofstategovernmentinprivateinterestpestcontrolshouldfocusoncollaboration,coordination,researchandregulation.

Afundamentalproblemwithferalanimalfundingisthatitisofteninadequatetoachievetherequiredgoals.Thisproblemisexacerbatedwhenfundingissoepisodicthatwhatisspentdoesnotachieveanylongtermresult.

Reformtofundingprocessesisurgentlyneeded.

Recommendation13:Reformfundingprocessessothatlong-termfundingofpestcontrolisachieved,andfundingachievespublicgoodratherthanprivategain.

15. CreateanadvisorycommitteeThereiscurrentlynoformalmechanismforregularreviewofNSWpestmanagementissuesthatinvolvesgovernmentandstakeholderinterests.ThecreationofthenewNSWbiosecurityadvisorycommitteedoesprovideahighlevelchannel,butthereisnoequivalenttotheNSWNoxiousWeedsAdvisoryCommittee(duetobereconstitutedwhentheNSWBiosecurityActcommences).Apestanimaladvisorycommitteewouldprovideausefulopportunitytoreviewtheoperationofcurrentpestmanagementactivities,identifygapsandopportunities,respondearlytofuturerisksidentifiedduringforesightingandimproveengagementandcooperation.Suchacommitteewouldalsoboostconfidenceincollectivepestmanagementprogramsandimproveaccountability.

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Recommendation14:Establishapestanimaladvisorycommitteetoreviewtheoperationofcurrentpestmanagementactivities,identifygapsandopportunities,respondearlytofuturerisksidentifiedduringforesightingandimproveengagementandcooperation.

16. ReformclassificationsundertheNon-indigenousAnimalsRegulation2012

AlthoughweendorsethegeneralapproachtakenundertheNon-indigenousAnimalsRegulation2012totheclassificationofexoticanimals(Reg4),wequestiontheconsistencyoftheclassificationsinSchedule1.ItwasintendedthattheclassificationsbebasedonriskassessmentsconductedfortheVertebratePestsCommittee.However,someclassificationsarebasednotonriskassessmentsbutaretheconsequencesofpoliticalpressureappliedbythosewhowishtokeepcertainspeciesaspetsorforcommercialorrecreationalreasons.

Forexample,ferretswereassessedbytheVertebratePestsCommittee(2007)asan‘extreme’threatbuthavebeenclassifiedundertheregulationonlyascategory4(animalsthatwouldbeunlikelytopresentathreattotheenvironment,agricultureorpersonsorgreatlyworsenanexistingthreatiftheyescapedintothewild,theimportationandkeepingofwhicharenotrestricted).

BlackbuckwereassessedbytheVPCasa‘serious’threat,whichjustifiesclassificationundertheregulationincategory2.Butpresumablyduetopoliticalpressurefromthosewhowishtoruncommercialhuntingenterprisesblackbuckhavebeenassignedtocategory3b(animalsthathavethepotentialtoestablishinthewildapopulationthatwouldpresentanewthreattotheenvironment,agricultureorpersonsoraggravateanexistingthreatandthatmayonlybekeptunderlicence).

BantengandbisonwereeachassessedbytheVPCasan‘extreme’threat,whichjustifiesclassificationundertheregulationincategory1a.Instead,presumablyforthesamereasons,theyalsohavebeenassignedtocategory3b.

Thereareseveralothersuchinconsistencies.All‘game’birdshavebeenlistedascategory4nomatterwhattheVPC-assessedrisk.

TheseinconsistenciesunderminetheintegrityofNSW’ssystemtopreventnewinvasivevertebratesestablishinginthestate.

Decisionsaboutspeciesclassificationsshouldbebasedonsciencenotlobbyingpressure.Thepotentialcoststothecommunityandtheenvironmentoftheestablishmentofyetmoreexoticspeciesinthewildfaroutweightheslightbenefitslikelytoaccruetoafewindividualsfrombeingpermittedtokeepsuchanimals.

TheriskappliesbeyondNSWasanimalsoriginatinginNSWmaybedeliberatelyoraccidentallytakentootherstates.Itisappropriatetoapplytheprecautionaryprinciplegiventhelong-termhighcostpotentialofinvasivespecies.Thisshouldincludetakingintoaccountthepropensityforhumanerror,irrationalityorselfishness;itisreasonabletoassumeworstcasescenariosforexoticanimals.

WerecommendthatthecriteriafortheNIAcategoriesbeappliedconsistentlytoavoidpoliticaldecisionsthatarenotinthepublicinterest.

Recommendation15:ReviseclassificationsundertheNon-indigenousAnimalsRegulation2012inSchedule1toalignwiththeriskassessmentsconductedfortheVertebratePestsCommittee.

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17. FundsocialresearchThekeytoreducingmanyinvasivespeciesthreatsisinchangingcommunitybehaviour.Seriousproblemsarecreatedwhentilapia,redfinandotherfisharereleasedintowaterways,deerandpigsarereleasedtocreatehuntingopportunities,andexoticreptilesaresmuggledintothecountryandlocallytraded.Lawsagainstsuchactivitiesdonotstopthemoccurringinallcases,buttheremaybeopportunitiestopromotebehaviouralchangesifthemotivesoftheparticipantsarebetterunderstood.Socialresearchcanalsobethekeytodevisingpublicallyacceptableprogramsforcullingferalhorses,andforrespondingappropriatelytowelfareconcerns.TheNSWDPIshouldbefundingsocialresearchasonewayofachievingbetteroutcomesoninvasivespecies.Itshouldalsobedrawingextensivelyonwhateversocialresearchexists.Pestexpertsareseldomexpertsinhumanbehaviour,andtheyshouldbedrawingontheexpertiseofthosewhohavestudiedhumanthoughtprocesses.

Recommendation16:Fundsocialresearchintothebehavioursofthosewhodeliberatelyorunwittinglyspreadpests,toguidepolicyresponses.

18. AcknowledgewelfareconcernsTheNSWDPIshouldacknowledgegrowingpublicconcernsaboutanimalwelfarebybecomingmorepro-activeinitsoperationsandthemessagingitundertakes.Welfareisanissuethatwillonlygrowinimportance.Researchintothemosthumanemethodsofcontrolshouldbefunded.Thereisaneedtoexplainthatkillingasmallernumberofanimalstodaycanbefarkinderthanthealternatives:feralherbivoresstarvingbecausetheyhaverunoutoffood,orverylargecullsbecomingnecessarywhenpopulationsbecomeverydamaging.Itshouldalsobeexplainedthatferalanimalscausesufferinganddeathwhentheypreyonnativeanimals,orconsumepasturesandotherplantsthatnativemammalswouldotherwiseeat.AustraliaisfortunateinhavingtheRSPCAplayingaconstructiveroleinthisareabytryingtobalancewelfarewiththeneedtocontrolsomespecies.

ArecentarticleonTheConversationbytwouniversityacademicsshowshowfarthewelfareargumentisbeingpushed.43ArianWallachandDanielRamparguethatifeveryonestopskillingcats,Australia’sthreatenednativespecieswillbenefit,andwewillbenefitaswellbyunburdeningourselvesofcausingsufferinganddeathtocats.

Recommendation17:NSWDPItoacknowledgegrowingpublicconcernsaboutanimalwelfarebybecomingmorepro-activeinitsoperationsandthemessagingitundertakes.

19. UpdatedistributionmapsTheNSWDPIhasonitswebsitemapsofferalanimaldistributions44,butthesedatebackto2009.Forsomespecies,especiallydeer,thesemapsarelikelytobeoutofdate.Updatedmapsshouldbepublishedalongsidetheseoldermapstobetterinformferalanimalmanagement.Compilationofprojectedferalanimalexpansionunderdifferentscenarioswouldalsohelpsupporttimelyaction.ArecentlypublishedstudyforTasmania(Pottsetal.2015)providesausefulmodel.

Recommendation18:UpdateNSWDPI2009websitemapsofferalanimaldistributions.

43https://theconversation.com/lets-give-feral-cats-their-citizenship-4516544http://www.dpi.nsw.gov.au/agriculture/pests-weeds/vertebrate-pests/distribution-maps-for-vertebrate-pests

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20. RejectbountiesTheNSWGovernmentrecognisesthatbountiesareanineffectivemeansofcontrol,butsomeorganisationsmakingsubmissionstothecommissionmayargueintheirfavour.Reviewsofpastbountyprogramsshowclearlythattheydonotwork45,andthegovernmentshouldresistanypressuretointroducethem.

Recommendation19:Rejectanycallstointroducebounties.

21. BewaryofcommercialisationThecallisoftenmadetotreatpestsasresourcestobeharnessed.Forexample,whencamelnumbersincentralAustraliagrewtolevelsindicatingthatamajorcullwasneeded,actionwasdelayedforsomeyearsbyargumentsthatthecamelsrepresentedaresourceforindigenouscommunitiesandotherlandholders46.Becausemostcamelsoccurinremoteregionsfarfromabattoirs,nomarketfortheirmeatmaterialised,butthetalkaboutthemhavingvaluedelayedaction.Underothercircumstancesthecreationofamarketcreatesadisincentivetoremovepestproblems.AsNunezetal.(2012)havenoted:‘Aprominentproblemisthatcreatingamarketengenderspressuretomaintainthatproblematicspecies.’Thewarningstheyraiseshouldbeheeded.Evidencefromaroundtheworldconfirmsthatthecreationofmarketsforpestsseldomreducespestproblemsandoftenbecomescounterproductive.

Recommendation20:Bewaryofproposalstoreduceferalanimalnumbersbycreatingmarketsfortheirproducts.

45Forexample,FairbridgeandMarks(2005)andHassallandAssociates(1998)46Norris&Low(2005)

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