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APP201517- Reassessment of Approvals for New Organisms in Zoos June 2013

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APP201517- Reassessment of Approvals for New Organisms in Zoos June 2013 EPA staff report APP201517- Reassessment of approvals for new organisms in zoos June 2013 www.epa.govt.nz 2 APP201517 EPA Staff Report Executive Summary and Recommendations In March 2013, the Zoo and Aquarium Association (ZAA) made an application to the Environmental Protection Authority (EPA) seeking to reassess animals1 held in containment in zoos in New Zealand. The applicant is seeking to gain clarity around the controls that govern the containment of their animals, as some animals have multiple approvals, some of the Hazardous Substances and New Organisms (HSNO) Act (the Act) controls linked to their approvals are inconsistent, and some have deemed approvals2. This application is for the reassessment of zoo animals approved for importation into containment under s45 of the Act. Section 63 of the Act provides for a full reassessment of approvals for new organisms. This application also calls for a review of the controls imposed on zoo animals that were deemed approved under the transitional provisions of the Act. A review is possible under s45B of the Act, however the Act does not prescribe a review process, so the EPA is combining the review process with the reassessment, and following the process that is specified for a reassessment under s63 of the Act. Consequently all matters considered for a new application have been considered for this application. In particular the following areas are in scope for this report, as they were identified as potential areas of concern: • the purpose for which the import of the organism is approved • on-going maintenance of containment • the containment controls that specify the conditions that the organisms must be imported and maintained under. EPA staff have developed a set of new, outcome-based controls that we propose should be applied to existing and future zoo animal approvals. Having considered the organisms and their ability to escape containment, and given the controls proposed to mitigate the likelihood of their escape, it is recommended that the organisms be approved for import into containment subject to the proposed controls. 1 The reassessment application does not include butterflies, marine invertebrates or fish. 2 Deemed approvals exist for those animals that were in New Zealand zoos before the Act came into force (pre 29 July 1998). June 2013 3 APP201517 EPA Staff Report Table of Contents Executive Summary and Recommendations ............................................................................................ 2 List of tables: ........................................................................................................................................... 4 1. The application process ....................................................................................................................... 5 1.1. Purpose of this document .............................................................................................................. 5 1.2. Application process ....................................................................................................................... 5 1.3. Submissions .................................................................................................................................. 6 2. Consideration process ......................................................................................................................... 7 2.1. Provisions for reassessment ......................................................................................................... 7 2.2. Current controls imposed on organism ......................................................................................... 8 2.3. Identification of the organisms ....................................................................................................... 9 3. Purpose of the approvals ..................................................................................................................... 9 3.1. Current situation ............................................................................................................................ 9 3.2. Broadened purpose ..................................................................................................................... 10 3.3. Proposed purpose for approvals ................................................................................................. 11 4. Evaluation ............................................................................................................................................ 12 4.1. Introduction .................................................................................................................................. 12 4.2. Adverse effects ............................................................................................................................ 12 4.3. Beneficial effects ......................................................................................................................... 15 4.4. Inseparable organisms ................................................................................................................ 16 5. Proposed controls regime .................................................................................................................. 17 5.1. Introduction .................................................................................................................................. 17 5.2. Concerns with current controls .................................................................................................... 18 5.3. Controls proposed by the applicant ............................................................................................. 19 5.4. Proposal for new controls regime and implementation ............................................................... 19 5.5. Assessment of the adequacy of containment ............................................................................. 23 6. Summary and recommendations ...................................................................................................... 24 June 2013 4 APP201517 EPA Staff Report Appendix 1: Organisms and approval numbers .................................................................................... 25 Appendix 2: Summary of Submissions Received through Public Notice ........................................... 32 Appendix 3: Submission from the Department of Conservation.......................................................... 33 Appendix 4: Submission from the Ministry for Primary Industries ...................................................... 35 Appendix 5: Submission from the Ministry for Primary Industries – Animal Welfare Group ............ 39 Appendix 6: Taxonomic updates ............................................................................................................. 40 Appendix 7: Incidents involving new organisms in zoos ...................................................................... 41 Appendix 8: Controls proposed by ZAA, and EPA staff comments .................................................... 46 Appendix 9: Proposed controls and Schedule 3 of the HSNO Act ...................................................... 50 List of tables: Table 1:Organisms approved under section 45 ......................................................................................... 25 Table 2: Deemed approved organisms ...................................................................................................... 28 Table 3 Summary of submissions received during public notification ........................................................ 32 Table 4: Containment breaches (escapes) reported under the HSNO regime .......................................... 41 Table 5: Containment breaches (unauthorised entry) reported under the HSNO regime .......................... 45 Table 6: Controls proposed by the applicant, their reasoning and the response from EPA staff............... 46 Table 7: Proposed controls in relation to Schedule 3 Part 2 ...................................................................... 50 June 2013 5 APP201517 EPA Staff Report 1. The application process 1.1. Purpose of this document 1.1.1 This document has been prepared by Environmental Protection Authority (EPA) staff; Asela Atapattu (Manager, New Organisms), Kate Bromfield (Senior Advisor, New Organisms), and Donna Noonan (Advisor, New Organisms), to advise the Hazardous Substances and New Organisms (HSNO) Decision Making Committee (the Committee) on the application, consideration process, and our risk assessment of application APP201517. This document discusses information provided in the application, submissions and other readily available sources. 1.2. Application process The application 1.2.1 Application APP201517 seeks the reassessment of animals classed as new organisms approved to be held in zoo containment facilities in New Zealand. A full list of animals covered is provided in Table 1 (organisms approved under section 45) and Table 2 (deemed approved organisms) in Appendix 1. The applicant has requested that consistent controls be applied to all new organisms held in zoo containment facilities. This will ensure clarity for the operation of containment facilities and for MPI enforcement agents. The applicant has also proposed 15 additional controls that they consider would assist in improving the short, medium and long term containment of zoo animals. 1.2.2 The application was lodged on 11 March 2013. 1.2.3 The applicant is the Zoo and Aquarium
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