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AnimalWelfareStandardsPublicConsultationPOBox5116BraddonACT2612BYEMAILTO:publicconspoultry@animalhealthaustralia.com.au

Re:ResponsetotheProposedDraftAustralianAnimalWelfareStandardsandGuidelinesforPoultry

26February2018

Preparedby

SarahdeWit,TammiJonas,CourtneyYoung

AustralianFoodSovereigntyAlliance

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CONTENTS

26FEBRUARY2018 1

ABOUTTHEAUSTRALIANFOODSOVEREIGNTYALLIANCE(AFSA) 3

BACKGROUND 5 CONTEXTTOTHEANIMALWELFARESTANDARDSANDGUIDELINES 5 CURRENTWELFARESTANDARDSANDGUIDELINES 6 PROPOSEDSTANDARDSANDOPTIONS 7 ISSUESWITHTHEPROPOSEDSTANDARDS 8

EXECUTIVESUMMARY 8 WHATTHEPROPOSEDDRAFTMEANSFORFARMERS 9 WHATTHEPROPOSEDDRAFTMEANSFOREATERS 9 WHATTHEPROPOSEDDRAFTMEANSFORPOULTRY 9 WHATAFSAMEMBERSWANT 9 LISTOFRECOMMENDATIONS 10

IDENTIFIEDISSUESWITHTHEPROPOSEDSTANDARDS 11

THEEXCLUSIONOFALTERNATIVEPRODUCTIONSYSTEMS 11 INADEQUACYOFSTUDIESUSED 14 ‘SYSTEMICCOLLUSION’ANDFAILURETOMEETCOMMUNITYEXPECTATIONS 17 HOUSINGPOULTRYINCAGES 18 PROVISIONOFLITTERANDDUSTBATHS 22 PROVISIONOFNESTSPERCHESANDLEVELS 23 FURNISHEDCAGES 23 MAXIMUMSTOCKINGDENSITIES 24 STANDARDSONBEAKANDBILLTRIMMING 25 STANDARDSONSTUNNING,SLAUGHTERANDON-FARMKILLING 27 LIGHTING 29 INDUCEDMOULTING 30 REGULATORYISSUES 32

IMAGESOFPASTUREDPOULTRY 35

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AbouttheAustralianFoodSovereigntyAlliance(AFSA)TheAustralianFoodSovereigntyAlliance(AFSA)isacollaborationoforganisationsandindividuals

workingtogethertowardsafoodsysteminwhichpeoplecancreate,manage,andchoosetheirfood

supplyanddistributionsystem.AFSA isan independentorganisationand isnotalignedwithany

politicalparty.Wehavemorethan700individual,organisational,business,andfarmmembers.

In2014weestablishedaproducers’branchofAFSA,FairFoodFarmersUnited(FFFU)toprovidea

balancedvoicetorepresentfarmersandadvocateforfairpricingforthosesellingtothedomestic

market,connectAustralianfarmersforfarmer-to-farmerknowledgesharing,andtobeavoicefor

farmer-friendlyregulationsandstandards.

Wearepartofarobustglobalnetworkoffarmer-ledorganisationsinvolvedinfoodsecurityandfood

sovereignty policy development and advocacy. We are members of the International Planning

Committee for Food Sovereignty (IPC), Urgenci: the International Network for Community-

SupportedAgriculture,andLaViaCampesina–theglobalmovementofpeasantfarmers,andwehave

strong relationships with Slow Food International and its Australian chapters. We also provide

supportforthesoleAustralasianrepresentativeontheCivilSocietyMechanism(CSM),whichrelates

totheCommitteeonWorldFoodSecurity(CFS)

Weworkextensivelywithprimaryfoodproducersandconsumersacrosseverystateandterritory

inAustralia.OurcommitteehasconsistedofpublishedacademicsandlecturersfromtheUniversity

ofMelbourne,RMIT,DeakinUniversity,UniversityofTasmania,UniversityofSydney,andQUT.We

havealsohadrepresentationfromfarmersfromeverystate,andlocaladvocatesandcampaigners

suchasFoodConnect,FriendsoftheEarth,Regrarians,FairFoodBrisbane,andthePermaculture

Network.

Ourvisionistoenableregenerativefarmingbusinessestothrive.

Australiansincreasinglycareaboutthewaytheirfoodisproducedthroughouttheentirevalue-chain,

includingsocialandenvironmentalimpacts.Theyseekoutfoodthatisgrownlocallyandwithout

damagetotheenvironment.Foodproducedonsmallregenerativefarmsisincreasinglyindemand,

and we believe that it is critical that government heeds changing community expectations and

facilitates, supports and encourages the growth and viability of regenerative agriculture while

protectingtheenvironmentandhumanandanimalhealth.

WewelcometheopportunitytomakeasubmissiontotheProposedDraftAustralianAnimal

WelfareStandardsandGuidelinesforPoultry(the‘ProposedDraft’).

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BackgroundContexttotheAnimalWelfareStandardsandGuidelinesThewelfareoflivestockinAustraliahasbeensupportedbyaseriesofModelCodesofPracticeforthepast20years.Ascommunityvaluesandexpectationschange,therelevanceofthesecodeshavebeenintermittentlycalledintoquestion,revisedanddeveloped.1Therehasbeengeneralagreementabout the desirability of having national standards of livestock welfare that are consistentlymandatedandenforcedinallstatesandterritories.2Animalwelfareisnowcaughtinacrossroadsofconflictingmodesofagriculturalproduction;oneroadisdefinedbyhighlyefficient, intensiveproductionandtheotherbyregeneratinglandscapesand rearing animals on pasture. Animal welfare is typically calculated based on several factors,includinghealth,conditionsoflighting,humidity,ventilation,feed,waterquality,stockingdensityandstockmanagementskills.Thesecalculations ingrowingpoultryareoftenbalancedwith,andsometimesoutweighedby, the “growthefficiency”3 or growth rate, feed conversions for andeggproductionofbirds.InAustralia,policyandlegalprovisionshavebeenconsideredineffectiveinacknowledginganimalwelfareasamainstreamconcern.4ThiswasidentifiedbytheWorldAnimalProtectionin2014.IntheirassessmentofAustralia,theypresentedthat,followingthegeneralelectioninSeptember2013,national funding was withdrawn from animal welfare issues in an effort to reduce red tape,streamline government processes and make budget savings.5 $1 million per annum towardsimplementingtheprogressiveAustralianAnimalWelfareStrategywascutandtheAustralianAnimalWelfareStrategyAdvisoryCommitteewasdissolvedbytheAbbottGovernment.UndertheAnimalWelfare Strategy and Animal Health Australia (AHA) management, the existingModel Codes ofPractice(MCOP)were tobere-written inanewformat, to incorporateboth thenationalwelfarestandardsandindustryguidelinesforeachspeciesorenterprise.TheStrategyintendedtore-formateach of the 22 existingMCOP into a document that combines AustralianWelfare Standards andGuidelines for that species or enterprise.6 Before it was dispersed, the Committee advised theMinister of Agriculture on animal welfare issues of national significance and drove theimplementationoftheAnimalWelfareStrategy.7Itsdispersalwasseenas‘unwise’byformerChiefVeterinary Dr Gardner Murray, who warned that it would harm the development and

1http://www.agriculture.gov.au/animal/welfare/aaws,AustralianGovernment,DepartmentofWaterandAgriculturalResources,AustralianAnimalWelfareStrategy–AAWS.2http://www.agriculture.gov.au/animal/welfare/aaws,AustralianGovernment,DepartmentofWaterandAgriculturalResources,AustralianAnimalWelfareStrategy–AAWS.3BusinessQueensland.StartingaMeatChickenFarm.Accessedat.4WorldAnimalProtection,2014,AnimalProtectionIndex:Australia.5WorldAnimalProtection,2014,AnimalProtectionIndex:Australia.6http://www.agriculture.gov.au/animal/welfare/aaws,AustralianGovernment,DepartmentofWaterandAgriculturalResources,AustralianAnimalWelfareStrategy–AAWS.7RSPCA,2013,AustralianAnimalWelfareAdvisoryCommitteeScrapped..

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implementation of policy in the future because of heightening public scrutiny towards animalwelfare.8Australia’scurrentAnimalWelfareTaskGroup(AWTG)hasrelievedsomeoftheinefficienciesintheadministrationofanimalwelfarepolicyandlawbytakingonthedevelopmentofnewModelCodesas early as 2013. Unlike the dissolved Advisory Committee’s broad representation, the AWTG islargelymadeupofmembersingovernmentdepartmentsofagricultureandprimaryindustryandindivisions relating to biosecurity and product integrity.9 Since 2013, the Task Group has had theresponsibilityofformulatingharmonisedandnationallyconsistentanimalwelfarestandards.TheresponsibilitytocoordinateandcontinuetodelivertheAnimalWelfareStrategywashandeddowntostatesandterritoriesandfinalisedin2014.Thegovernmentsteppingbackfromleadinganimalwelfare issues at a federal level suggested to theWorld Animal Protection that there would bebarrierstocontinuationandimprovementoftheStrategy.Onesuchbarrieristhatanimalwelfareresearch is majorly controlled by livestock industry research and development corporations.10AnotheristhatinvestmentsinliveexportsdominatetheproductionofdomesticanimalsthroughoutAustralia and therefore have impact on animal welfare regulations. The recommendation toimplementastand-alonestatutorybodytooverseethedevelopmentofanimalwelfarepoliciesandlawswas supported by animalwelfare groups; but at the timewhen the non-statutory advisorycommitteewasdissolved,whatwastobethe‘IndependentOfficeofAnimalWelfare’emergedintheformof‘Inspector-GeneralforAnimalWelfareandLiveExports’.11,12Animalwelfareconcernshaveincreasinglyrisenamongconsumers,asshownbytheresponsestothenewfree-rangeegginformationstandard.Thousandsofsmall-scaleproducersspokeoutagainstthatinformationstandardinanefforttohavethemaximumstockingdensityreducedtoalignwithinternationalstandardsandCSIROrecommendations.Tothedisappointmentofmanycontributorstothatprocess,ofwhichtherewere10,000,thelegaldefinitionpermits10,000hensperhectareinfree-rangesystems.CurrentWelfareStandardsandGuidelinesThecurrentdomesticpoultrycode,theModelCodeofPracticefortheWelfareofAnimals–DomesticPoultry4thedition(2002)(the‘Code’),isbasedonindustryguidelinescreatedin1983,whichpermitanimal husbandry practices from the 1950s. The Fourth Edition was prepared by the PoultryStandardsandGuidelinesDraftingGroup. It operateswith equivalentModelCodesofPractice atslaughteringestablishments.Thesecodesarenotmandatory.13TheCodedoesnotrecognise‘positive 8ABCRural,2013,Chairsaysscrappingwelfarecommitteeis‘unwise’,.9AWTGTermsofReference,.10JedGoodfellow,AnimalWelfareRegulationinAustraliaandtheNeedforanIndependentOfficeofAnimalWelfare,April2012.11Voiceless,IndependentOfficeAnimalWelfare’,.12RSPCA,RSPCAwelcomesproposalforAustralianCommissionforAnimalWelfare13MostjurisdictionshaveadoptedtheCodeintolawinvariousformsorhaveincorporatedtheirownstandardstosuittheirjurisdiction.Dependingonthestateorterritory,compliancewiththesestandardscanbemandatoryorvoluntary;canberelieduponasadefencetoachargeofanimalcruelty;and/orcanbeadducedasevidenceinanimalcrueltyproceedings.TheintentionoftheCodeisfor‘standards’tobeadoptedbylegislation,thusmakingthemcompulsory.

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states’ofhensanddoesnotdefineanimalwelfarebytheabsenceofdisease,hungerandthirst.14Thecurrent poultry code has been criticised for allowing battery cages; routinemaceration of malechicks;de-beakingofchicks;andinducedmoulting.Italsofailstorequireproducerstoselecttheirflocksbasedongenetictraitsthatpromotehigherwelfareoutcomes.ProposedStandardsandOptionsThe existing and exceedingly outdatedModel Codes of Practice for the Welfare of Animals arecurrentlyunderreview.In2013,stateandterritorygovernmentsagreedtocommenceafullreviewoftheCode‘inrecognitionofsignificantadvancesinhusbandrypractices,technology,andinavailablescience’.ThisreviewofficiallycommencedinJune2015,managedbyAnimalHealthAustralia(AHA)andledbytheNSWDepartmentofPrimaryIndustries(DPI).Aspartofthosereforms,theCodeisnowconsolidatedintotheProposedDraft,alongwiththeModelCodesfortheFarmingofOstriches15andHusbandryofCaptive-BredEmusSecondEdition.16The Proposed Draft was accompanied by a Regulatory Impact Statement (RIS) andsupportingpapers(short reviews of the scientific literature developed to explain the basis formaking decisions about key welfare issues). Additional papers on the DPI website included theFarmedBirdAnimalWelfareScienceReviewbyAgricultureVictoria.ItisunclearhowmuchweightwasplacedonthisScienceReviewinformingthedecisionsintheProposedDraft.TheProposedDraftintendsto‘provideabasisfordevelopingandimplementingconsistentlegislationandenforcementacrossAustralia,andprovideguidanceforallpeopleresponsibleforpoultry.Theyarebasedon current scientific knowledge, recommended industrypractice andmainstreamcommunityexpectations.’17TheRISidentifiessevenoptions.Apreferredoptionwillbeselectedafterpublicconsultation.Itraisesanumberofquestionstopromptcommentsonkeyissues,althoughansweringthesequestionsisoptionalwhenmakingasubmission.

• OptionA:Maintainthestatusquo(i.e.thebasecase,orthewaythingscurrentlyare).• OptionB:converttheproposednationalstandardsintonationalvoluntaryguidelines(the

minimuminterventionoption).• OptionC:adopttheproposedstandardsascurrentlydrafted.• VariationsofOptionC:

o OptionD–varytheproposedstandardstophaseoutconventionalcagesforchickenlayers over 10 or 20 years in favour of alternative systems ‘typical’ freerange/barn/aviary or furnished cages (with nests, perches, additional space androomtoscratch/forage).

14RSPCA(2016)Thewelfareoflayerhensincaseandcage-freehousingsystems.15PrimaryIndustriesReportSeries84.16PrimaryIndustriesReportSeries90.17Page6,ProposedDraftAustralianAnimalWelfareStandardsandGuidelines—PoultryPublicConsultationNov2017.

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o OptionE–varytheproposedstandardstoreducemaximumstockingdensitiesinbarnsorshedsfornon-cagelayerhensto9birdsperm2andmeatchickens30kg/m2.

o OptionF–varytheproposedstandardstorequiretheavailabilityofnests,perchesandlitterforallchickenlayersincageandnon-cagesystems.

o OptionG–varytheproposedstandardstobancastration,pinioninganddevoicing,no hot blade beak trimming at hatcheries, no routine 2nd beak trim – unlessexceptionalcircumstances(hotbladepermittedinthiscircumstance).

Issueswiththeproposedstandards

1. TheExclusionofAlternativeProductionSystems2. ‘Systemiccollusion’andthefailuretomeetcommunityexpectations3. Inadequacyofstudiesused4. Housingpoultryincages5. ProvisionofLitterandDustbaths6. ProvisionofNests,PerchesandLevels7. Furnishedcages8. MaximumStockingDensities9. ForcedMoulting10. MinimumLightLevels11. StandardsonBeakandBillTrimming12. StandardsonStunning,SlaughterandOn-farmKilling13. Exceptions14. Language/Expressions15. RegulatoryIssues

Asaresultoftheseissues,concernedorganisationsandindividualsacrossAustraliaarebandingtogethertolobbyforsignificantchangestotheproposedStandardsandGuidelines.Theissuesraisedarediscussedindetailthroughoutthissubmission.

ExecutiveSummaryThecurrentreviewoftheModelCodeofPracticefortheWelfareofAnimals–DomesticPoultryoffersthefirstopportunityin15yearstoimprovetheminimumwelfarestandardsfordomesticpoultryinAustralia. Itprovidesthechance tomodifyAustralianstandards toreflectcurrentanimalwelfarescienceandequivalentinternationaldevelopments.TheProposedDraftissignificantlymorecomprehensivethanthepreviouswelfarestandardsinthe4thEdition,aswellasinotherwelfarecodesforostrichesandemus,someofthosestandardsdatingbacktomid-20thcenturymanagementpractices.WecommendthecollectiveandlateraleffortsoftheAnimalWelfare Task Group (AWTG), the Stakeholder Advisory Group (SAG) and AnimalHealth

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Australia(AHA),andwelcometheopportunitytocommentontheDraftduringthe90daypubliccommentperiod.ItisnecessaryforAustraliatoleadafundamentalreshapingofanimalwelfarestandardsthatmeetinternationalstandardsandcommunityexpectations,and thatisbasedonscientific researchandavailable data from Australian farms. Many farmers give ethical reasons for changing towardspasturedpoultryproductionmethodsbecauseofthemaximumanimalwelfareandprovenanceitoffersifwellmanaged.18Thissubmissionaimstocontributeonbehalfofsmall-scale,pasture-basedpoultryproducerssothatbestanimalwelfarestandardscanbeachievedmorereadilyandregulatedappropriately.In this submission, AFSA will primarily make comment relating to the standards andguidelinesfordomesticpoultryduetoscopeofourrepresentationofpoultryfarmsextendingtosmallproducersoflayers,broilerchickensandducks.Asprinciple,wesupportbestanimalwelfarepracticesintheindustryasawhole.WhattheProposedDraftmeansforFarmersFarmersemployingpasture-basedpracticeswillloseaonceinagenerationopportunitytobeheardinthedecision-makingprocessrelatingtopoultrywelfare.Continuedlarge-scaleproductionofpoultrywillfurtherdominatethemarketanddrivesmall-scalefarmersinto‘nichemarkets’.WhattheProposedDraftmeansforEatersItwillturnablindeyetopopulardemandforhigherstandardsofwelfareandeaterswillcontinue to have low access to sustainably produced meat and/or eggs that positivelyimpactsquality.Consumerqualityperceptionwhenpurchasingpoultrywillbeinformedbyperceived standards ofwelfare and environmental factors that do not in factmeet theirexpectations.WhattheProposedDraftmeansforPoultryDomestically raised poultry in conventional systems will continue to suffer fromworsephysicalandmentalstatesthanthoseincountrieswithadvancedanimalwelfarestandardssuchasallnationsoftheEU,variousstatesoftheUS,NewZealandandCanada.WhatAFSAMemberswantWedemandthattheAgricultureMinistersofallstatesandterritories,PremiersandLocalMPssupportbestexamplesofanimalwelfarestandardsusingdatarelatingtopasture-basedsystems.We urge that they back research into better solutions for livestock welfare to meetcommunityexpectationsandpublichealthinterests.

18KathleenHilimere,2011,Thegrassisgreener:Farmers’experienceswithpasturedpoultry,CambridgeUniversityPress,RenewableAgricultureandFoodSystems.

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Wesupportthedevelopmentofamoreinclusive,science-basedsystemforsettinganimalwelfarestandardswhereanindependentbodymonitorstheanimalwelfarestandardsandinvestigatesregulatorybehaviour.ListofRecommendationsRecommendation1:Phaseoutbatterysystemsinthenext3-5yearsandphaseoutallcagesystemsinthenext10years.ThisshouldbedoneusingastrategytotransitiontheindustrysuchasthatusedinAustria(wherebatterycageswereprohibitedin2009)19,andsupportinglong-termmanagementofcage-freesystemsasdoneacrosstheEU.Recommendation2:Transitionpoultrysystemstofreerangeover10yearsandduringthattransitionreducethemaximumstockingdensityinbarnsorsheds(astheyarephasedout)fornon-cagelayerhensto2birdspermetresquaredandmeatchickens15kgpersquaremetre.(OptionEsuggestsreducingmaximumstockingdensitiesinbarnsorshedsfornon-cagelayerhensto9birdsperm2andmeatchickens30kg/m2)Recommendation3:CurrentpracticeofrearingpoultryoutdoorsonpastureforeggandmeatproductionbeconsideredwiththeupdatedornewRegulatoryImpactStatementandbeaddedasasupportingpapertoreflecttheabsentdataonAustralianpoultryfarms.Recommendation4:Establishanindependentnon-governmentalbodythatoverseesthedevelopmentofanimalwelfareregulationandrepresentsallrelevantstakeholdersincludingsmall-scalefarmbusinesses.Recommendation5:DirectlysourcedatafromAustralianpasture-basedfarmsandgenuinefree-rangefarmsbyvisitationorbyextendedconsultationinordertoobtaincorrectinformationaboutthequalityofalternativepoultryproduction.Recommendation6:Exploreresearchonalternativeagriculturalproductionoccurringinternationallyinordertogainamorecomprehensiveunderstandingofthebenefitsofpasture-basedpoultrysystems.Recommendation7:AustraliaprimarilysigntheUniversalDeclarationofAnimalWelfare.

19RSPCA(2016)Thewelfareoflayerhensincaseandcage-freehousingsystems..

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IdentifiedIssueswiththeProposedStandardsTheExclusionofAlternativeProductionSystemsTheRegulatoryImpactStatementdidnotconsiderthecostsandbenefitsofalternativeproductionsystems such as pasture-based poultry management systems. The supporting papers lackedinclusionofsuchsystemsintheirscientificreview.Theaimofthissubmissionisnottodisprovethescienceinthereview,buttobuildthenarrativeforpasture-basedsystems.Weseektheincreasedviabilityandrepresentationofthisemerginggroupoffarmers.Alternativeproductionsystemsforpoultryprovideoutdooraccess,arecage-freeandfreerange,andallowbirds toperformnatural behaviours, such asdustbathing and scratching,with amplespace,shelter,freshair,sunlightandprotectionfrompredators.Pasturedpoultryreferstoapoultryproductionsystemthatischaracterisedbyflocksofbirdskeptprimarilyonpasture.Pastureisdefinedasatractof landthatsupportsgrassorothervegetationeatenbydomesticgrazinganimals.Theterm‘pasturedpoultry’isassociatedwithJoelSalatin,authorofpopularbook, ‘PasturedPoultryProfits’(2004).Salatindevelopedasystemofpasturerotationthatproducesnutrient-rich grass andmaximises the spreading and compostingof animalwaste.Floorlesspensaremoved(onceortwicedaily)aroundagreenpasture.20PROOFisacertificationprogramforpasturedeggs,pork,chicken,beefandlambfromanimalsthathavebeenraisedonpastureinopenfields21,providesadefinitionofpasturedpoultry:'Alllivestockareraisedoutdoorswithcontinuousandunrestricteddaytimeaccesstopaddocksthataresuitableforgrazingandareprovidedwithshadeandshelter.Allanimalsmustusethepaddockseachdayunless;theychoosetoshelterbecauseofinclementweather,shorttermconfinementforveterinarytreatmentorwhengivingbirth.Feedsupplementsareavailabletoensurealltheirnutritionalneedsaremet.Animalsarekeptatastockingintensitythatwillensureforageisalwaysavailableinanactivelymanagedrotationalgrazingsystem.’Therearetwodistinctfree-rangeproductiontypes;intensivefreerange(highstockingrates,largeflocksizes,staticsheds)andpasturedfreerange(lowstockingrates,smallflocksizes,mobilesheds).Some would describe pastured free-range systems as genuine free range. Farm certificationprograms are available that cater to pastured free range farms, all with similar standards forproduction,PROOFbeingoneof them. Theseprogramsarebasedonstockingdensitiesof1,500birdsperhectareinpaddockrotations.

20ENSossidou,ADalBosco,HAElson,CMHAFontes,Pasture-basedsystemsforpoultryproduction:implicationsandperspectives.World’sPoultryScienceJournal2011,Vol.67(1),pp.47-58.21AboutPROOFhttps://www.proof.net.au/PROOF

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Therearemultipletypesofmobilehousingforalternativepoultrysystems,including,butnotlimitedto:

1. Pasturedpoultrypens2. “Net”rangeor“dayrange”3. ChickenTractors4. “Eggmobiles”5. Yarding

Pasturedpoultry arewidelyperceived as being beneficial and optimum for poultrywelfare andshouldthereforecomplywithallFiveFreedoms.FiveFreedoms

1. FreedomfromHungerandThirst:byreadyaccesstofreshwaterandadiettomaintainfullhealthandvigor.

2. FreedomfromDiscomfort:byprovidinganappropriateenvironmentincludingshelterandacomfortablerestingarea.

3. FreedomfromPain,InjuryorDisease:bypreventionorrapiddiagnosisandtreatment4. Freedom toExpressNormalBehavior: byproviding sufficient space, proper facilities and

companyoftheanimal’sownkind.5. FreedomfromFearandDistress:byensuringconditionsandtreatmentwhichavoidmental

suffering.Outdooraccessprovidesbirdswithamplespace,freshair,directsunlight,andallowsthemtoexpressnaturalbehaviourssuchasdustbathing,scratching,foraging,running,flyingetc,andcanalsoprovidecertainnutrientsinthepasturage(Fanatico,2008a,2008b).ThefirstFreedom,fromhungerandthirst,ismet by properlymanaging the basic poultry production standardsmainlywithin the house. TheFreedom from thermal and physical discomfort is challenging as pasture-based systems facemoreclimaticextremesthanintensivecontrolledenvironmentones.However,theymayalsoprovidemore‘controltotheanimalbyofferingachoicewhenseekingwarmthoracoolplacetorest(Spoolder,2007).TheFreedomfrompain,injuryanddiseaseisthemostdifficultonetoachieve,aspasturedpoultryarenotalwaysbeak-trimmedalthough it is still important toprevent feather-peckingandcannibalism.Moreover, birds are more exposed to climatic extremes, wildlife and predation, more at risk ofsmothering, contracting infectious diseases and prone to endo- and exo-parasitic infestation. TheFreedom to express normal behaviour can be met through environmental enrichment and grouphousingwherebirdsareabletobehavenaturally.Underappropriaterangeconditions,birdscanshowhighvigour,firmandstrongfeathercoverage,aswellaswarmredcombsandwattles(Bogdanov,1997).Birdsmayshowsignsofcalmnessandcomfort,suchasdustandsolarbathing(althoughsunburnisariskandshademustbeavailable),stretchingwings,beakcleaningandpreening.TheFreedomfromfearanddistressissupportedbyextra(social)space.Stresscanbereducedbyaccesstorange,smallflocksandlowstockingdensity.However,poultrycanexhibitfearofopenspaces,whichispartlywhyonlyaminorityventureout.22

22Pasture-basedsystemsforpoultryproduction:implicationsandperspectivesSossidou,E.n;DalBosco,A;Elson,H.a;Fontes,C.m.g.a

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ThecaseforalternativeproductionsystemsThe Proposed Draft does not enable alternative production systems that promote best practicepoultrywelfareandpublichealth,butinsteadpermitstheuseofcagesystemsandotherindoornon-cageoperations.Whilethesesystemshave,inthepast,beenseenasbetterenvironmentstocontrolinfectiousdiseasefrommigratorybirds,evidenceisincreasinglyshowingthatconventional,large-scale poultry operations can in fact cause outbreaks of disease. Factories provide an amenableenvironment for theevolutionofavarietyofvirulent influenzas, includingpandemicstrains.Forexample, swine fluH1N1appears bydefinition industrial in origin. RobWallace, apublic healthphylogeographer,wroteinhisbookBigFarmsBigFluthat:

'For the long term,wemustendthepoultryindustryasweknow it.Bird flunowemergesbywayofglobalisednetworkofcorporatepoultryproductionandtrade,where specific strains first evolve. We must devolve much of the production tosmaller,locally-ownedfarms.[50]Geneticmonoculturesofdomesticatedbirdsmustbediversifiedbackintoheirloomvarieties,asimmunologicalfirebreaks.Migratorybirds,whichserveasafountof influenzastrains,mustbeweanedoffagriculturallandwheretheycross-infectpoultry.[51]Todoso,wetlandsworldwide,wildfowl’snaturalhabitat,mustberestored.Globalpublichealthcapacitymustberebuilt.[52]Thatcapacityisonlythemostimmediateremediationforthepoverty,malnutrition,andothermanifestations of structural violence that promote the emergenceandmortalityofinfectiousdiseases,includinginfluenza.[53]’23

Feedbackoftheresearchisshowingthattheveryeffortspursuedtocontrolpathogenicbirdflumayinpassingincreaseviraldiversificationandpersistence.24Thisepidemiologicalpollutionthreatenstheveryexistenceofthelivestockindustry,butmasscommoditisationofpoultryandconcentrationofproductioncontinuestobeallowableundertheproposedwelfarestandards.In2013,TheConversationreportedthatAustraliawasexperiencinganeggshortageasaresultofH7N2casesinNSW.Thisdeadlybirdfluorvirus,alongwithvirusesoftheH5subtypes,canprogresstobehighlypathogenic inpoultry through theprocessofmutation.ThedevastatingH5N1avianinfluenzastrainhasnoteverbeendetectedinAustralianwildordomesticatedbirds,butallprevioushighlypathogenicavianinfluenzaoutbreaksinAustralianpoultryhavebeencausedbyH7viruses.Australiahasboththe2012N7N7and2013H7N2strains,themoretypicaltypeAviruses;andthesearecirculatinganddoposeariskatthefarmlevel.25Pasturedhensaresusceptibletothesamemetabolicdiseasesascagedbirdsbuttheirenvironmentcanalsoinfluencetheirdiseasestatus(Miao,Glatz,&Ru,2005)thereforepasturemanagementand

World'sPoultryScienceJournal,2011,Vol.67(1),pp.47-5823RobWallace,2016,BigFarmsmakeBigFlu,MonthlyReviewPress,NewYork.pg.58-6524RobWallace,2016,BigFarmsmakeBigFlu,MonthlyReviewPress,NewYork.pg.58-6525FrankWong&PeterDaniels,2013,AvianInfluenza–whyit’snotgoingaway,TheConversationDecember52013.

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paddockrotationsarecriticalnotjusttoreducetheincidenceofdiseasebuttoalsomanageforagequalityandnutrientloadinginthesoils(Gerzilov,Datkova,Mihaylova,&BozaKova,2012).26A consulting farm animal welfare scientist for the Humane Society of the United States and aninternationallyrenownedexpertonfarmanimalwelfaresciencefoundthat:Disease risk in cage-free systems can be reduced by a variety ofmeans. For free-range systems, inadditiontothesesteps,diseaseriskcan…bereducedbyutilisingpasturerotationtoregeneratesoil,regularlymowingorgrazingtokeepshortvegetationonpasture,usingonlylandwithgooddrainage,removingheavilycontaminatedsoilaroundthehousebeforeintroducinganewflock,andinstallingfencingandbirdmeshtoexcludewildbirdsandotheranimals.27Whilestudiesshowthatcagedhenshavea lowerriskof infectiousdisease thanuncagedhens inindoorsystemsbecausetheyarepositionedoffthegroundinwirecagesandcannotinteractwithmanyotherhens,hensinbatterycagescansufferfromhighlevelsofchronicdiseases,suchasbonedisease(osteoporosis)andafatalfattylivercondition,whichisbroughtaboutbystressandlackofmovement.28ReiteratingthewordsofRobWallace,“[w]emightinsteadconsiderdevolvingmuchoftheproductionto regulated networks of locally-owned farms.” Governments are responsible for consideringresponsestohumanity’sepidemiologicalrisks.Theymustrespondtotherisksposedbyagriculturalinfrastructurejustasvirusesandbacteriaquicklyevolveinresponsetohumaninfrastructure.InadequacyofstudiesusedTheProposedStandardsrelyonscientificevidenceconcludingthatbirdhealthisamajorconcerninnon-cage systems. These concerns revolve around mortality from cannibalism, the absence offoragingsubstratecontributingtofeatherpecking,andrisksofexposuretowildlifepathogensandsoil-bornepathogensincreasingbiosecurityrisks.TheaccompanyingstudiesdonebyindustrybodyAustralianeggconcludethatthereisnodifferenceinthestresslevelsofbirdsinbatterycages,barnsandfree-rangefarms.The supporting documents to the Proposed Draft inadequately inform the Draft animal welfarestandards and guidelines for poultry. Although they intentionally “do not make specificrecommendationsonmajorissues”,thepapersoughttoaddresstheissueofexcludingabroaderdataonAustralianfarmsthatfeaturebestpracticeexamplesofvariousproductionsystemsthatpromotewelfare.

26PROOF27http://www.hsi.org/assets/pdfs/a-comparison-of-the-welfare-of-hens-in-battery-cages-and-alternative-systemshsi.pdfHumaneSocietyInternationalAComparisonoftheWelfareofHensinBatteryCagesandAlternativeSystemsSaraShields,Ph.D.andIanJ.H.Duncan,Ph.D.28https://www.rspca.org.au/blog/2017/facts-about-battery-cagesRSPCA,Thefactsaboutbatterycages,Monday,1stMay2017.

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Thestudiesshouldmorecomprehensivelyincludedemandforfarmanimalwelfare.ResearchofthiskindwasdoneinMichigan,theUnitedStates, intheformofafieldexperiment.Itwasfoundthatconsumersarewillingtopaysignificantanimalwelfarepremiumsforselectproducts;thatanimalwelfarepremiumsareproductspecificandshouldnotbegeneralised;it is importanttoconsiderproducercostswhenevaluationdemandforanimalwelfare;andproducersbearthecostsofchangesbroughtaboutbymandates.29Althoughitisrecognisedthatlittlehasbeenwrittenonexperienceswithfree-rangesystems30,letalone rearing poultry outdoors on pasture for egg andmeat production, the number of farmersstartingup,integratingandtransitioningtopasture-basedsystemsisrising.Thepresentscienceonfreerangesystemsintheliteratureshowslimitedinformationaboutthisenterprise.Comparisonsbetweendifferententerprises(cage,barnandfreerangemostcommonly)donotrepresentallformsof outdoor systemspracticed in Australia. Thismay be due to the fact that alternative cage-freesystemsaremorecomplextomanageandlesslikelytoresearchedduetheirlackofvisibilityinthemarket.Asshownbyfarmers’experiences,thesealternativescanoffergreaterwelfareconditionsfordomesticpoultry.Alternativesystemssimilarbutvarianttopasture-basedsystemscanalsoofferaninnovativealternativetocurrentsystemsthatarealreadyanemergentpractice.Thismeritscriticalanalysissothatthesemethodscanberefinedintheirimplementation.Researchcouldincludethebenefits and challenges of integrating pastured poultry into farming operations, using heritagebreeds,andmanagementpractices.AresearchmodelusedinpreviousstudiesintheUSshowedthemerit in evaluating value laden farmer decision-making and surveying farmers’ experiences ofpasture-basedmanagementsystems.31Theuniquemanagementsystemsofpasturedpoultryfarminghavebeendocumentedanddescribedasasustainablefarmingtechniqueofraisinganimalsinlargelyoutdoorenvironmentsaswellasatraditionalmethodoffarmingasopposedtofactoryfarmswhichfavourmaximumproductionlevels.BenefitsofPasture-basedpoultrymethods

• Itisoftenaninexpensivewaytoaddsupplementalrevenueanddiversificationtosmallfarms,especiallyforthosewithlimitedresources.Inaddition,the“nichemarket”targetsgrowingconsumer demand for a more natural, humanely raised and environmentally friendlyproduct.

• Smallflockproductioncanincludechickens,turkeysandotherspecies,suchasducks,geeseand quail. Diversification of animal species and the myriad ways those birds can beincorporatedintoon-farmproduction,suchasorganicandfree-range,makeforanattractiveenterprise.

• Componentsofpasturedpoultryproduction,suchasanimalwasteandhousingfacilities,areeffectiveinvalue-addedproductionandnichemarketing.

29DavidL.Ortega,Demandforfarmanimalwelfareandproducerimplications:ResultsfromafieldexperimentinMichigan.30AngelaBullandayScott,MiniSingh,Jenny-AnnToribio,MartaHerndandez-Jover,BelindaBarnes,KathrynGlass,BarbaraMoloney,Amanda,PeterGroves.31RenewableAgricultureandFoodSystems.https://www.researchgate.net/publication/236974606_The_grass_is_greener_Farmers_experiences_with_pastured_poultry

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• By supplying eggs and meat to both the farmer and the consumer, improving the soil,controllinginsectsandweeds,andblendingeffectivelyintoanintegratedgrazingsystem.

• Whetherraisedasabackyardflock,onsmall-to-medium-sizefarms,orinalargerpasturedenvironment, grass-fed poultry can be a successful enterprise that supports sustainableproductionsystems,positivelyimpactstheenvironmentandprovidesprofitablemarketingandvalue-addedproducts.32

• Poultrycanremedyproblemsoilandcontrolinsectspeciesandweedswhilesupplyinganewrevenuestreamforafarm.33

• Birdsonpastureorcroplandactasminiaturemanurespreadersthatfertilisethesoilandimproveplantperformancebyprovidingalayerofrichorganicmatter.34

• Wheneggproductionisintegratedintoafarmingsystem,thenutrientadditiontothesoilcanbeusedtoadvantageforcroporforageproduction.35

• Pasturedpoultryismorelabourintensiveandthereforecostliertoproduce,butthisisoffsetbythepremiumpricetheend-productsbring.

• Thereisadistinctmarketadvantagetopasturedproductionandthisisahighgrowthareathatcanbetakenadvantageofbythosewillingtoproduceeggsinamannerthatmeetstheneedsoftheconsumerandtheirperceptionsofpasturedproduction.

• Raisinghensoutdoorsonpastureisaboutprovidingachoicetotheconsumerthatseeks,intheirmind,amoreethicallyproducedegg.Thechallengeistokeepconsumertrustinthetermpasturedsothatitwilltranslateintoabetterdollarreturnfortheproducer.36

Further research could be done on these benefits to assist the process of phasing out cageproductionssystems.Hundredsoffree-rangeandpasture-basedpoultryfarmshavebeenidentifiedon the Flavour Crusader website. http://flavourcrusader.com/blog/2011/09/free-range-eggs-australia/Arandomselectionofthesefarmsislistedbelow:

1. AllandalePasturedFreeRangeEggs,BurntYardsLeisaandJohn’shensarefreetoroamwheretheyplease,andarehousedinmobileshedssotheyareonfreshpastureeveryday.ThehensareprotectedfrompredatorsbyMaremmadogs.Thehensarestockedbelow100hensperhectare.

2. CarbeenPasturedProduce,ManildraRodgerandKatherine’shensarehousedintrailers;thechickensaremoveddaily,followinginrotationbehindtheircattleandsheep.They’refedgraintocomplementtheirgrassandbugdiet.

3. FarmerBrownsPasturedEggs,DunedooTheFergussonfamily’spasturedhensliveunrestrictedinan85-hectarepaddockadjoininga

32SustainableAgricultureResearch&Education,2012https://www.sare.org/Learning-Center/SARE-Project-Products/Southern-SARE-Project-Products/Pastured-Poultry33SARE,LivestockAlternatives,ProfitablePoultry:RaisingBirdsonPasture.34SARE,LivestockAlternatives,ProfitablePoultry:RaisingBirdsonPasture.35PROOF36PROOF

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largeareaofprotectedwoodland.Thehenslaytheireggsinmobileshedsbydayandperchcomfortablyatnight.Maremmadogsprovideprotection.

4. HandtoGround,BayntonAlexandEmilySims’flocksliveonrealgrasspasture–intheopenair,withspacetomove,peck,dustbatheandforage.Theyaremovedtofreshpastureweekly,viatheeggmobile.Theyeatarichdietofgardenscraps,insectsandbugs,andGMO-freewholegrainfeed.

IntheUS,aresearchbodycalledSustainableAgriculturalResearchandEducation(SARE)hasbeensupportingpasturedpoultryproduction,health,marketingandvalue-addedeffortsthroughgrant-fundedprojectsandunbiased,practicaleducationalresources.Ithascollectededucationalmaterials,includingcasestudiesofpasturedfarmsandfactsheets,developedoutofdecadesofSARE-fundedpasturedpoultryresearch.Thiswasborneoutoftherapidlygrowinginterestinpasturedpoultryproduction among small-scale farmers in recent decades. Australia ought to have similar andpotentiallymorecomprehensivedataonsuchenterprisestohaveaccurateinformationtoassessintheprocessofreviewingsignificantregulationssuchasanimalwelfarecodes.SARE’sresearchproducesextensivefactsheetsaboutraisingbirdsonpastureandincludesdetailsabout pastured poultry economics, housing systems, feed, breed, mortality and predation. ThisresearchservesasaneducationaltoolthatcanbeaccessedbyfarmerswillingtosetuppasturedpoultryoperationsinAmerica.Recommendation: Directly source data from Australian pasture-based farms and genuinefree-range farms by visitation or by extended consultation in order to obtain correctinformationaboutthequalityofalternativepoultryproduction.Recommendation: Explore research on alternative agricultural production occurringinternationallyinordergainamorecomprehensiveunderstandingofthebenefitsofpasture-basedpoultrysystems.

‘Systemiccollusion’andfailuretomeetcommunityexpectationsAFSA members were deeply disappointed to discover that the NSW DPI were found to havemanipulated the development of newwelfare standards for the egg industry. Egg farmerswereaccusedofengagingin‘systemiccollusion’withtheDPItothwartmovestooutlawbatteryhens.NSW is the largest producer of caged eggs in the country and claims it has a vested interest incontinuingtheuseofbatteryhens.In2016,NSWeggfarmers37underwentscrutinyintheFederalCourtcasewheretwocompanies,DerodiandHollandFarms,whichtradetogetherasFree-RangeEggFarms(FREF),werepenalised$300,000formakingfalseandmisleadingclaimsabouttheireggs

37ThecasefocusedontwoNSWfarms-HutchisonFarminBooralandSeposFarminAllworth-whichtogethersupplyathirdofFREF's"freerange"eggs.http://www.watoday.com.au/business/consumer-affairs/free-range-egg-farms-fined-300000-for-misleading-shoppers-with-false-claims-20160415-go70cu.html

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sold throughout Australia as Ecoeggs, Port Stephens and Field Fresh.38 The ACCC is addressingincreasing consumer concerns about egg labelling39, but for theCommission the issue surroundsconsumertransparencyandnotanimalwelfare.40Further,andrelatedtotheactionsoftheWAandVictorianAgricultureDepartments41,theProposedDraftwasmanipulatedearlyonbytheNSWDPIandtheeggindustry.Eggfarmerswerealsoaccusedofengaging in ‘systemiccollusion’with theNSWGovernment to thwartmoves tooutlawbatteryhens.42Inearly2017,theintegrityoftheprocessfordevelopingAustralia'snewpoultrystandardswasinquestion. The Victorian andWA governmentswere unsatisfied with the way in which the NSWDepartmentranthereviewbeforethestandardswerereleasedforpubliccomment.TheWAGovernment said it supported the creationofan independent statutorybody tooverseedrafting and enforcement of animal welfare standards. Such a body has previously beenrecommendedbytheProductivityCommissionbuthasnotbeensetup.TheWAGovernmenthasindicateditmaygoitaloneanddevelopState-specificstandardsifthenewnationalstandardsdonotreflectmodernpracticesandpublicsentiment.In its attempt to fulfil mainstream community expectations much has been left amiss. Manyconsumersandproducersareconcernedthatanimalwelfare lawscontinue toprivilege intensiveanimalproductionandexports.These non-transparent and non-democratic actions of the NSW DPI in this process has enabledAustraliatobecomeatriskofdefiningitselfasa‘lowanimalwelfarehaven’.43ItwouldalsoseemthattheGovernmentisfailingtomeetcommunityexpectationsandthereforethebaseintentionoftheProposedDraftitself.44Recommendation: Establish an independent non-governmental body that oversees thedevelopmentofanimalwelfareregulationandrepresentsallrelevantstakeholdersincludingsmall-scalefarmbusinesses.

HousingpoultryincagesTherehavebeenopportunitiesinthepastforAustralia,asoneoftheworld’stopconsumerofchickenintheworld(behindBrazil),toavoidbecominga‘lowanimalwelfarehaven’.

38EsterHan,WAToday,FreeRangeEggFarmsFined$300,000formisleadingshopperswithfalseclaims,15April2016,accessedat:http://www.watoday.com.au/business/consumer-affairs/free-range-egg-farms-fined-300000-for-misleading-shoppers-with-false-claims-20160415-go70cu.html39https://www.accc.gov.au/system/files/1029_Free%20range%20Eggs%20guidelines_FA.pdf40LegalVision,InaScrambleoverFreeRangeEggClaims?MisleadingAdvertisingUpdate,29April2016,accessedat:https://legalvision.com.au/28432/41ABC,WesternAustraliamayleaveChickenWelfareReview,22December2017,accessedat:http://www.abc.net.au/news/2017-12-22/western-australia-may-leave-chicken-welfare-review/928327442ABCNews,JamesThomasandAlisonBranley,7:30Report‘EggFarmersaccusedofcolludingwithGovernmentdepartmenttosabotagemovestooutlawbatteryhens’21December2017.43HaraldGrethe,HighanimalwelfarestandardsintheEUandinternationaltrade–Howtopreventpotential‘lowanimalwelfarehavens’?44Page6,ProposedDraftAustralianAnimalWelfareStandardsandGuidelines—PoultryPublicConsultationNov2017.

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In1990,theAustralianSenaterecommendedtheprohibitionofbatterycagesonceviablealternativesweredeveloped,basedinpartonthelargeamountofscientificliteratureonthewelfareoflayinghens,datingbacktothemid-1960s.WhentheAustralianModelCodeofPracticefortheWelfareofAnimals–DomesticPoultrywas last reviewed in 2000, therewas an even greater body of scientific evidenceavailableonthewelfareoflayerhens,andcage-freeproductionsystemswerealreadywell-establishedinAustralia.45However, in2017theProposedDraftreleased that itwouldpermitbatterycages inanumberofstandardsandguidelines,includingbutnotlimitedtothefollowing:

a. SA4.4,SA4.5,GA410;andb. SB1.2(referenceto“multi-deckcages”),SB1.3,SB1.4(3)+(5)(referenceto“alllevels”)

Inanattempttoregulatetheuseofcages,theproposalhaseffectivelycontinuedthesanctioningofbatterycagesystems.One industrysupportingpaperto the standards argues that extra cage spacedoesnotguaranteebetter welfare for hens. It claims that battery cages allow better inspection and more efficientmanagementofthebirds,thebiosecurityrisksandtheenvironmentalimpact.However,thereisnoevidencecage-freehensaremorepronetofeatherpeckingthancagedhens.Whatcagesachieveislockinghensinsmallcageswithlimitstocontactwithotherhens.46Further,therearemanyoptionstoprotecthensinpasture-basedpoultrymanagement:

• Maremmadogs• Electricnettingaroundthehouseatnightonly• Portablemeshornettingverandahfornighttimeuse• Foxlights47

Australianpublic opinionof cagesystemshasmajorly influenced the industryandhasdrivenanincreaseintheuseofcage-freesystems.Batterycageshavebeencondemnedbythemajorityofthecommunityandhavebeenbannedinmanycountries.Arecentconsumersurveyfoundthat86.5%ofWestAustraliansthinkbatterycagesshouldnotexistand80%saybatterycageshaveanimpactontheirpurchasingoreatingeggs.Majorsupermarketsandfoodservicecompaniesarecontributingtothetrend.Someofourbest-knowntakeawayandconveniencefoodbrandsaregoingcagefreetoo,likeGrill’d,McDonald’s,HungryJacksandSubway.48

45RSPCA(2016)Thewelfareoflayerhensincaseandcage-freehousingsystems..46https://www.rspca.org.au/blog/2017/facts-about-battery-cagesRSPCA,Thefactsaboutbatterycages,Monday,1stMay2017.47https://www.proof.net.au/Indoor-Space-Requirements-Layer-HensPROOF,Spacerequirementsforfreerangehens48https://thewest.com.au/opinion/egg-industry-must-prioritise-animal-welfare-rspca-ng-b88713076zEggindustrymustprioritiseanimalwelfare:RSPCALynneBradshaw,TheWestAustralian,Monday,15January2018

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Demandforcage-freeeggsisbeingrecognisedbysomeofthelargestretailerssuchasMcDonald’s.49WoolworthsandAldihavecommittedtophasingoutcagedeggsby2025.50Theproportionofcagedeggssoldinsupermarketshasfallenfrom75%to49%overthepastdecade.51Theinfluenceofethicalfactorsonacceptabilityofanimalproductscanclearlybeverifiedinthecaseofeggs.ItisclearthatethicalviewshaveinfluencedconsumerpreferencesinAustraliaandthishasresulted in legislativechanges.ManyAustraliansenjoyeatingmeat,but there is lowtolerance toanimalmistreatment(Chen,2016).52StudiesaboutattitudesandbeliefsofAustralianstowardsthewellbeingofanimalsindicatedthatmostofthemsupportthat:

• ‘farmanimalsdeservethesamelegalprotectionsascompanionanimals’.• ‘animalsdeservesomeprotectionfromharmandexploitation,butit isstillappropriateto

usethemforthebenefitofhumans’.• ‘itisquiteacceptabletoeatmeatsolongasanimalsarerearedandkilledhumanely’.• ‘modernmethodsof“factoryfarming”intheproductionofeggs,milkandmeatarecruel’.

Majorretailershavethird-partystandardsorhavedevelopedtheirownstandardsofwelfareandmany major stakeholders are now committed to responsible sourcing including animal welfarestandardscertifiedbyRSPCAandPROOF.Livestockindustrieshavebeenactiveinaddressingtheincreasedinterestinanimalwelfare.Industryhaveadjustedtheirproductionpracticesrespondingtocampaignsandpreferences.LynneBradshawoftheRSPCAsaidthatthecontinuedoveralldemandforeggsmeansthatmanycageeggsfeedintothefoodservicesindustryandprocessedfood.Thisrequiresalegislativephaseoutofbatterycagesandashiftawayfromindustryself-regulation.53Australiaiswaybehindmostofthedevelopedworldinlayerhenwelfare.Bytheearly2000’s,manyothercountrieshadrecognised the inherentwelfareproblemswithbatterycagesandprohibitedorphasedouttheiruse.InSwitzerland,cagesystemsforlayerhenswerestoppedin1992andin1989,Swedisheggfarmersweregiventenyearstophaseoutbatterycages.54Asaresultofpressurenotonlyfromthepublic,butalsofromproducers,retailers,consumersandthemedia,the28membersoftheEuropeanUnionannouncedabanonbatterycagesin1999andwitnessedthecompletionofthatbanin2012,20yearsafterSwitzerlandbecamefirsttophaseout

49AndreaHogan,McDonald’smeetscage-freeeggmarket,24January2018.50AlisonBranley&JamesThomas,Cafesarethenewbattlegroundforfreerangeeggadvocates,ABC,22December2017.51https://theconversation.com/proposed-poultry-standards-leave-australia-trailing-behind-other-industrialised-countries-88302ClivePhillips,December12017ProfessorofAnimalWelfare,CentreforAnimalWelfareandEthics,TheUniversityofQueenslandProposedpoultrystandardsleaveAustraliatrailingbehindotherindustrialisedcountries52L.EmilioMorales,GarryGriffith,EuanFlemingandStuartMounter,AnimalWelfareandLivestockProductioninAustralia,29thSeptember,2017https://www.adelaide.edu.au/global-food/study/workshops/sustainable-value-chains/Emilio_Morales_-_Animal_Welfare.pdf53https://thewest.com.au/opinion/egg-industry-must-prioritise-animal-welfare-rspca-ng-b88713076zEggindustrymustprioritiseanimalwelfare:RSPCALynneBradshaw,TheWestAustralian,Monday,15January201854https://thewest.com.au/opinion/egg-industry-must-prioritise-animal-welfare-rspca-ng-b88713076zEggindustrymustprioritiseanimalwelfare:RSPCALynneBradshaw,TheWestAustralian,Monday,15January2018

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batterycages.55TojointheminphasingoutbatterycageeggproductionareCanada,NewZealandand the statesofCalifornia,MichiganandOhio in theUSwherenon-battery cageproducts arearequirementinmanyretailoutlets.NewZealandwillphaseoutbatterycagesby2022. InAustralia,onlytheACThaspassedalawthatprohibitstheuseofbatterycages.56StakeholdersexpectedtheDrafttofollowinternationalmovestobanthebatterycage.Butinthefaceofthisglobaltrend,Australiahasshiedawayfromaonce-in-a-generationchancetosecurebetterwelfareforpoultrysincethelastreviewin2001.ProfessorofAnimalWelfareattheUniversityofQueenslandCentreforAnimalWelfareandEthics,ClivePhillips,wasdisappointedtoseeAustralia‘trailbehindtheworld’andthatthedraftstandardsconcludebirdsinbatterycageshavean“acceptablelevelofwelfare”.57Hensinbatterycagessufferhighlevelsofstressandfrustrationbecausethey’reunabletoperformsimple natural behaviours like walking, nesting, perching, stretching their wings, scratching theground, and foraging. Hens suffer in battery cages where they can’t perform these behavioursbecausetheirnaturalinstincttonest,perch,dustbatheandforageissoverystrong.Local support for a betterwelfare for poultry using Consumer Law has led to a bill being beenintroduced to the Federal Parliament byMinister Rebekha Sharkie of the Nick Xenophon team.TheCompetitionandConsumerAmendment(FreeRangeEggs)Bill2018seeksto:

• Ensureeggsmarketedas‘freerange’areeggslaidbyhensthatareableto,anddoinfact,movefreelyonanopenrangeduringdaylighthoursonmostdays.

• Ensureeggsmarketedas‘freerange’arelaidfromhenssubjecttoastockingdensityofnomorethan1,500hensperhectare,andthatthestockingdensityinformationisdisplayedonegglabelsprominentlyina‘hensperhectare’format.

• Enableeggsthatarenotcageeggsbutdonotmeetthedefinitionoffreerangetobemarketedas‘accesstorange’.58

TheRSPCAhasrecommendedthatastandardbeincludedinchapterB1–LayingChickenstoensurethatbatterycagesforlayerhensarephasedout,andastandardincludedinPartA–4FacilitiesandEquipment,toprohibithousinganybirdsinconventionalcages.

55December12017,ClivePhillips,TheUniversityofQueensland,ProposedpoultrystandardsleaveAustraliatrailingbehindotherindustrialisedcountrieshttps://theconversation.com/proposed-poultry-standards-leave-australia-trailing-behind-other-industrialised-countries-8830256https://thewest.com.au/opinion/egg-industry-must-prioritise-animal-welfare-rspca-ng-b88713076zEggindustrymustprioritiseanimalwelfare:RSPCALynneBradshaw,TheWestAustralian,Monday,15January201857December12017,ClivePhillips,TheUniversityofQueensland,ProposedpoultrystandardsleaveAustraliatrailingbehindotherindustrialisedcountrieshttps://theconversation.com/proposed-poultry-standards-leave-australia-trailing-behind-other-industrialised-countries-8830258http://www.rebekhasharkie.com.au/free_range_not_fake_range

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Recommendation:Opttophaseoutbatterysystemsinthenext3-5yearsandtophaseoutallcage systems in the next 10 years. This should be done using a strategy to transition theindustrysuchasthatusedinAustria(wherebatterycageswereprohibitedin2009)59,andsupportinglong-termmanagementofcage-freesystemsasdoneacrosstheEU.ProvisionofLitterandDustbathsProvidinglitteranddustbathscanreducestressandimprovebirds’immunesystemssignificantlywhen accompanied with goodmanagement, adequate spacing, proper temperature, ventillation,goodnutritionandcleanwater.Deeplittersystemsincreasetheriskofentericdiseasebecauseitencouragesheightenedcontactwithdroppings for all birds on litter. This is exacerbated by high stocking density and wet and coolconditions. In barn systems, litters, leaking drinkers and inadequate ventilation systemsmayallincreasediseaserisks.60Litterisacauseofodourissuesfrombroilerfarms.Odournuisanceisariskandcauseofconcerntocommunitiessurroundinglarge-scaleoperations.ItislikelythattheexpansionofAustralia’scapacitytoproducedomesticpoultryproductswillcreateimpactsonnearbyresidencesandcommunities.Techniquestomitigateodouriscostlyandimpracticalduetothehighrateofventilationrequired,particularlyforbroilerfarms.Researchsuggeststhatodorants“maywellbecorrelatedwithoverallodourintensityandoffensiveness”ofbroilerfarms.Inanattempttomitigateodour,littertreatments,biofilters, neutralising agents, air scrubbers, ozone treatment, windbreak walls are used astechniques.However,theseareknowntobecostlyandimpractical.(DunlopandGallagher,2011).TheRSPCArequires‘dryandfriablelittercondition’inbroilerfarmsaspartoftheirstandards.Thismaypartlyaddressodourissuesaslowerlittermoisturehasbeenshowntoreducetheemissionsofodorants such as methyl mercaptan, H2S, dimethyl sulphide, ammonia (NH3), trimethyl amine,phenol,indole,and3-methyl-indole(Sharmaetal.,2016a).However,dryinglitterbyincreasingtheventilation rate is a costly process. Feed and gastrointestinal problems can exacerbate waterexcretionandcontributetowetlittercondition.Microbialdecompositioninlitteroccursunderbothaerobic(dry)andanaerobic(wetandcaked)conditions(JiangandSands,2000).IntheProposedDraft,thereisnostandardrequiringthatpoultrybeprovidedwithlitterforthepurposeofdustbathingandforaging.61

59RSPCA(2016)Thewelfareoflayerhensincaseandcage-freehousingsystems..60http://www.hsi.org/assets/pdfs/a-comparison-of-the-welfare-of-hens-in-battery-cages-and-alternative-systemshsi.pdfHumaneSocietyInternationalAComparisonoftheWelfareofHensinBatteryCagesandAlternativeSystemsSaraShields,Ph.D.,*andIanJ.H.Duncan,Ph.D.61RSPCA

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RSPCAhasrecommendedtheinclusionofastandardinChapter8–Littermanagementthatensuresallpoultryhousedindoorsmusthaveaccesstoalitteredareatoallowbirdstoforageanddustbathe.WesupportthisrecommendationbutaddthatthisshouldbeatemporaryStandarduntilthehousingofpoultryisphasedoutinthenext10years,withaviewtoallpoultrysystemsbecomingfreerange.ProvisionofNestsPerchesandLevelsPerchesTheProposedDraftdoesnotrequireperchesasalegallyrequiredstandard.GuidelinessuchasGA4.11recommendthatperchesbeprovided.However,thesearenotstandards,andwillthereforenotbeenforceable.WesupporttheRSPCA’srecommendationthatastandardbeincludedinchapter4–Facilitiesandequipmenttoensureadequateperchspacemustbeprovidedtoallpoultrywithamotivationtoperch.WeaddtothisrecommendationthatthisshouldbeatemporaryStandarduntilthehousingofpoultryisphasedoutinthenext10years,withaviewtoallpoultrysystemsbecomingfreerange.NestsTheProposedDraftcontainsguidelinesrecommendingsufficientnestsforhens,butthesewillnotbeenforceable.62WesupporttheRSPCA’srecommendationthatguidelineGB1.6becomeastandardinChapter4–facilitiesandequipmenttoensurethathensofallspeciesmustbeprovidedwithanest.WeaddthatthisshouldbeatemporaryStandarduntilthehousingofpoultryisphasedoutinthenext10years,withaviewtoallpoultrysystemsbecomingfreerange.FurnishedCagesOnealternativeprovidedisfurnishedor‘colony’cages,whicharelargerandprovideperches,nestsand litter for pecking and scratching. But the research on furnished cages was provided by anindustrybodyandonlydoneon12flocks,whichcallsintoquestionthecomprehensivenessofthestudiesthataccompanytheproposedstandards.WithsupermarketsinNewZealandbanningallcagesystemsby2025,furnishedcagesarenotlikelyasustainableoreconomically-soundalternativeforeggproduction.Wedonot support theuseof any indoorpoultrymanagement systemsandrecommendaphaseoutofthesesystemsinthenext10years.

62RSPCA

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Imagefrom:http://www.laywel.eu/web/xmlappservletfc2c.html?action=ProcessSelection

Imagefrom:http://www.laywel.eu/web/xmlappservletfc2c.html?action=ProcessSelectionMaximumStockingDensitiesThePROOFStandardsforPoultryrequireanindoorstockingrateof16kgofbirdweightpersquaremetre,or,approximately8henspersquaremetre.ThisisalowerdensitythanthemaximumallowedintheModelCodeof30kgofbirdweightbecausemobileoutdoorshedsaregenerallynotfittedwithcoolingsystems,ventilationsystemsorfansandthereforeallowancesmustbemadetoensurethattemperature, humidity, air exchange and removal of gases is optimal for the welfare of thehens.Smallshedsandcaravanscanheatupquickly,buthousingwithenoughfloorspacetoallowair

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movementaroundeachbirdwillloweritstemperatureandthehumidityinthisenvironment.Eachsystem should be assessed on its own merits as mobile housing vary greatly between farms.Complianceshouldbemuchlesscomplicatedwhenbirdsarenotconfinedindoors.63Lowerstockingdensitiescanhaveapositiveeffectaslayrateshavebeenshowntobedepressedby5to7%whenbirdsarestockedathigherratesi.e.15birds/m2comparedwith7.5birds/m2(Miao,Glatz,&Ru,2005).64

TheFarmedBirdAnimalWelfareScienceReviewby theVictorianGovernment foundthatahighstockingdensitywasconsideredtoby15birdspersquaremetre.

Recommendation: Reduce the maximum stocking density in barns or sheds (as they arephasedout)fornon-cagelayerhensto2birdsperm2meatchickensto15kgpersquaremetre.(OptionEsuggestsreducingmaximumstockingdensitiesinbarnsorshedsfornon-cagelayerhensto9birdsperm2andmeatchickens30kg/m2)We further support the RSPCA’s recommendation that maximum stocking densities bedecreasedforallspecies,sothateachindividualbirdhasmoreroomtomoveandexpressitsnormalbehaviours.StandardsonBeakandBillTrimmingThe Supporting Paper to the Proposed Draft on Beak Trimming recommended that birds mayexperienceacutepainduringtheproceduresofbeaktrimmingduetothepresenceofpainreceptorsinthetipofthebeak.Chronicpainfromneuromaformationhasalsobeendetected.Infraredbeaktrimming(IRBT)wasfoundtohavenochronicadverseconsequenceandthatitwasrecommendedIRBTbedonebyhighlytrainedoperatorsonlywhenthebirdislessthanadayold.Severalreferencestobeaktrimmingandde-beakingintheProposedDraftwereidentifiedinGA3.17,SA9.14,andSA9.15.TheRISprovidesforanoption(G)tobansuchtreatmentunlessinexceptionalcircumstances.However,theProposedDraftstillpermitstheuseofhotbladingwhichisconsideredbymanyintheindustryasthelastresortinmanagingfowlbehaviour.65Infraredisseenasabettertreatment.66Agrowingfocusworldwideonreducingtheuseofbeaktrimmingshowsthatthisinvasiveproceduremaywellphaseout(VanHorne&Achterbosch,2011).Thereasonsforbeaktrimmingsuchasfeatherpeckingcanbereducedbyavoidingovercrowding,stress,diseaseanddietimpactonthebirds’abilityto carry out normal foraging behaviour. Lower stocking rates, vaccination programs, lighting

63https://www.proof.net.au/Indoor-Space-Requirements-Layer-HensPROOF,Spacerequirementsforfreerangehens64PROOF,https://www.proof.net.au/egg-farming65HTTPS://WWW.AUSTRALIANEGGS.ORG.AU/FOR-FARMERS/TOOLS-AND-TRAINING/66HTTPS://WWW.AUSTRALIANEGGS.ORG.AU/FOR-FARMERS/TOOLS-AND-TRAINING/

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programsandadequatenutritioncanovercometheseissues(Tauson,2005).LayJr,etal.(2011)alsosuggestthatfeatherpeckingcanbecomeredirectedforagingbehaviourwhenfactorssuchasdiet,stress,diseaseandovercrowding reduce the opportunity for normal foragingbehaviour. Pastured systemsprovidetheopportunitytoexpressthesenaturalbehaviours.Encouragingbetteruseofrangeareaswillhelpreduceseverefeatherpecking(Lambton,Knowles,Yorke,&Nicol,2010).67Theavailabilityofalternativestobeak-trimmingandtheinternationalexamplesofphasingoutthismethodmakeOptionGpracticaltoimplement.Casestudy:Thebanonbeak-trimminginAustriaBeaktrimmingwasbannedinAustriabycertificationbodiesbythebanwasnotexecutedbecauseofcompetinginterestsbetweencertificationbodiesandfarmers.Amediationprocesswassetuptoresolvetheproblemwhichledtoanagreementwherebeaktrimmingwouldbephasedoutwithanagreedtimetableofreduction.Stepsweretobeputinplacetodealwiththeproblemoffeatherpeckingandcannibalismandtogivefarmersandrearerstheconfidencetomanagehenswithoutbeaktrimming.Thefarmersagreedthat:•Thosewhocontinuedtobeaktriminthefirstyearsaftertheagreementwassignedwouldpayanadditionalcertificationfeewhichincreasedannually.•Thiscreatedafundwhichprovidedaninsuranceschemewhichcompensatedanyfarmerwholostbirdstocannibalismasaresultofkeepingbirdswithintactbeaks.AprojectwassetupandfundedbytheAustrianMinistryofAgriculture,Forestry,EnvironmentandWaterManagementwhichestablishedguidelinesforfarmersandconductedaliteraturesearchtocollectallinformationavailableconcerningfeatherpeckinganditscausestheagreementphasingbeak-trimmingoutwassignedinJune2000.Headdsthatsince2005,therehasbeenverylittlebeaktrimminginalternativehusbandryinAustria.Itdroppedfromapeakofjustover45%in2001tounder5%by2005.Itiscurrentlyjustover1%.Theprocessofphasingbeaktrimmingouttookfourandahalfyearsfromthesigningoftheagreement.Levelsofbeaktrimmingstartedtodropafter2001astheagreementtookeffect.Thiswasfollowedbyasmallincreaseinbothfeatherpeckingandthemoreseriousinjuriouspecking.However,astheprojecttoaddresstheseproblemsadvanced,levelsofbothdroppedatthesametimeasbeaktrimmingcontinuedtobephasedout.Injuriouspeckingandfeatherpeckingaremulti-factorialintheirorigin.Anintegratedapproachisrequiredincluding:•Suitablebreeds•Appropriatestockingdensitiesinbothrearingandlayinghouses•Provisionofraisedperches 67PROOF,https://www.proof.net.au/egg-farming

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•Rearingsystemswithasimilarlayouttolayinghouses•Highproteindiets,especiallyintheearlystagesoflay•Controlofweightgain,especiallyinrear•Aproperhealthplanincludingvaccination•Goodclimatemanagement,especiallylevelsofpollutantssuchasammonia•Developmentofgoodhuman-animalrelationships•Highlevelsofstockmanshipandmanagementincludingrecordkeeping.Itisimportantthathensarebredfordocilityandagainstthetendenciestowardsfeatherpeckingandcannibalism.InAustria,thebreedLohmann’sBrowndominatesthemarket,bothinintensiveandinalternativesystems.AminorityofalternativesystemsusetheLohmann’sTraditionbreed.OtherbreedsarerarelyusedinAustria,despitetheattemptsoftheirsalesmen.WhileAustriansystemsarenotfreeoffeatherpecking,levelsofthemoreseriousinjuriouspeckingincludingcannibalismhavebeenreducedatthesametimeaslevelsofbeaktrimming.InAustria,itisseldomforflockstohavelevelsofinjuriouspeckingthatincreasemortality.Mostimportantly,thestepsrequiredtomanageflockswithoutbeak-trimmingactuallymanagedtoreducefeatherpeckingandcannibalismatthesametime,creatingawin-winsituationwhichwasalsogoodforproduction.Theavoidanceoffeatherpeckingandinjuriouspeckinginbirdswithintactbeaksisakeymeasureofgoodwelfareinlayinghens.Providedthatinjuriouspeckingcanbecontrolled,thephasingoutofbeak-trimmingisgoodforbothproductionandwelfare.Itisapparentthattheproposedstandardsforbeakandbilltrimmingofpoultrydonotacknowledgethepainassociatedwiththisprocedure.68WesupporttheRSPCA’srecommendationthatstricterstandardsmustbeintroducedaroundbeakandbill-trimmingtoensurethatitisnotperformedunlessnecessaryforanimalwelfarereasons,anditisperformedappropriately,withminimalimpactsonthebirds.

StandardsonStunning,SlaughterandOn-farmKillingIt is unclear whether on-ground consultation and research took place for slaughterhouses. ThefollowingmethodsarepermittedintheProposedDraft:

a. Macerationpermittedunderguidelines–PartA,10,GA10.2.b. Using gas (carbondioxide or amixture of inert gas) is accepted under the list of

acceptablemethodsasaguidelineonly–PartA,10,GA10.2.MacerationofmalechicksMacerationisaconsideredahumanemethodforkillingmalechicks.TheRSPCAhasstatedthat‘quickmacerationensuresthechickiskilledwithinasecondand,ifcarriedouteffectivelyandcompetently,

68RSPCA

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this methodmay be consideredmore humane than gassingwith high concentrations of carbondioxide.Gassingresultsingaspingandheadshakingand,dependingonthemixtureofgasesused,itmaytakeuptotwominutesforthechicktodie.’Weurgetheeggindustrytoinvestinalternativesthatavoidthepotentialforpainandsufferingwithcurrent killing methods of male chicks. The RSPCA has urges the Government to invest in andprogressresearchandalternativestoallowchicksextobedeterminedintheearlyeggincubationphase.GaskillsTheWorldAnimalProtection(WAP)’ssuggestionsfor improvinganimalwelfarestandardsat theslaughterhouseinclude:

• Useofhumanehandlingtechniques;• Pre-slaughterstunning,whichstopsanimalsfeelingpain;• Correctuseofstunningandrestrainingequipment;• Handlingpigsingroupstoreducestressonindividualanimals;• Installationofbluelampstocalmpoultry;• Useofnon-slipfloorsandlow-anglerampstostopanimalsfallingandgettinginjured;• Dohumaneslaughtertrainingforslaughterhouses;• Helpcompaniesintroducepoliciesandguidelinesonhumaneslaughter;• Callforlegislationandcodesofpracticeonhumaneslaughter;and• Workwithvetschoolstointroduceteachingonhumaneslaughter.69

TheWAPreferredtoafive-yearstudyofhumaneslaughtertrainingthatfoundthatabattoirsearnedabetterreputationbyusinghumanemethods,helpingthemcompeteglobally.Staffmoraleimprovedtoo.Andbecausefeweranimalswereinjured,fewercarcasseswerebruised–improvingmeatquality.InoneslaughterplantinBrazil,63%feweranimalswerebruisedfollowingourtraining.70Someissuesinslaughterhouses/plants

1. Thevalueofslaughterhouseworkersandtrainingisnotmeasured;and2. Societydoesnotcurrentlysupportitsmainproductionmeansbutratherslaughterhousesare

“brutalised”,whichmakessupplychainnotworththewhile(Studies have been done on the “dehumanisation of slaughterhouse facilities” and thebrutalisationofpeopleworkinginthisfield.)

These issues should be addressed so to improve the capacity and training of operators inslaughterhouses.

69https://www.worldanimalprotection.org.au/our-work/animals-farming-supporting-70-billion-animals/humane-slaughter-how-we-reduce-animalWorldAnimalProtectionLimited(formerlyWSPAAustraliaLimited)‘Humaneslaughter:howwereduceanimalsuffering’(2014)70WorldAnimalProtection

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TempleGrandincompletedresearchonthesubjectofstunningatslaughterplants.Inherresearchshesuggeststhatnumericalscoringhelpedtogreatlyimproveconditionsofanimalwelfare.Animalscan be assessed for body condition, lameness, swollen joints, coat/feather cleanliness, neglectedinjuries,andeaseofhandling.71Appropriate training and protection for workers within slaughterhouses are paramount toimprovingthewelfareofpoultryinprocessingplants.MoreresearchonthisissueisrequiredbeforetheProposedDraftcanbefinalised.Theproposedstandardsmustbettersafeguardthewelfareofpoultryatabattoirsandon-farm.72TheassessmentofwelfareattheprocessingstagewasprovidedintheProposedDraft.UndertheHumane Killing guidelines on page 34, an exposure of 35 seconds of CO2 and inert gases wererecommendedforkilling.Also“captivebolts”,“blunttrauma”and“exsanguination”wereacceptable.Theeffectivenessofthesemethodstokillfromaprocessor’sperspectiveappearstobeoverlookedentirely.We are concerned as towhether thedrafting process involved consultationwith actualslaughterhouseworkersandowners.Welfare-relatingprocessingissueswithinabattoirfacilities,wefear,maybeundeclareddue to strict regulationof themeat industry. It is alsopossible that thereviewed scienceused todecideupon theProposedDraft is outdatedand limited.TheDraftRISfurther does not considermobile slaughter facilities. The Victorian Government’s Farmed BirdAnimalWelfare Science Review does, however recognise slaughter as a vital part of the farmingprocess.The RSPCA recommended thatmore requirements are needed in chapter 11 – poultry atslaughtering establishments to ensure welfare at abattoirs, and to prevent failures. Thisincludesspecificationsforelectricalwaterbathandcontrolledatmospherestunningsystems,arequirementforCCTVcamerasinallabattoirs,anddesignatedanimalwelfareofficersinallabattoirs. More requirements are also needed in chapter 10 – humane killing to includeunacceptablemethods.LightingTheproposedstandardsallowpoultry tobekept innear-darkconditions formostof their lives,notallowingtheexpressionofnormalbehavioursandeyedevelopment,andwithoutadequatelightanddarkperiodsfornormalbehaviourandrest.73Inpasture-basedsystems,rotationsallowpreviouslyusedareastobeexposedtosunlightandthedryingeffectsareverybeneficialagainstpathogens.Withproperaccesstoshade,birdscancontroltheleveloflightingthattheyrequire.

71TempleGrandin,On-farmconditionsthatcompriseanimalwelfarethatcanbemonitoredattheslaughterplant.72RSPCA73RSPCA

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Lightingprogramsmayberequired incaseswhere thereovercrowding,whichcancause featherpeckingand cannibalism.However, thiswould rarelyoccur inpasture-based systemswerebirdshavetheabilitytocarryournormalbehaviourinlowerstockingrates.We support RSPCA’s recommendation in relation the lighting: The amending of standardSA6.3inchapter6–Lightingtoensurethattheminimumlightintensitiesforallpoultrybeincreasedtoatleast10lux,andamendingstandardSA6.5torequire8hoursofcontinuousdarknessineach24hourperiodforallpoultry.WeaddtothisrecommendationthatthisbeatemporaryStandardinconsiderationofarecommendedphaseoutofindoorpoultrysystems.InducedMoultingTheProposedDraftpermitsinducedmoultingincertaincircumstances.Theyallowforcedmoultingwherebirdscomingtowardsend-of-layundergoaperiodofstressbecauseofasuddenchangeinfeedand,asaresult,losealargeamountoffeathersandbodyweight.74Coordinatedinducedmoultingismanipulationofhens’endocrinesystem,reproductivetissueandfunction,lymphoidstructureandimmunefunction.Itisdonebyenvironmentalandnutritionalcuesandused indomestichens toregressandregenerate thereproductive tract. In the industry, thisincreases egg production and the quality of eggshells.75 However, induced moulting can inducetemporaryrecrudescenceoflymphoidtissuesandmayalterimmunefunctioninhens.76Studieshavefoundthatinducedmoultingprobablyhasanegativeeffectonthecellularcomponentoftheimmunesystemofthemoultedbirds.77Otherresearch,whichexaminedthebehaviourofhenssubjectedtodifferenttreatmentsofinducedmoultingunderpre-moult,moult,andpost-moultconditions,foundthatcagepeckingincreasedinfast-inducedsubjectsandaggressionincreasedinfast-inducedandnonfast-inducedsubjectsduringthemoult. Inaddition,thedata foundthat “gakelvocalisations” inhensmayserveasaneffectiveindicatorforassessingwell-beinginaspeciesotherwisebehaviourallystoicinexpressingstressordiscomfort.78ThesupportingpapertotheDraftStandardsalreadyidentifiedthatinducedmoultingofhensareassociatedwiththeincreasedincidenceofSalmonellaenteritidis.WesupporttheRSPCA’srecommendationthatStandardsbeintroducedtoensurethatpoultryarenotforcedtomoult.

74RSPCA75B.Heryanto,Y.Yoshimura,T.Tamura,T.Okamoto,Involvementofapoptosisandlysosomalhydrolaseactivityintheoviducalregressionduringinducedmoltinginchickens:acytochemicalstudyforendlabelingoffragmentedDNAandacidphosphatase,PoultryScience,Volume76,Issue1,1January1997,Pages67–72,https://doi.org/10.1093/ps/76.1.6776WDBerry,Thephysiologyofinducedmolting,PoultryScience,Volume82,Issue6,1June2003,Pages971–980,https://doi.org/10.1093/ps/82.6.97177PSHolt,Effectsofinducedmoultingonimmuneresponsesofhens,Pages165-175,Publishedonline:08Nov2007.78BrendaMcCowan,JoanSchrader,AnnMarieDiLorenzo,CarolCardona,&DonaldKlingborg,EffectsofInducedMoltingontheWell-BeingofEgg-LayingHens,Pages9-23|Publishedonline:04Jun2010

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Regulatoryissues

1. Failuretorecogniseinternationalexamplesofsuchstandards.It is a government responsibility and function tomonitor animalwelfaredevelopments in otherstates/territories, countries, research organisations and welfare organisations.79 For example,AgricultureVictoriacarriesoutanumberofimportantanimalwelfarerelatedfunctionsincludingtheabovemonitoring.Formany years,RSPCAAustralia has emphasised the importance of ensuring the standards reviewprocessisinformedbyathoroughreviewofrelevantdomesticandinternationalscientificliterature,conductedbyan independent scientificadvisorycommittee. Internationally, this is recognisedasanessential step in the development and review of evidence-based animal welfare standards.Unfortunately, no such process yet exists in the standards development process in Australia. In theabsenceofagovernment-initiatedindependentscientificreview,RSPCAAustraliaprovidesthisreviewonthecurrentsciencerelatingtothewelfareof layerhensincageandcage-freehousingsystemsinAustralia.80The ProposedDraftmust abide by its self-regulated decision-makingprincipleswhich consist ofensuringthestandardsare:

• Desirableforlivestockwelfare;• Feasibleforindustryandgovernmenttoimplement;• Importantforthelivestock-welfareregulatoryframework;and• Achievetheintendedoutcomeforlivestockwelfare.

Weemphasisethattheseprinciplesneedtobebalancedequallyasconsiderationsinthedecision-makingprocess,astheprocesssofarhasnotachieveddesirableoutcomesforpoultrywelfareandhasfavouredfeasibilityoftheindustryoverconsiderationsofconsumersandsmall-sectorfarmers.Recommendation: Explore research on alternative agricultural production occurringinternationallyinordergainamorecomprehensiveunderstandingofthebenefitsofpasture-basedpoultrysystems.

2. WouldtheoutcomesoftheRISOptionsmeettheAustralianAnimalWelfareStrategy?

ThegoalsoftheAnimalWelfareStrategy(AAWS)focusonanimals,nationalsystems,peopleandtheinternationalscene.Theyincludethefollowing:

• Goal1:Animals–Thewelfareneedsofanimalsareunderstoodandmet.

79http://agriculture.vic.gov.au/agriculture/animal-health-and-welfare/animal-welfare/DEDJTR-role-in-animal-welfare80RSPCA,TheWelfareofLayerHensinCageandCage-FreeHousingSystems..

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• Goal2:NationalSystems–Nationalsystemsdeliverconsistentanimalwelfareoutcomesandgiveprioritytoongoingimprovements.

• Goal 3: People– Peoplemake ethical decisions regarding animalwelfare, supported byknowledgeandskills.

• Goal 4: International– Australia is actively engaged in international partnerships anddevelopmentstoimproveanimalwelfare.81

Thevisionwastoestablishnationallivestockwelfarestandardsthatreflectcontemporaryscientificknowledge,competentanimalhusbandryandmainstreamcommunityexpectations,andthatthesearemaintainedandenforcedinaconsistent,cost-effectivemanner.As a cornerstone of the AAWS, the objective for national livestock welfare standards, withcomplementaryguidelines,wastoprovidewelfareoutcomesthatmeetcommunityandinternationalexpectationsandreflectAustralia’spositionasa leader inmodern,sustainableandscientifically-basedwelfarepractice.82The AAWS intended to consolidate information from each of the animal use sectors as well asresourcesforeducationandtrainingalongwithresearchanddevelopment.Itwasaimedatbringingtogether allmembersof the communityand isa key information resourceonanimalwelfare forAustralia.83ThedeliveryoftheseobjectivesandaimshasnotbeenachieveintheProposedDraft.In the final cost/benefit comparison between Options A, B, C, D, E, F and G and the finalrecommendationonapreferredoptiontoAGMINaspartoftheDecisionRIS,furtherdatashouldbeincludedaboutsmallpasturedpoultrybusinesses.Thiswouldassistintheassessmentoftheimpacts(costsandbenefits)expectedundereachoption,andpotentiallyinfluenceavariationtotheoptionsavailable.InaFacebookpollbyAFSA,asking‘whichoptionwouldyouliketheGovernmenttotakefortheupcomingchangestoPoultryWelfareregulations?’(outoftheoptionsfromtheRIS),thefollowingresultswereprovided:10-yearphase-outofbattery(cage)systems

57.1%Noneoftheabove(noneoftheoptions)

42.9Thisshowsthatthereisaconsiderablepercentageofpeoplewhoprefertooptforanalternativeoption.

81http://www.agriculture.gov.au/animal/welfare/aaws,AustralianGovernment,DepartmentofWaterandAgriculturalResources,AustralianAnimalWelfareStrategy–AAWS.82Seehereforthebusinessstrategyhttp://www.animalwelfarestandards.net.au/files/2011/01/Animal-Welfare-Standards-and-Guidelines-Development-Business-Plan.pdfDevelopmentofAustralianStandardsandGuidelinesfortheWelfareofLivestockBUSINESSPLAN(RevisedFebruary2009)83http://www.agriculture.gov.au/animal/welfare/aaws,AustralianGovernment,DepartmentofWaterandAgriculturalResources,AustralianAnimalWelfareStrategy–AAWS.

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Recommendation:Phaseoutbatterysystemsinthenext3 -5yearsandphaseoutallcagesystemsinthenext10years.ThisshouldbedoneusingastrategytotransitiontheindustrysuchasthatusedinAustria(wherebatterycageswereprohibitedin2009)84,andsupportinglong-termmanagementofcage-freesystemsasdoneacrosstheEU.Recommendation:Currentpracticeofrearingpoultryoutdoorsonpastureforeggandmeatproduction be considered with the updated or new Regulatory Impact Statement and beaddedasasupportingpapertoreflecttheabsentdataonAustralianpoultryfarms.

3. PublicconsultationissuesInthepast,broadconsensushasbeenachievedamongstallgovernmentsandpeakindustrybodiesregardingapreferredprocessforrevisinganddevelopingnewwelfarestandardsandguidelines.85However, consensushasneverbeenachievedbetweengovernmentsand the small-scale farmingsector.Interestshavebeenmisrepresentedandoverlookedpriortoandduringthedraftingprocessof the proposed standards and guidelines.86 The 90-day period of public consultation for theProposedDraftstandardsandguidelinesprovidedlittleopportunityformanyfarmerstoaccessandreviewthehundredsofpagesofdocumentstoformaviewontheanimalwelfarestandards.Alistofpublicconsultationwasprovidedaspartofthepublicconsultation.ToQuestion18,werespondthatsmallbusinesseswouldbedisproportionatelyimpactedonbyOptionsA,butit isunknownforG.OptionA,tomaintainthestatusquo,alreadydisproportionatelyaffectssmall-scalefarmers.Nopublicconsultationswereimmediatelyofferedtomembersofthepublic.InformationsessionsinNSW,includingoneheldinSydney(ametropolitanlocationdistantfromregionalruraltowns)wereonlyplannedlastminuteandhardlyreachedthemajorityofourmembers.Lack of consultationwith the community and of representation from small-scale growers haveexacerbated the trend towards overregulation and red tape. The needs of communities areconstantly diversifying, and regulators needs to understand andworkwith communities to getbroad agreement before implementing changes. The proposed regulations are not entirelycompatiblewithgoodregulatorypractice,whichshouldachievepolicyobjectivesattheleastcosttothecommunity.

84RSPCA(2016)Thewelfareoflayerhensincaseandcage-freehousingsystems..85http://www.agriculture.gov.au/animal/welfare/aaws,AustralianGovernment,DepartmentofWaterandAgriculturalResources,AustralianAnimalWelfareStrategy–AAWS.86See‘SystemicCollusion’above

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ImagesofPasturedPoultry

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Photofrom:https://www.allandaleeggs.com.au/