ANNEX 3 INVESTIGATION REPORT INTO ALLEGED NON-COMPLIANCE WITH ESCAS ANIMAL WELFARE PERFORMANCE MEASURES AND TARGETS: NORTH AUSTRALIAN CATTLE COMPANY PTY LTD AT ABATTOIR 3 SUMMARY Abattoir 3 slaughters only cattle from North Australian Cattle Company (NACC)’s approved Exporter Supply Chain Assurance System (ESCAS); therefore, all cattle seen in the video footage were sourced from Australia. The investigation finds that the video footage shows 14 slaughter practices that are noncompliant with ESCAS animal welfare performance measures and targets. The investigation recommends that the Secretary take regulatory action with regard to NACC. The investigation makes four observations. 1. INTRODUCTION This is the report of an investigation into allegations made by Animals Australia to the Department of Agriculture, Fisheries and Forestry (DAFF), of non-compliance with ESCAS animal welfare performance measures and targets. For the purposes of this investigation the abattoir at which the non-compliances were alleged to have occurred is named ‘Abattoir 3’. DAFF identified that Abattoir 3 is part of the approved ESCAS of the North Australian Cattle Company Pty Ltd (NACC). 2. SOURCES OF INFORMATION 1. Formal complaint and video footage sent to DAFF by Animals Australia 2. Analysis of the video footage by RSPCA Australia 3. Animal welfare assessment of the video footage by DAFF Animal Welfare Branch and the Office of the Chief Veterinary Officer 4. ESCAS documentation previously provided by NACC 5. Report from NACC including: o summary report of their internal investigation o analysis of the video footage o number of cattle exported under ESCAS (including breakdown by consignment and abattoir) o audit reports o list of cattle slaughtered in Abattoir 3 o standard operating procedures (SOPs) for Abattoir 3 o corrective actions taken by NACC in response to the video footage. Page 1 of 8 3. EVALUATION OF INFORMATION 3.1. Complaint and video footage from Animals Australia The video footage made at Abattoir 3 shows the slaughter without stunning of four cattle, using a Mark 4 slaughter restraint box with head/neck restraint. Two other slaughter restraint boxes are visible in the background; one that appears to be a Modified Mark 1 slaughter restraint box (with stunning stand) to the far right of the scene, and an unidentified slaughter restraint box to the far left. Neither is seen in use during the video footage. The video footage also includes vision of a second abattoir at the same location. A scene of the videographer walking between facilities is included. Two of the cattle have eartags that are not clearly visible: Animal given the identification 01: A single tag in the left ear that is yellow and green, or one yellow tag and one green tag. Animal given the identification 04: A green tag in the left ear. It is not possible to see any writing on any of the eartags. No brands are visible on the cattle seen being slaughtered. 3.2. Animal welfare assessment of the video footage by DAFF Animal Welfare Branch and the Office of the Chief Veterinary Officer Officers from the DAFF Animal Welfare Branch, and the Office of the Chief Veterinary Officer reviewed the video footage against ESCAS animal welfare performance measures and targets. These performance measures and targets are on the DAFF website at daff.gov.au /__data/assets/word_doc/0004/2133445/Guidance-on-Meeting-OIE-Code-Animal-WelfareOutcomes-for-Cattle-and-Buffalo.doc. The cattle seen in the video footage could not be identified by eartag, and so were given identification numbers by this investigation. The assessment of the video footage by DAFF Animal Welfare Branch and the Office of the Chief Veterinary Officer shows 14 non-compliances against several aspects of ESCAS animal welfare performance measures and targets. The full text of the Animal Welfare Branch and the Office of the Chief Veterinary Officer review is at Appendix A of this Annex. This investigation used the animal welfare assessment to compile a table of compliance, or non-compliance against ESCAS animal welfare performance measures and targets. The result is set out at Table 1. Page 2 of 8 Table 1: Assessment of the video footage against animal welfare performance measures and targets Compliant or non-compliant Animal welfare performance measure or target 6.6 6.8 6.9 6.12 6.14 6.15 The head is restrained for as short a time as possible prior to sticking, and in no case for longer than 10 seconds The head of the animal is kept in extension to prevent the edges of the wounds touching until the animal is dead The method of restraint employed is working effectively The throat is cut using a single, deep, uninterrupted fast stroke of the knife. Death, indicated by cessation of pulsatile bleeding and lack of corneal reflex and lack of rhythmic breathing, is assured before performing any other procedures Animals must not have water thrown on them or be otherwise disturbed prior to confirmed death Animal ID 01 02 07 08 Noncompliant Noncompliant Compliant Compliant Noncompliant Noncompliant Noncompliant Noncompliant Inconclusive Not assessed Not assessed Non compliant Not assessed Not assessed Inconclusive Not assessed Noncompliant Not assessed Noncompliant Noncompliant Noncompliant Noncompliant Noncompliant Noncompliant Note: The video did not show the full slaughter process for all four head of cattle; therefore, some animal welfare performance measures or targets cannot be assessed at all, and some cannot be assessed for all cattle. In the latter case, the table cell has the entry ‘Not assessed’. There are a total of 14 non-compliances. 3.3. ESCAS documentation previously provided by NACC NACC submitted an initial audit report to DAFF as part of the documentation for their initial ESCAS assessment. The audit report noted that slaughter without stunning occurred at Abattoir 3. A non-conformity relating to traceability was noted at an earlier audit, but was closed out in this audit, and there were no outstanding non-conformities. The audit noted no non-conformities relating to animal welfare. 3.4. Report from NACC On 14 March 2012, DAFF received a reply from NACC to a Directions Letter DAFF had sent on 1 March 2012. The Directions Letter requested information about an abattoir included in one of NACC’s export supply chains that DAFF had identified as a possible match for the abattoir in the video footage. NACC’s reply letter: o confirmed that the abattoir seen in the video footage was the abattoir in NACC’s supply chain, that this investigation had designated Abattoir 3 Page 3 of 8 o contained records of the total number of cattle exported under the ESCAS, including a breakdown of numbers sent to each abattoir in their approved ESCAS o contained NACC’s own analysis of the video footage o contained steps taken by NACC since receiving the Directions Letter, which included: – an NACC representative attending the abattoir immediately and monitoring slaughter activity, addressing all staff and reinforcing the Animal Welfare Standards – arranging an audit of the abattoir, and arranging for further training of abattoir staff. NACC analysis of the video footage NACC identified several non-compliances against ESCAS animal welfare performance measures and targets. Cattle sent to Abattoir 3 The response from NACC on 14 March 2012 indicated that at that time, cattle from 10 consignments that NACC has exported through its ESCAS had been slaughtered at Abattoir 3. NACC confirmed that the only cattle slaughtered at Abattoir 3 are cattle they export from Australia. They also provided a list detailing the cattle slaughtered at Abattoir 3 on the dates that the video footage was made; 47 of their cattle were slaughtered on 24 January 2012 and 44 were slaughtered on 26 January 2012. Standard operating procedures NACC provided a translated copy of the SOPs used at Abattoir 3. This SOP sets out procedures to be followed during the slaughter process, with specific reference to procedures to address Animal Welfare Performance Targets 6.6, 6.14 and 6.15. Although the SOPs at Abattoir 3 are of a good standard, some improvements could be made to detailed procedures. The video shows that Abattoir 3 staff do not properly follow the SOPs, which indicates that additional staff training is required so that animal welfare performance measures and targets can be met. Animal welfare performance audit NACC also provided an animal welfare performance audit report that included a site visit on 6 March 2012, i.e. after the date the video footage was made and after the initial visit by an NACC representative in which animal welfare standards were reinforced in discussions with staff. The performance audit was only for Abattoir 3; no other elements of the supply chain were audited. This audit report noted that slaughter without stunning occurred using both Mark 4 slaughter restraint boxes (with and without ‘head’ restraint). The audit report also noted no non-conformities. Page 4 of 8 3.5. NACC actions and outcomes Upon becoming aware of the video footage, NACC immediately sent a representative to Abattoir 3. This allowed NACC to confirm the identity of the abattoir seen in the video footage. The representative monitored the slaughter process for four consecutive nights. NACC issued a document to Abattoir 3 reiterating their obligations under their contractual arrangements, a copy of which was provided to DAFF. NACC identified several breaches of animal welfare that had occurred. They arranged for additional refresher training from Meat and Livestock Australia for all staff at Abattoir 3. NACC also identified the need for a more recent audit, and so engaged the independent auditor they previously used at Abattoir 3, to immediately perform a new audit. This audit was performed on 6 March 2012, and the report was provided to DAFF as part of NACC’s initial response to DAFF’s Directions Letter. The audit noted no non-compliances with the animal welfare checklist at the time of the audit. NACC also identified that the second Mark 4 slaughter restraint box at Abattoir 3 lacks a head restraint. NACC confirmed in later correspondence that the head restraint was installed in the week of 19 March 2012. 4. FINDINGS 4.1 Is the abattoir part of an approved ESCAS? Picture 1 is a still scene of Abattoir 3 taken from the video footage. Picture 2 is of Abattoir 3, provided by NACC. Picture 1. Still scene from the video footage made at Abattoir 3, showing slaughter using a Mark 4 slaughter restraint box with head restraint Page 5 of 8 [This image was removed as it may offend] Picture 2: Photograph of Abattoir 3 provided by NACC Note that in the still scene and the photograph, the Mark 4 slaughter restraint box with head restraint; the position of the column; and the background tiling are identical. The identification of the abattoir as Abattoir 3 was also directly confirmed by NACC and by the Indonesian Ministry of Agriculture. According to NACC, Abattoir 3 contains three slaughter lines and slaughter restraint boxes: o one slaughter line that uses a Mark 4 slaughter restraint box with head restraint o one slaughter line that uses a Mark 4 slaughter restraint box without head restraint o one slaughter line that uses a custom-built slaughter restraint box. This evidence shows that abattoir seen in the video footage is consistent with the abattoir in an approved ESCAS, that this investigation has designated Abattoir 3. 4.2 Were the cattle sourced from Australia under an approved ESCAS? NACC has confirmed that cattle they had exported from Australia were slaughtered in Abattoir 3 on the dates (24–26 January 2012) that the video footage was made. The cattle slaughtered on those dates were exported in consignments that were compliant with the Export Control (Animals) Order 2004 and Australian Meat and Livestock Industry (Export of live-stock to the Republic of Indonesia) Order 2001(No. 2), and subject to an approved ESCAS. NACC has exclusive use of Abattoir 3, i.e. no animals other than their own are slaughtered at Abattoir 3. This is sufficient to conclude that the cattle seen in the video footage were sourced from Australia. 4.3 Is there any non-compliance with ESCAS animal welfare performance measures and targets? Officers from DAFF’s Animal Welfare Branch and the Office of the Chief Veterinary Officer assessed the video footage. They identified 14 non-compliances against several items of the ESCAS animal welfare performance measures and targets. This number of non-compliances, and the non-compliance with animal welfare performance measures and targets 6.8 and 6.15 for all four head of cattle, indicate a systemic loss of control over animal welfare, to the degree that it is likely that other cattle slaughtered in Abattoir 3 were subject to the same noncompliances. Standard operating procedures As noted above, NACC provided a translated copy of the SOP used at Abattoir 3. This SOP sets out procedures to be followed during the slaughter process, with specific reference to procedures to address Animal Welfare Performance Targets 6.6, 6.14 and 6.15. The slaughter procedure seen in the video footage did not conform to the SOP. 4.4 Is there any non-compliance with other aspects of ESCAS? Control Page 6 of 8 Fourteen non-compliances in total, and the non-compliance with performance measures and targets 6.8 and 6.15 for all four cattle, indicate a systemic loss of control over animal welfare. The fact that these animal welfare non-compliances were detected by an external party, not by NACC’s internal quality control procedures, indicates reduced control over ILE’s approved ESCAS. Traceability NACC provided documentation detailing the movements of cattle to abattoirs within the approved ESCAS under investigation. There is no indication of a loss of traceability within the approved supply chain. 4.5 Is there reason for the Secretary to take regulatory action? Abattoir 3 is part of NACC’s approved ESCAS, and the four cattle seen being slaughtered in the video footage were sourced from Australia and exported under an approved ESCAS. The video footage shows 14 non-compliances with ESCAS animal welfare performance measures and targets during the slaughter of the cattle. This number of non-compliances indicates a systemic loss of control over animal welfare. The fact that these non-compliances were detected by an external party, not by NACC’s internal quality control procedures, indicates reduced control over NACC’s approved ESCAS. For these reasons, the Secretary should take regulatory action with regard to NACC in accordance with the ‘Guideline: Management of Non Compliance: Exporter supply chain assurance system (ESCAS) for feeder and slaughter livestock to Indonesia’. Page 7 of 8 5. OBSERVATIONS There is evidence that multiple lines and slaughter restraint boxes exist within Abattoir 3, not all of which are contained in NACC’s ESCAS. Abattoir 3 contains two Mark 4 slaughter restraint boxes, as identified and approved in NACC’s ESCAS, but this investigation has revealed that these slaughter restraint boxes may vary in their exact configurations, and that other slaughter restraint boxes are present on Abattoir 3. This raises the issue that additional assurances may be needed to ensure the use of only those slaughter restraint boxes and lines that are part of an approved ESCAS. In August 2011, the Australian Chief Veterinary Officer released a review report on the Meat and Livestock Australia (MLA) – designed Mark 4 slaughter restraint box (Schipp 2011). This slaughter restraint box contains a head restraint strap to provide adequate head restraint at the time of slaughter. NACC has identified that at Abattoir 3, one of the Mark 4 slaughter restraint boxes does not have any head or neck restraint, and the second Mark 4 slaughter restraint box (seen in the video footage) has a hydraulic neck restraint, but not a head restraint as per the MLA design. From the foregoing, this investigation makes the following observations: 1. DAFF should investigate and clarify what constitutes acceptable head restraint on a Mark 4 slaughter restraint box, for slaughter without stunning. 2. DAFF should consider the impact of slaughter restraint box design variations on animal welfare at the time of slaughter. This consideration may necessitate seeking additional information on existing ‘copy Mark 4’ slaughter restraint boxes that are part of an approved ESCAS. 3. The Secretary could require in future ESCAS applications, identification of any abattoirs that contain multiple slaughter lines/slaughter restraint boxes. Details should include (but not be limited to) descriptions of all lines/slaughter restraint boxes available on a single premises; clear identification of which ones are part of the ESCAS application; what slaughter or other processing will occur on other lines present; and what measures will be taken to ensure slaughter of cattle sourced from Australia is done only on lines/slaughter restraint boxes that are part of an approved ESCAS. 4. The Secretary could require in future ESCAS applications that exporters advise whether any local livestock are slaughtered in abattoirs included in ESCAS applications, so that this can be considered in identification of cattle in any future investigation. 6. REFERENCES Centre for International Economics, 2011, LIVE 156, The contribution of the Australian live export industry, Meat and Livestock Australia, July 2011 p40 Perkins et al, 2010, LIVE 131, Linking pre export factors to post delivery performance in cattle exported from northern Australia to Indonesia, Meat and Livestock Australia, October 2010 pp16–17 Schipp M, 2011, An assessment of the ongoing appropriateness of Mark 1 and IV restraint boxes, Australian Government Department of Agriculture, Fisheries and Forestry, Canberra Page 8 of 8 ABATTOIR 3 Livestock 01 – Video footage file 447 – Mark 4 slaughter restraint box Comments: Generally calm and well managed procedure, knives sharpened etc DAFF AWB description of slaughter activity DAFF AWB assessment 6.6 The head is restrained for as short a time as possible prior to sticking, and in no case for longer than 10 seconds 20 seconds of effective manual head restraint before sticking Non-compliant 6.8 The head of the animal is kept in extension to prevent the edges of the wounds touching until the animal is dead 6.9 The method of restraint employed is working effectively Head not restrained to maintain extension after sticking Non-compliant When laid on side animal displays no signs of distress and head restraint is rapidly applied without multiple attempts or delay Inconclusive 6.14 Death, indicated by cessation of pulsatile bleeding and lack of corneal reflex and lack of rhythmic breathing, is assured before performing any other procedures 6.15 Animals must not have water thrown on them or be otherwise disturbed prior to confirmed death No check of cranial or somatic reflexes Non-compliant Water being run on and around body (stick + 40 seconds with certainty) and wound handled (stick + 51 seconds) w/out checking for signs consistent with death Non-compliant DAFF AWB assessment DAFF investigation assessment Minor welfare impact as this animal appears calm and not struggling despite presence of people etc. Application of head restraint after lying animal on side has potential to be serious problem if animal wet and distressed Minor welfare impact as this animal appears calm and not struggling despite presence of people etc. High risk however if this was not the case Non-compliant Vocalisation cannot be confirmed or denied with certainty due to the quality of the footage and sound track. The target is that < 5% of animals vocalise during restraint. Animal appears calm when laid down so any distress it may have been experiencing when in the restraint box initially was minor and transient Minor in this case but major area of risk. Checking that the animal is dead before undertaking further procedures is the animal welfare 'critical control point' during unstunned slaughter Inconclusive Minor direct impact observed. No signs of sensibility associated with these interventions Non-compliant Non-compliant Non-compliant APPENDIX A DAFF animal welfare checklist number Livestock 02 – Video footage file 447 – Mark 4 slaughter restraint box Comments: Overall the operators are calm and methodical but when signs that may be related to struggling by an animal that is still conscious occur, the operators do not stop what they are doing. DAFF animal welfare checklist number DAFF AWB description of slaughter activity DAFF AWB assessment DAFF AWB assessment DAFF investigation assessment 6.6 The head is restrained for as short a time as possible prior to sticking, and in no case for longer than 10 seconds 12 seconds of effective manual head restraint before sticking Non-compliant Minor and marginal Non-compliant 6.8 The head of the animal is kept in extension to prevent the edges of the wounds touching until the animal is dead Head not restrained to maintain extension after sticking Non-compliant Non-compliant 6.15 Animals must not have water thrown on them or be otherwise disturbed prior to confirmed death Water being run on and around neck, body and sticking cut (stick + 8 to 17 seconds with certainty) and further cutting plus handling of sticking wound (stick + 43 seconds) w/out checking for signs consistent with death Non-compliant Minor welfare impact as this animal did not move head etc to create more pain at the wound site. However, agonal breathing appears to be occurring at stick +59 seconds, raising questions about speed of exsanguination Uncertain impact - the further cutting is associated with responses that may indicate consciousness but the footage is not good enough to check for associated signs to confirm whether or not this is the case. It is a high risk area because death has not been assured and the operators do not stop what they are doing to check whether or not the response is associated with consciousness Non-compliant Livestock 07 – Video footage file 502 – Mark 4 slaughter restraint box Comments: Animal is quiet and does not appear to be fighting restraint when footage starts as side of restraint box tilts open at t-21:06. Subsequent operations are performed with a minimum of staff and the welfare outcome - despite the non-conformances - is reasonable under the circumstances. Staff appear to need further training in signs of death and general animal welfare in order to have confidence that the welfare outcome under other circumstances will also be reasonable. DAFF animal welfare checklist number DAFF AWB description of slaughter activity DAFF AWB assessment DAFF AWB assessment DAFF investigation assessment 6.6 The head is restrained for as short a time as possible prior to sticking, and in no case for longer than 10 seconds Workers start to work to restrain the head and neck at t=21:29 and the animal does not appear unduly disturbed. Restraint is complete at t=21:40 as the person shooting the video is moving towards the restraint box and sticking appears to start at t=21:47 (unclear due to image movement) and continues until t=21:51 Sticking complete at t=21:51 and head restraint released by t=21:56. The animal will not be dead in this time Disturbance in the footage due to movement makes it impossible to say with certainty when sticking actually commences plus distance from operation initially means it is impossible to see what is actually occurring in detail. The knife does not appear to leave the wound site Compliant No observable adverse welfare impact Compliant Non-compliant In this instance the welfare impact is minor as the wound edges are not subsequently seen to be touching or touched Non-compliant Inconclusive No impact observable Inconclusive 6.8 The head of the animal is kept in extension to prevent the edges of the wounds touching until the animal is dead. 6.12 The throat is cut using a single, deep, uninterrupted fast stroke of the knife DAFF animal welfare checklist number DAFF AWB description of slaughter activity DAFF AWB assessment 6.14 Death, indicated by cessation of pulsatile bleeding and lack of corneal reflex and lack of rhythmic breathing, is assured before performing any other procedures At t=21:56 the worker holding the head looks into the wound before releasing the ear - he may be checking for completeness of the arterial cut. Subsequent footage does not show any checks of corneal reflex and breathing as specified Water sprayed on head/neck and wound area, starting at t=22:08 Non-compliant No welfare impact in this instance as the animal appears dead when further knife work is undertaken on neck wound starting at t=22:52 Non-compliant Non-compliant Minor welfare impact is apparent in this instance Non-compliant 6.15 Animals must not have water thrown on them or be otherwise disturbed prior to confirmed death DAFF AWB assessment DAFF investigation assessment Livestock 08 – Video footage file 502 – Mark 4 slaughter restraint box Comments: This animal appears agitated in the restraint box starting at t=26:10 and operator reaches in at the front of the restraint box and appears to tap animal on the head with his hand a couple of times to position it for restraint. The animal appears reasonably calm when dropped onto its side. The performance of sticking is non-compliant with 6.12 as there is a 'double cut' involving withdrawal of knife from the wound between the operations but the welfare impact is negligible. Subsequent procedures however indicate that the staff do not understand the principles of animal welfare at slaughter as no attempt is made to prevent further suffering or regain control when it is clear the animal is still experiencing pain and distress. DAFF animal welfare checklist number DAFF AWB description of slaughter activity DAFF AWB assessment DAFF AWB assessment DAFF investigation assessment 6.6 The head is restrained for as short a time as possible prior to sticking, and in no case for longer than 10 seconds Restraint applied at t=27:00 and sticking at 27:03. Compliant No breach observed. - Compliant 6.8 The head of the animal is kept in extension to prevent the edges of the wounds touching until the animal is dead The head is released from restraint immediately after sticking. Water seen to be sprayed on and around neck/wound around t=27:19 and into wound with apparent response struggling at t=27:22 that results in the unrestrained body sliding and the head 'flopping' off the table so that the wound edge is rubbing on the metal edge of the platform. Further struggling at an increased frequency occurs indicating additional pain and distress being sensed Non-compliant Major in this instance - see comments against 6.15 Non-compliant DAFF animal welfare checklist number DAFF AWB description of slaughter activity DAFF AWB assessment 6.9 The method of restraint employed is working effectively. The first attempt to restrain the head (starting at t=26:46) is ineffective as the animal pulls away from the one man involved. Non-compliant In this instance there is a significant and additive adverse welfare impact. This is why the requirement includes that animals cannot escape the restraint Non-compliant 6.14 Death, indicated by cessation of pulsatile bleeding and lack of corneal reflex and lack of rhythmic breathing, is assured before performing any other procedures No checking is apparent but footage is discontinuous. The response to post-stick procedures indicates the animal is still conscious. Non compliant The response of the animal to some of the post-stick procedures indicates it is conscious and experiencing distress. Even if checks were performed, they were incorrectly interpreted or performed. Non compliant 6.15 Animals must not have water thrown on them or be otherwise disturbed prior to confirmed death Water is being sprayed on and around the hind quarters starting at t=27:14 with apparent 'flinching' in response but no increase in struggling. Water seen to be sprayed on and around neck/wound around t=27:19 and into wound with apparent response struggling at t=27:22 that results in the unrestrained body (belly restraint was released at t=27:20 despite activity and tail twitching) sliding and the head 'flopping' off the table so that the wound edge is rubbing on the metal edge of the platform. Further struggling at an increased frequency occurs indicating additional pain and distress being sensed Non-compliant Animal appears conscious and sensing water which when sprayed into the wound area - would cause pain. The response indicates this was consciously sensed and the impact - which is worse due to the lack of effective restraint - is critical Non-compliant DAFF AWB assessment DAFF investigation assessment