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Department of Agriculture

Breadcrumb

  1. Home
  2. Biosecurity and trade
  3. Export
  4. Controlled export goods
  5. Exporting live animals
  6. Livestock
  7. Reforming live animal exports

Sidebar first - Export

  • Livestock
    • Review of the Australian Standards for the Export of Livestock
    • Cattle and buffalo exports by sea
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    • Reforming live animal exports

Reforming live animal exports

As the regulator, we are committed to continuous improvement. We have several live animal export reform activities in progress. These are designed to:

  • increase the efficiency, effectiveness and responsiveness of regulation administration
  • increase transparency of live animal export trade regulations
  • provide community assurance on the effectiveness of live export trade regulations.

These also address many key recommendations from recent reviews.

Key reforms

We have several key projects underway to reform live animal exports.

Australia’s agricultural trade reform

The department is transforming Australia’s agricultural trade export services by:

  • making more services available online
  • streamlining processes for producers to export
  • safeguarding Australia’s reputation as a reliable, high-quality exporter.

Over $450 million is being invested in trade reform initiatives. This includes $328.4 million for The Busting Congestion for Agricultural Exporters package. This package aims to grow and strengthen the agricultural export sector.

These reforms will ensure:

  • it is easier for producers and exporters to get their goods to market
  • Australian products are of the highest standard
  • Australian products meet our trading partners requirements.

The Busting Congestion package includes the following measures that are relevant to live animal exports: 

  • Digital Services To Take Farmers To Markets: This investment of $222 million is delivering modern digital and IT capability to streamline Australia’s agricultural export system. This will help exporters experience faster and more cost-effective services by making more transactions available online through a single export account.
  • Improving Regulation Post–COVID-19 including Targeted Interventions for Seafood and LAE. This measure will build a modern, reliable data reporting and analytics capability. This initiative will support risk-based, data led regulation. This will also ensure regulation is timely, cost-effective and targeted.

In addition, the department is progressing a suite of projects agreed with the livestock export industry via a roundtable working group that are improving the regulatory framework.

We have 6 key projects underway as part of Australia’s agricultural trade reform.

The project aims to streamline the administration process of approved arrangements through:

  • improved business processes, guidance material and IT systems to streamline the process
  • finding a balance between checking individual consignments and checking exporters’ systems
  • timely, proportionate, and predictable action on non-compliance.

Some key deliverables from this project include:

  • implementation of a risk-based and streamlined process for assessing notices of intention (NOIs). This has significantly reduced assessment times.
  • commenced a trial to reduce NOI assessment times and reduce compliance burden on exporters. The trial aims to better accommodate the commercial realities faced by exporters where consignment details can change frequently leading up to the date of export. This trial selected exporters shipping livestock from Darwin to Indonesia. Feedback from the exporters and staff participating in the trial has been positive. The next steps will be to determine whether we can extend the trial to all exporters in that market.  
  • implementation of a National Livestock Identification System tag check automation process for China cattle consignments. This has reduced the time taken for part of the process from 4 hours to 13 minutes.
  • revised and published the list of core documents that livestock exporters with approved arrangements must provide to us for each consignment. 
  • commenced work on a 12-month schedule of enhancements to the Tracking Animal Certification for Export (TRACE) system. These will improve its ability to:
    • automatically advise exporters on required documentation according to export market. This will streamline the management of consignment documentation by exporters and the department
    • provide a centralised location for exporter Approved Arrangement/Approved Export Program documentation. This will improve accessibility for exporters and the department
    • identify changes made to an NOI application after each variation
    • automatically verify information that we hold in different databases
    • provide exporters with automated real-time consignment status tracking and tools. This will allow exporters to advise us on the status of required information

Through the Streamlining Approved Arrangements Framework project, we identified a barrier to implementing more risk-based and targeted regulatory approaches. This barrier was our performance and compliance framework and supporting systems.

We completed 47 hours of detailed user research with:

  • exporters
  • registered establishment operators
  • accredited veterinarians
  • departmental staff.

This research allowed us to better understand the problems with the performance and compliance framework.

We are co-designing an improved live animal export compliance framework with relevant stakeholders. This framework will use digital tools that more accurately reflect exporter compliance. This will support exporters to continuously improve their performance. This will also allow us to respond to non-compliance more precisely.

It will enable us to reduce the regulatory burden on compliant exporters while maintaining the integrity of the trade.

This discovery work is now leading to the creation of a new digital capability, improving how we manage risk and compliance. This will also:

  • reduce regulatory burdens and costs to exporters
  • improve visibility of exporter compliance history throughout the supply chain
  • improve targeting and streamlining of our assessments
  • improve consistency of service delivery.

Our assurance framework refers to all the activities we do to check whether regulated entities are meeting:

  • importing country requirements
  • Australian Government export requirements including animal health and welfare standards.

Regulated entities include exporters, accredited veterinarians, and registered establishments.

These activities include:

  • inspecting livestock
  • assessing documents
  • conducting audits
  • the independent observer program.

We do these activities at different points in the export supply chain such as:

  • at the registered premises prior to export
  • on vessels
  • in overseas countries through the Exporter Supply Chain Assurance System.

Together these activities provide us with assurance that exporters are meeting their requirements. We can then provide assurances to our trading partners and the community.

The project is looking at our framework to see what improvements can be made to support our assurance activities to be more efficient and effective.

The first phase of the project has focused on the independent observer program. The main aims of this part of the project are to:

  • integrate the independent observer program into our assurance framework, and
  • reduce the cost of the program without reducing assurance that animal health and welfare outcomes are being managed on vessels.

This program follows on from recommendations of the Moss Review and departmental feedback.

This program aims to increase clarity on the purpose, role and reporting requirements of AAVs. This will be achieved through further engagement, training and auditing of AAVs.

AAVs play an important role in the regulatory framework, including in pre-export activities and shipboard reporting. By strengthening the AAV program, the public and government can be assured that AAVs and exporters are meeting animal health and welfare standards and importing country requirements.

Some key deliverables from this project include:

  • the AAV accreditation course has been updated, which now reflects changes to export legislation and livestock export standards. This ensures AAVs are provided with the most up to date information to perform their work
  • providing clarity on roles and responsibilities of AAVs throughout the export process. This is being achieved through updating guidelines and providing clarity on their legislative and operational requirements
  • developing a guideline to support AAVs submit and update their material interest declarations. This will ensure the department and AAVs are able to manage conflicts-of-interest in a professional and ethical manner
  • developing an audit and assurance program for AAVs
  • ongoing work to engage with AAVs and provide training to ensure their work is being conducted to the level that is required.

This project focuses on building a modern and reliable data reporting and analytics capability. This will support timely and efficient regulation of all live animal exports. We will achieve this through the development of a digital and integrated reporting model. This will connect live animal export data across the live export supply chain.

This will allow:

  • better identification of trends and potential risks in the live export supply chain
  • us to implement targeted risk-based regulation and policy measures.

Some key deliverables from this project include:

  • building a single integrated reporting model for live animal exports
  • improving our collection, handling and use of data captured under the regulatory framework
  • replacing manual data processes with digital solutions through system enhancements and systems development
  • transitioning to Power BI as a visualisation tool. This also makes data more accessible to users and supports regulatory functions and operations.
  • securing access to external live animal export data systems. This includes developing an automated data transfer system to receive and store regulatory LIVEXCollect data from the Australian Livestock Export Corporation (LiveCorp). LIVEXCollect standardises data entry and reporting, allowing improved data aggregation and analysis.

By March 2022, we estimate that the initial deliverables from this project will reduce departmental costs by $120, 000 a year. This is through time saved on data cleansing, manipulation and analysis.

We are developing policies and procedures to better engage with relevant stakeholders. This will ensure that interested parties can be confident their views on policy matters will be heard. We are also working to ensure our external communications are clear and transparent, so that all stakeholders can be confident of what our requirements are and our approach to regulation.

Some key deliverables from this project include:

  • updated livestock client service standards
  • developing a public stakeholder and communication engagement policy
  • updating information on our websites to ensure information is current and helpful
  • reviewing the current list of EANs and migrating information to appropriate webpages. To date this has reduced the current list of EANs from 180 down to 55, making it easier to check which EANs still apply. This ensures information is easy to find and information is only located in one place.

Animal welfare in livestock exports

We monitor welfare outcomes and conduct regular reviews related to the welfare of livestock for export to inform policy and standards development. Reviews of livestock exports outcomes also guide our reform activities. They help us create better export conditions, standards and regulations. This leads to improved health and welfare of exported livestock.

The Australian Standards for the Export of Livestock (ASEL) are regularly updated to ensure the standards reflect industry and regulatory developments, and the best available science and evidence.

2021/22 reviews include:

  • Heat and cold stress in Bos taurus cattle from southern Australia during long-haul export by sea
  • Review of live sheep exports by sea to, or through, the Middle East during the Northern Hemisphere summer 

The Inspector-General for Live Animal Exports (IGLAE) also conducts regular reviews.

We will update our webpages and information about our current reviews and previous reviews shortly.

Historical events, reviews and reforms

Details Date Type
ASEL 3.2 commenced. It included updates to clarify requirements and reduce ambiguity.
  • ASEL 3.2 PDF
November 2021 Reform
ASEL 3.1 commenced. It incorporated changes in line with new export legislation. March 2021 Reform
New and updated legislation implemented that is easy to understand. New laws support our livestock industries to innovate and be more efficient.
  • Export Control Act 2020
  • Export Control (Animals) Rules 2021
28 March 2021 Reform

Details Date Type
We started collecting ASEL reports using LIVEXCollect.

LIVEXCollect, built by LiveCorp, standardised data entry and reporting. This improved data aggregation and analysis, which helps us do our job as a regulator more efficiently and gives LiveCorp access to data for research and development activities.
November 2020 Reform
ASEL 3.0 commenced. It implemented recommendations from the 2018/19 Technical Advisory Committee review of the ASEL. 1 November 2020 Reform
We participated in a roundtable working group with:
  • Minister Littleproud
  • the Australian Live Exporters’ Council (ALEC)
  • LiveCorp
  • the IGLAE.
We discussed opportunities for reform and to increase community confidence in the live animal export regulatory framework.
July 2020 Event
Prohibition periods were introduced for the export of live sheep to the Middle East on 1 May 2020 and is enforced under the Export Control Rules. This followed a comprehensive review of heat stress risks associated with the live sheep export trade in the Northern Hemisphere summer, considering:
  • a Regulation Impact Statement process, which included extensive stakeholder consultation
  • Bureau of Meteorology data
  • previous reviews including the McCarthy Review and the Heat Stress Risk Assessment (HSRA) Review
  • animal welfare outcomes under 2019 Northern Hemisphere summer conditions
  • voyage and independent observer reports
  • meetings with animal welfare organisations, peak bodies, industry representatives and producers.
1 May 2020 Reform
In consultation with AMSA, we prepared the Post Implementation Review on the:
  • McCarthy Review recommendations
  • establishment of the independent observer program
  • early implementation of amendments to Marine Order 43.
Read the Post Implementation Review.
15 September 2020 Review

Details Date Type
Technical Advisory Committee review of ASEL air standards completed.
  • Review of ASEL: air voyages final report PDF
  • Review of ASEL: air voyages final report DOCX
October 2019 Review
Following assessment of the relevant science and evidence, we prohibited the export of live sheep to the Middle East between 1 June 2019 and 31 August 2019. This was introduced under the:
  • Australian Meat and Live-stock Industry (Prohibition of Export of Sheep by Sea to Middle East—Northern Summer) Order 2019
  • Australian Meat and Live‑stock Industry (Export of Sheep by Sea to Middle East) Amendment (Northern Summer) Order 2019
April 2019 Reform
Technical Advisory Committee review of ASEL sea standards completed.
  • Review of ASEL: sea voyages final report PDF
  • Review of ASEL: sea voyages final report DOCX
March 2019 Review

Details Date Type
The Review of the Regulatory Capability and Culture of the Department of Agriculture and Water Resources in the Regulation of Live Animal Exports (Moss Review) was completed.
  • Moss review PDF
  • Government response to the Moss review PDF
  • Our response to the Moss review PDF
September 2018 Review
Amendments to the Export Control (Animals) Order 2004 were made. All livestock exporters must have an approved export program (AEP). This contains instructions for AAVs. July 2018 Reform
In response to McCarthy Review recommendations, we set new standards for livestock vessels to the Middle East between May and October. This included:
  • a reduction in the reportable mortality level
  • requiring exporters to apply extra conditions in the heat stress management plan for each voyage.
June/July 2018 Reform
The McCarthy Review, initiated in response to the Awassi Express incident, was completed. It reviewed conditions of the export of sheep to the Middle East during the Northern Hemisphere summer.
  • Independent review of conditions for the export of sheep to the Middle East during the northern hemisphere summer PDF
  • Independent review of conditions for the export of sheep to the Middle East during the northern hemisphere summer DOCX
  • Department response PDF
  • Department response DOCX
Some review recommendations were implemented immediately, while others were subject to further research and consultation with industry and animal welfare experts.
May 2018 Review
We began the Independent Observer (IO) program. It appoints independent observers to accompany consignments of livestock on a voyage. April 2018 Reform
Sixty Minutes aired footage showing unacceptable animal welfare of sheep on board the Awassi Express. Agriculture Minister, David Littleproud, announced a number of measures in response:
  • a review into the investigative capability, powers and culture of DAWR as the independent regulator
  • a plan to increase penalties for breaches
  • a whistleblower hotline
  • a review of standards for the sheep trade during the Middle Eastern summer.
April 2018 Event

Details Date Type
All exporters must have an approved arrangement to export livestock, unless they hold a small and infrequent exporter exemption. January 2017 Reform
The transition to the new approved arrangements regulatory model began. From April 2016, exporters could apply for an approved arrangement. This was a significant reform, moving away from individual consignment approvals. April 2016 Reform
The Livestock ESCAS report is released. The report looks at how effective ESCAS was for animal welfare outcomes and trade. It includes data and examples of how ESCAS has been useful for different markets.
  • ESCAS report PDF
  • ESCAS report DOCX
January 2015 Review
ESCAS implemented in Egypt. This was the last of current export markets to be covered under ESCAS. March 2014 Reform
Review of the ASEL and Livestock Export Standards Advisory Group (LESAG) was completed.
  • Review of the Australian Standards for the Export of Livestock and Livestock Export Standards Advisory Group Final Report PDF
  • Review of the Australian Standards for the Export of Livestock and Livestock Export Standards Advisory Group Final Report DOC
  • Appendix 1 - Draft Australian Animal Welfare Standards for the Export of Livestock PDF
  • Appendix 1 - Draft Australian Animal Welfare Standards for the Export of Livestock DOC
May 2013 Review
We coordinated a review on behalf of the Industry Government Implementation Group (IGIG). This was in response to recommendation 14 of the Farmer Review.

We changed systems and processes to improve the welfare of exported breeder livestock.
  • Breeder livestock export report PDF
  • Breeder livestock export report DOC
April 2013 Review
The Fremantle Review was completed. It reviewed export inspection processes at the Port of Fremantle.
  • Fremantle review PDF
  • Fremantle review page
December 2012 Review
ESCAS implemented across all other active livestock markets except for Egypt. December 2012 Reform
ESCAS expanded to Israel, Japan, Jordan, Malaysia, Oman, Philippines, Saudi Arabia, Singapore and United Arab Emirates. September 2012 Reform
ESCAS expanded to Kuwait, Bahrain, Qatar and Turkey. March 2012 Reform
The Farmer Review was completed. This was an independent review of Australia’s livestock export trade.
  • The farmer review PDF
  • The farmer review DOC
August 2011 Review
Following the suspension of trade to Indonesia, we worked with industry to develop a new regulatory model known as ESCAS.

In August 2011, the first consignment was exported to Indonesia under ESCAS.
August 2011 Reform
The live export trade to Indonesia was suspended following an ABC 4 Corners program in May 2011. The program showed footage of mistreatment of Australian animals in Indonesian abattoirs. June 2011 Event
ASEL 2.3 implemented April 2011 Update
ASEL version 2.2 implemented December 2008 Update
ASEL version 2.1 implemented December 2006 Update
ASEL version 2 implemented September 2006 Reform
The first version of the ASEL was implemented July 2005 Reform
The Keniry livestock export review finalised. This review was triggered by sheep mortalities on the MV Cormo Express. Saudi Arabia had refused to allow the vessel to unload sheep in August 2003. The review recommended a national welfare standard for livestock exports.
  • Keniry livestock export review PDF
December 2003 Review
Saudi Arabia rejected a shipment of 57,000 sheep on board the MV Cormo Express. This was due to the sheep being infected with scabby mouth. 2003 Event
New legislation was introduced:
  • Export Control Act 1982
  • Australian Meat and Live-stock Corporation Amendment Act 1982
  • amendment to the Australian Meat and Live-stock Corporation Act 1977.
All existing export licences were withdrawn. Exporters must apply for a meat or livestock export to meet new criteria.
1982 Reform
The Customs (Prohibited Exports) Regulations 1958 were introduced.
Exporters of live animals must apply for a permit.
1958 Reform
The Quarantine (Animals) Regulations 1935 were introduced. A government-approved veterinary surgeon must examine all animals within 48 hours of shipment. Livestock must be healthy and meet quarantine requirements of the importing country. The vet issues a Certificate of Health and a Permit to Embark to animals that met conditions. Animals that did not meet conditions could not be exported. 1935 Reform
The Navigation (Deck Cargo and Livestock) Regulations 1926

The first regulations were introduced for livestock export. They included space, food, and ventilation requirements.
1926 Reform
The first trade in livestock from Australia started. Gradually, over time, trade expanded to include more species and markets. 1830s Event

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Last updated: 24 March 2022

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