The role of veterinarians in emergency animal management

Policy

Suitably experienced veterinarians must be engaged by governments and relevant agencies in the development and implementation of emergency preparedness, response and recovery plans, to optimise animal and human health and welfare outcomes.

Animal owners and animal-related enterprises must have emergency plans in place. They should consult their veterinarian in the development and implementation of these plans.

Background

Emergency events can be categorised into:

• Natural disasters – for example cyclones, floods, and bushfires. These are usually managed by the affected state and territory authorities. Management of animals needs to be included as an operational component of all disaster management plans;
• Emergency Animal Diseases – for example foot and mouth disease, lumpy skin disease. These will invoke a state or territory jurisdictional response, using AUSVETPLAN as its basis, and may require surge capacity from private veterinarians;
• Man made disasters - e.g. oil spills, truck roll overs - often require a local response involving veterinarians;
• Other health emergencies/pandemics - e.g. COVID-19, zoonotic disease outbreaks. These are typically human health led, but with varying requirements for animal health sector engagement.

The concepts of ‘One Health’ and ‘One Welfare’ both recognise that the health and wellbeing of humans and animals, and the health of eco-systems, are interrelated. This interrelationship gives rise to real potential for universal impacts in the case of emergencies and disasters.  Therefore, an integrated approach to emergency management across sectors, disciplines and the community is required, to ensure effective planning, preparedness, response and recovery. 

Animals are often disproportionately impacted by emergency events; as such, veterinarians must be involved in the development and implementation of local, state and federal plans for emergency responses, working in collaboration with landowners, animal business operators, government authorities and relevant agencies. Suitably qualified and experienced veterinarians bring expertise in animal health, welfare, behaviour, management and biosecurity, and can assist with evacuation and treatment of domestic animals, livestock and wildlife involved in natural or man-made disasters. 

Veterinarians also understand the human-animal bond and it is essential that emergency plans acknowledge the need to include animals in evacuation planning. It has been documented that the presence of animals during a disaster can alter response and recovery operations (Hall, et al., 2004; National Academies of Science, Engineering, and Medicine, 2017). For example, when evacuation centres do not permit entry of companion animals or have facilities to accommodate them, this can result in residents refusing to evacuate and as a result placing themselves, their animals and emergency service workers at risk. Some jurisdictions have recognised this and now have arrangements in place to care for companion animals. In NSW the Get Ready Animals website addresses how to prepare and care for animals during an emergency and identifies evacuation centres that are 'pet friendly sites'.

Understanding human-animal relationships is a “critical element in promoting resilience of individuals and communities”; addressing these concerns and integrating the needs of animals into emergency management and disaster preparedness can help to facilitate improved community safety (Hall, et al., 2004; Taylor et al, 2016).

Businesses which deal with animals, including primary production, veterinary practices, animal shelters, zoos, boarding kennels and catteries need to have emergency plans in place. They should have an exit strategy or safe containment and protection plan, in advance of any disaster. Suitably experienced veterinarians should be engaged to assist with formulation of these plans.

Emergency animal disease (EAD) responses often require the mass destruction of animals; these are carried out in accordance with the AUSVETPLAN Destruction Manual, which sets out a range of techniques and decision-making criteria for when mass destruction is necessary.  The choice of method is influenced by a range of factors including animal welfare, and decisions are ultimately approved by the jurisdictional CVO. The AUSVETPLAN Destruction Manual is periodically updated to address new methods and technologies and aims to improve animal welfare outcomes for animals undergoing these procedures.

Current issues and problems in emergency response management:

1. Emergency management structures and regulations are complex and different for each state and territory.
2. There is a lack of consistency across jurisdictions in how private veterinarians are engaged in responses and how they are remunerated or compensated for their time, costs and loss of regular income.
3. Government authorities may not know in advance how much support will be available from the private sector of the profession to assist; further, the veterinary workforce shortage means that there may not be enough private veterinarians available in the event the profession is called upon in sizeable numbers. Rural veterinarians, in particular, are short in supply.
4. Private veterinarians may not be aware of the avenues available for veterinary mobilisation or participation in responses.
5. There can be lack of formal frameworks within jurisdictions to support the participation of non-government organisations (e.g. Vets Beyond Borders).
6. Veterinarians without emergency response experience may need to be trained and equipped before participation.
7. There is a potential for use of paraprofessionals and veterinary students, though the issue of how and who should train them needs addressing, and who should coordinate and supervise this.
8. There is often lack of clarity around insurance implications for veterinarians involved in emergency responses. If employed or tasked during a response, crown indemnity may operate, however there are jurisdictional differences in what cover may be provided.
9. There can be significant mental health implications for veterinarians and others involved in emergency animal responses.
10. Animals are generally not included in natural disaster plans, especially companion animals, though as noted above there are positive changes occurring in this space in some jurisdictions.
11. Lack of designated points of contact and coordination of animal care issues on the ground in responses, including inability to access properties where animals require treatment, and lack of medicines for treatments when veterinarians are not available.
12. Best (2021) argues that animals’ property status allows them to be treated in ways that elevate their risk during disasters. For example, the offences of abandonment or failure to provide for animals’ needs are unlikely to be enforced during natural disasters such as bush fires and floods; and land clearing activities can result in wildlife being far more vulnerable and without means of escape from such disasters. Best suggests there is a need for statutory frameworks for animal welfare and the preservation of habitat, both in ordinary conditions and during emergencies, to address this.
13. Available methods for mass destruction of animals in EADs are limited in Australia, though there are ongoing research and development processes occurring, especially overseas.
14. Effective communication can be a major difficulty during a response. The need for local veterinary liaison is essential because they understand the animals, clients, circumstances and limitations within their locale; they usually have the trust of the local community and so can assist external authorities to communicate effectively with impacted locals.   

Recommendations

• There should be continuing education available to members of the veterinary profession, so they are equipped and remain current with the knowledge, skills and expertise required for participation in emergency response work. This may include Australasian Inter-service Incident Management System (AIIMS) training to enable earlier entry to areas of natural disaster, as well as training in wildlife triage and treatment.
• Government authorities must involve suitably experienced veterinary professionals in planning at all levels, as well as response and recovery activities where appropriate.
• There must be appropriate remuneration and support for private veterinarians, veterinary nurses and technicians involved in emergency responses. This remuneration should cover the professional time involved in training and responses, as well as any costs incurred.
• Ideally there should be consistency of regulations and emergency plans in every jurisdiction.
• Animal management plans must be in place which address both short and long-term animal care and management issues. State and territory governments should commit to ensuring animals are included in emergency management structures and that this information is communicated to appropriate parties.
• Authorities should recognise and utilise local capacity: stakeholder mapping should occur as part of preparations to ensure the local capacity in animal health and management is identified and appropriately recognised. Additional stakeholders with valid expertise need to be recognised and included to contribute to management strategies.
• Where mass destruction of animals is necessary in EAD responses, the most humane methodology available should be used wherever possible. The AVA encourages continued research and investment by governments and industry into technologies that will improve animal welfare outcomes for the mass destruction of animals. 

Other relevant policies

Humane destruction of animals

Euthanasia

Electronic identification of animals

Animal shelters and municipal pounds

Keeping livestock in peri-urban areas

Harvesting and culling of native fauna

References

Best, A (2021). The legal status of animals: a source of their disaster vulnerability. Aust J Emergency Management. https://search.informit.org/doi/pdf/10.3316/informit.947859266065425

Hall, M J; Ng, A; Ursano, R J; Holloway, H; Fullerton, C; Casper, J. Psychological Impact of the Human-Animal Bond in Disaster Preparedness and Response. Journal of Psychiatric Practice. 2004. 368-374

National Academies of Science, Engineering, and Medicine. Strengthening the Disaster Resilience of the Academic Biomedical Research Community. National Academies Press (US). 2017

Taylor, Melanie & Eustace, Greg & McCarthy, Megan & Burns, Penelope. (2016). The importance of managing animals in disasters to improve human outcomes from response to recovery. https://www.researchgate.net/publication/297045599_The_importance_of_managing_animals_in_disasters_to_improve_human_outcomes_from_response_to_recovery

Resources

https://protect-au.mimecast.com/s/z6q-CmOxr6s5G9AXYtGxjow?domain=health.gov.au

https://vetsbeyondborders.org/program/avert/