18 HSNO - EPA...Foreword The title of the Hazardous Substances and New Organisms Act 1996 (the HSNO...

18 HSN

OHSNO Monitoring Report 2018

HSNO Monitoring Report 2018Monitoring the effectiveness of hazardous substances and new organisms controlsJune 2019

Foreword

The title of the Hazardous Substances and New Organisms Act 1996 (the HSNO Act) is something of a mouthful, making it appear remote and removed from the lives of everyday people. Yet, every time someone opens the storage cupboard under the kitchen sink, or works in their greenhouse, the mechanisms of the HSNO Act are working to protect them and the environment. Common household cleaning products and garden chemicals are all covered by the HSNO Act, which aims to prevent or minimise the adverse effects of hazardous substances and new organisms on people and the environment.

The HSNO Act is administered by the Environmental Protection Authority (EPA). A Crown entity, the EPA’s vision is protecting the environment while enhancing people’s lives and the economy. Administering the HSNO Act and monitoring the effectiveness of hazardous substances and new organism rules are an important part of the EPA’s wider responsibilities.

For the EPA, the task of meeting its responsibilities under the HSNO Act never ceases. The task is growing, as global companies introduce new products to increase their market share and maintain profitability, and consumers demand more products that are tailored to meet their needs.

Over the past 18 months or so, we have pursued a number of initiatives in the interests of protecting people’s health and the environment.

We have continued to promote our Working Safer reforms which address product labelling, safety data sheets, packaging, and the safe disposal of hazardous substances, and have continued our work on making consumers more aware of how they can safely use common household and garden products.

We are embarking on a programme to modernise the chemical management system in New Zealand. This includes our chemical map project. We have also released the list of priority chemicals that we have begun to reassess to ensure that we continue to keep people and the environment safe.

Māori and Pacific peoples are over represented in the numbers of people being admitted to hospital after being exposed to hazardous substances. The EPA’s Te Herenga national hui (the EPA’s national Māori network) discussed a wide range of issues, including the health and safety aspects of handling hazardous substances and new organisms. We are considering how a Māori world view can be incorporated into our decision making and have also worked with the community in our Safer Homes programme, where we talk to children and families about household hazardous substances.

We continue to develop and promote Red Alert – a new precautionary tool designed to raise public awareness about the dangers arising from the incorrect use of particular substances – and our Caution Notices, which provide information to the public about how to reduce the risks of harmful substances.

The EPA’s work covers safety at our country’s airports. We are investigating fire-fighting foams containing chemicals that have not been legal for use in New Zealand since 2006, and whether these foams are in storage or use at airports or other locations.

Continual monitoring of our work is critical to our effectiveness. Our work is based on science and empirical evidence of what works and what doesn’t. We rely on other organisations to provide that evidence.

HSNO Monitoring Report 2018 | 03

Dr Allan L Freeth Chief Executive

We understand funding for monitoring is limited and we appreciate the need to balance resources across a number of priorities. However, we urge all organisations with activities governed by the HSNO Act to increase their efforts in monitoring the environmental impact of hazardous substances and new organisms. More consistent and recent data can only improve the EPA’s ability to protect the environment, protect people and enhance our economy.

Surely, that is what we all want.


Introduction

This is the Environmental Protection Authority’s eighth report monitoring the effectiveness of its stewardship of the hazardous substances and new organisms’ regulatory regime. It highlights the results of the intensive work of a number of organisations, and many skilled and committed individuals, who are charged with helping industries, people, and communities to use hazardous substances and new organisms safely. Although not all the data relates to 2018, all the data was sourced in 2018.

This year’s report goes into more depth than previous reports by investigating the data related to measurement of harm to people attributed to hazardous substances, using more data sources related to the use of agrichemicals in the environment, and refreshing some of the data related to human health. More detail on the methodology can be read in Appendix 1.

There are a number of laws and regulations administered by various government agencies that combine to protect people and the environment, ranging from biosecurity to food labelling. One law in this area is the Hazardous Substances and New Organisms Act 1996 (the HSNO Act). The HSNO Act is administered by the Environmental Protection Authority (EPA). Its purpose is to protect the environment and the safety of people and communities by preventing or managing the adverse effects of hazardous substances and new organisms.

Hazardous substances

There are a small number of substances with a high and contentious media profile, but there are hundreds of common products containing substances that could harm people and the environment if they are not used according to the instructions on the label. Used properly, these

products are of value to people and the economy. Used improperly, they present hazards to people and the environment.

Hazardous substances include agricultural chemicals, aerosols (such as spray paints, deodorants, fly sprays, hair sprays and other products sold in aerosol cans), cosmetics and toiletries, fireworks and crackers, household cleaners, gardening products, petrol, paints and thinners, and spa and swimming pool chemicals.

The EPA is responsible for approving and setting the standards for these and other hazardous substances, and sets the rules to manage them safely. The rules include minimum thresholds of explosiveness, flammability, capacity to oxidise, corrosiveness, and toxicity either to people or the environment. In the workplace, hazardous substances are covered by the Health and Safety at Work Act, administered by WorkSafe New Zealand.

New organisms

New organisms can have a positive impact on our economy and the environment, as long as they are introduced with the right rules. These include new organisms for the control of noxious plants and insects, making a positive contribution to important sectors in the New Zealand economy - agriculture, horticulture, and forestry. On the other hand, because of its remoteness in the Pacific Ocean, New Zealand has unique flora and fauna that has developed in isolation over many thousands of years. However, with human occupation comes new and unwanted species – such as possums, rats, rabbits, stoats, thistles, ragwort, wasps and the Varroa mite. These species have had a major and negative impact on our environment, people’s lives and the New Zealand economy. As a proactive regulator, the EPA aims to capture the advantages brought by new organisms, while controlling any negative impacts from their introduction.


The EPA administers the approvals process to bring plants, animals, fish and other organisms into New Zealand that are not already present, or are only held in captivity. The EPA decides on applications from a wide range of individuals and organisations wanting to bring a plant or animal into the country that is defined as a new organism1.

Measuring our effectiveness

Any regulatory regime needs benchmarks – a set of objectives against which success or failure can be measured. The EPA’s benchmarks for this report include the objectives set out in the HSNO Act. They are to:• protect the environment; and • protect the health and safety of people

and communities.

The information in this monitoring report was collected by research organisations - the Centre for Public Health Research, Manaaki Whenua - Landcare Research, the Institute of Environmental Science and Research (ESR), GNS Science, the National Institute of Water and Atmospheric Research (NIWA), and the EPA. The data and studies cited in this report were collected and conducted in accordance with international standards, including adherence to scientific methodology and peer review. The EPA thanks all those organisations for their contributions.

1 In New Zealand, a new organism is defined as: an organism that arrived in New Zealand after 29 July 1998, an organism that became extinct before 29 July 1998, a genetically modified organism, an organism that was deliberately eradicated from New Zealand, an organism that was present in New Zealand before 29 July 1998 in contravention of the Animals Act 1967 or the Plants Act 1970, or a “risk species.” More information can be found here: https://www.epa.govt.nz/industry-areas/new-organisms/about-new-organisms/

However, as noted in the foreword to this report, the EPA would welcome more consistent and recent data to monitor the impact of the HSNO Act and its administration. More data can only serve to sharpen and provide greater focus to our efforts.

The focus on the first portion of the report is harm to people, through an analysis of hospitalisation data, mortality data and notifications to the Ministry of Health about exposure to lead and hazardous substances in general. This section concludes with a case study about children under five who are exposed to hazardous substances at home. The focus on the second portion of the report is harm to the environment, through an analysis of aerial 1080 use, ozone depleting substances, herbicide use, and other environmental monitoring. Finally, the report sets out measures the EPA has taken in the past year to decrease harm to people and the environment due to hazardous substances and new organisms.


https://www.epa.govt.nz/industry-areas/new-organisms/about-new-organisms/

Key findings

Compared to other age categories, children under the age of five have consistently had the highest rate of hospitalisation over the past 10 years, with the majority of incidents occurring in the home.

Over the past 10 years, males continue to account for higher numbers of hospitalisation cases than females.

Out of all the groups of hazardous substances, the group of ‘cleaning products’ had the highest number of hospitalisation cases.

9.78%

15-24

1080

17%

The colony loss of bees is at 9.78 percent, lower than that of many countries.

People in the age group 15 to 24 years had the highest number of deaths.

Over the past eight years (2008 to 2016), the size of 1080 treatment areas in hectares has slowly declined.

The total number of hospitalisation cases has decreased by 17%.

Māori and Pacific people continue to be over-represented in hospitalisation cases.

Current monitoring shows that the majority of the uses of substances appears to be within the rules set out by the EPA.

In 2016, Gisborne and Waikato regions significantly exceeded the national average rate of hospitalisations.


In terms of harm to people, the overall trend in the number of hospitalisation cases attributed to hazardous substances is in decline, which is a positive outcome

• When comparing 2016 with 2006, the total number of hospitalisation cases has decreased by 17 percent. This is especially noteworthy given that the New Zealand population has increased by around 12 percent over those 10 years.

• In 2016, male hospitalisation was mainly between one to seven days. The duration of female hospitalisation was less than 24 hours.

• Over the past 10 years, males account for higher numbers of hospitalisation cases than females.

• Compared to other age categories, children under the age of five have consistently had the highest rate of hospitalisation over the past 10 years, with the majority of incidents occurring in the home.

• Out of all the groups of hazardous substances, the group of ‘cleaning products’ had the highest number of hospitalisation cases.

• Māori and Pacific people continue to be over-represented in hospitalisation cases.

• In 2016, Gisborne and Waikato regions significantly exceeded the national average rate of hospitalisations within their population size groupings.

• In recent years, the gross number of lead absorption notifications continues to decline. There were 106 notifications in 2016, compared to 130 notifications in 2014.

The overall trend in the number of deaths attributed to hazardous substances is low

• The number of deaths attributed to hazardous substances was eight in 2014, compared to nine in 2006.

• From 2006 to 2014, people in the age group 15 to 24 years had the highest number of deaths attributed to hazardous substances.2

• Around 29 percent of clinical notes for unintentional deaths have indicated that the cause of death included toxicity from intentional inhalation of hazardous substances, also known as ‘huffing’.

Environmental pollution – air, water and soil – attributed to hazardous substances, continues to be monitored by the EPA

• Over the past 10 years, use of most ozone-depleting substances (such as hydrochlorofluorocarbons) has significantly reduced, except for the use of methyl bromide for export and biosecurity purposes, which has increased.

• Environmental monitoring is undertaken by a range of organisations for their specific purposes. The EPA has collated information as available for this report, and has taken account of the fact that only some of the data covers recent years.

• Current monitoring shows that the majority of the uses of substances appears to be within the rules set out by the EPA.

• The colony loss of bees is at 9.78 percent, lower than that of many countries. Of this, two percent of total colony losses were attributed to suspected exposure to toxins.

The EPA monitors hazardous substances and new organisms contributing to the reduction of pests and weeds, including the aerial application of 1080

• Over the past eight years (2008 to 2016), the size of 1080 treatment areas in hectares has slowly declined. Exceptions were in 2014 and 2016 coinciding with beech mast events.

Regulatory initiatives during 2017 and 2018 advanced our vision of ‘an environment protected, enhancing our way of life and the economy’ and raised awareness of hazardous substances. They included:

• The Working Safer reforms, to consolidate and update nine EPA Notices on ways to reduce risks from hazardous substances (including product labelling, safety data sheets, and packaging; disposal of hazardous substances).

• The Safer Homes program, a consumer awareness activity, to provide information for consumers about safe use of household chemical products such as cleaning products, detergents, toiletries, cosmetics, fuels, and garden products.

• The precautionary tools, the Red Alert and Caution Notices, to raise awareness about dangers arising from the use of particular hazardous substances.

• The reassessment strategy - to identify and

2 Mortality data for 2015 and onwards is currently not available, due to the time taken to finalise and compile mortality reports. Therefore, only eight years of data is available.


reassess substances of concern.• The chemical map project - to identify

what data can be obtained on hazardous substances.

• Formal investigation on fire-fighting foams using PFOS (which have not been legal for use in New Zealand since 2006), and whether they are held or being used at airports or other locations.

The availability of data about the environmental impact of hazardous substances and new organisms is limited. Where data is available, it shows that the rules the EPA put in place are effective in managing the risks of hazardous substances and protecting people and the environment.


Contents

01 Measurements of the harm to people from hazardous substances

11

Overview 12

Hospitalisations attributed to hazardous substances

13

Deaths attributed to hazardous substances 23

Primary care notifications attributed to hazardous substances

28

Case study: Children under five, where the event occurred in the home

34

02 The impact of hazardous substances and new organisms on the environment

38

Overview 39

Protecting the ozone layer from ozone-depleting substances

40

Controlling aerial application of 1080 42

Monitoring cadmium in the soil and groundwater

44

Survey of New Zealand bee colony loss 46

Approvals for new organisms in New Zealand 47

Monitoring of genetically modified organisms 48

Monitoring of aquatic herbicides used to target pest plants

49

Approvals for agrichemicals in wheat and barley

51

Monitoring herbicide use in New Zealand planted forests

54

Case study: Monitoring of the aquatic environment in New Zealand planted forests

56

Regulatory interventions and initiatives 58

Appendix 1: Methodology 61


01

Measurements of the harm to people from hazardous substances


Overview

The focus of this section is the various measurements of the harm to people that has been attributed to hazardous substances. Measurements include hospitalisations, deaths, and primary care notifications. This section uses data from the Hazardous Substances Surveillance System, gathered by the Centre for Public Health Research, and population estimates and census data from Statistics New Zealand. Trend analysis is provided where possible. The data in this report is related to the acute effects of hazardous substances. While there is a growing body of work to suggest that chronic effects of hazardous substances is significant,3 clear and holistic monitoring data of chronic effects of hazardous substances in New Zealand is not available.


This section is an analysis of hospitalisation cases. For the most part, these cases only include unintentional exposure to hazardous substances, and cases where it is unclear if the exposure was intentional or not (which is categorised as unknown intent). This is because where people intentionally do not follow the rules, any resulting harm may not meaningfully contribute to measuring the effectiveness of the HSNO Act to prevent harm. To provide a complete picture of all categories of exposure to hazardous substances, Figures 2 and 11 include cases that were categorised as intentional.

The first part of this section is an overview of all hospitalisation cases, split by intent (as described above). These cases are investigated by gender, and duration of stay in hospital. This is followed by age groups, and places of occurrence (e.g. at home, industrial and construction areas). Finally, we look at substance type (e.g. cleaning products, petrol/diesel), followed by ethnicity and regional findings.

Deaths attributed to hazardous substances

This section follows the approach of the hospitalisations section as much as possible, although the dataset is much smaller. For this reason, trend analysis is not provided. It starts with an overview of all deaths, split by intent. Gender and substance type are then analysed, followed by age group, ethnicity and regional findings. The most recent data is for 2014, as the deaths must be fully investigated prior to collation of results.


As the reporting tool developed by the Centre for Public Health Research is new, the data in this section covers 2013 – 2016 only. It includes lead absorption notifications and hazardous substance notifications. Where possible, these are broken down by gender, age group, ethnicity and substance type.

This section concludes with a case study that goes into further details of the hospitalisation of children under the age of five.

3 For example, P Grandjean and M Bellanger (2017) Calculation of the disease burden associated with environmental chemical exposures: application of toxicological information in health economic estimation, Environmental Health, 16(123), DOI: 10.1186/s12940-017-0340-3



OverallThis section draws on data from the National Minimum Dataset, which records the number of hospital events where a person has been admitted to hospital due to exposure to a hazardous substance, and is later discharged. The number of events is higher than the number of people hospitalised (also referred to as hospitalisation cases), because one person can contribute to numerous unique hospital events in the dataset. For this reason, this report refers to hospitalisation cases, rather than people.

Figures 1 and 2 provide an overview of the number of hospitalisation cases attributed to hazardous substances from 2006 to 2016, by intent.4

4 The trendlines used in this report are linear best fit lines fitted by Excel. They are indicative only of the overall trend.

Data source: Hazardous Substances Surveillance System: National Minimum Dataset. Year ended 31 December 2016.

Figure 1: Hospitalisations attributed to hazardous substances, 2006-2016


Figure 2: Hospitalisations attributed to hazardous substances by gender, 2006-2016


Key Findings

• When comparing the total number of hospitalisation cases for 2016 with those for 2006, there has been a 17 percent decrease and the overall trend is a decline.

• In 2016, there were 490 hospitalisation cases attributed to hazardous substances. This is an increase of six percent from 2015.

• In 2009, there was a significant increase in hospitalisation cases compared with previous years and subsequent years. Both male and female hospitalisation cases were higher in 2009 than in other years.

• When comparing hospitalisation cases for 2016 with those for 2006, the decrease of 17 percent is notable, especially given that the New Zealand population has increased by 12 percent over those 10 years.


GenderFigures 3 and 4 show the number of hospitalisation cases attributed to hazardous substances by gender and duration of stay, from 2006 to 2016. These have been separated as there are differences between the genders.


Figure 3: Male hospitalisations attributed to hazardous substances by duration of stay, 2006-2016

Key Findings

• In 2016, 335 male hospitalisation cases were attributed to hazardous substances, the same as in 2015.

• In 2016, the most prevalent duration of male hospitalisation was between one and seven days.

• When comparing the total number of male hospitalisation cases for 2016 with those for 2006, there has been a 21 percent overall decrease. In spite of an increase between 2007 and 2009, there is an overall decline.


Figure 4: Female hospitalisations attributed to hazardous substances by duration of stay, 2006-2016


Key Findings

• In 2016, 155 female hospitalisation cases were attributed to hazardous substances. This is an increase of 20 percent from 2015.

• In 2016, the most prevalent duration of female hospitalisation was less than 24 hours.

• When comparing the total number of female hospitalisation cases for 2016 with those for 2006, there has been a six percent overall decrease.

• From 2014 to 2016, the number of female hospitalisation cases increased. The number of cases in 2016 was at its highest since 2011.

Age groupFigure 5 shows the rate of hospitalisations per 50,000 population attributed to hazardous substances by age group, from 2006 to 2016. Table 1 provides specific age group information for 2016.


Figure 5: Hospitalisation cases attributed to hazardous substances by age group populations, at a rate per 50,000 population, 2006-2016

Data source: Hazardous Substances Surveillance System: National Minimum Dataset. Year ended 31 December 2016. Data source: Population estimates per year, by age group, http://nzdotstat.stats.govt.nz/.5

Table 1: Number and rate of hospitalisation cases per 50,000 population by age group, 2016

Age group Number of cases

Population count

Rate per 50,000 population

00-04 85 305,019 13.934

05-14 31 616,597 2.514

15-24 93 667,177 6.970

25-34 85 637,207 6.670

35-44 57 580,528 4.909

45-54 64 635,247 5.037

55-64 38 553,018 3.436

65+ 37 698,407 2.649

Age group Number of cases

Population count


TOTAL 490 4,693,200 5.220

5 It is important to note that, for the purpose of this report, the age group ranges differ. The 00-04 age group is a five year range; the successive age groups thereafter are a ten year range. The 65+ age group covers potentially a thirty year range or more.

Data source: Hazardous Substances Surveillance System: National Minimum Dataset. Year ended 31 December 2016. Data source: Population estimates per year, by age group, http://nzdotstat.stats.govt.nz/.


http://nzdotstat.stats.govt.nz/



Key Findings

• In 2016, children under the age of five had the highest rate of hospitalisation cases, at a rate of 13.934 per 50,000 population (total population 305,019), as shown in Table 1. This age group has consistently had the highest rate of hospitalisation over the past 10 years.

Place of occurrence Figure 6 provides an overview of the rate of hospitalisations per 50,000 population attributed to hazardous substances, by place of occurrence and age group, for 2016.


Figure 6: Hospitalisation cases attributed to hazardous substances by age group populations, at a rate per 50,000 population, and place of occurrence, 2016

Key Findings

• In 2016, for all age groups, home was the place of occurrence with the highest combined rate of hospitalisation cases per 50,000 population.

• In 2016, for children under the age of five, 75 percent of the 85 hospitalisation cases resulting from exposure to hazardous substances, occurred in the home.

• In 2016, for 15-24 year olds, 42 percent of the 93 hospitalisation cases occurred at unspecified locations, and 34 percent occurred in the home.

• In 2016, 15-24 year olds had the second highest rate of hospitalisation cases, at a rate of 6.97 per 50,000 population (total population 667,177). Twenty-five to 34 year olds had the third highest rate of hospitalisation cases at a rate of 6.670 per 50,000 population (total population 667,177). These two age groups historically have the second and third highest rates.



Hazardous substance typeFigure 7 shows the number of hospitalisations attributed to hazardous substances, by substance type and age group, for 2016.


cases), at 12 percent of total cases.• In 2016, 15-24 year olds were the largest

portion of the 59 cases attributed to petrol/diesel, at 24 percent. Twenty five to 34 year olds were the second largest portion of the 59 cases, at 20 percent.

• In 2016, 36 cases were due to accidental exposure to carbon monoxide and dioxide, and would include cases where a device generates gas as a by-product (such as an outdoor gas heater or cooker). While these fall outside of the HSNO Act, they have been included in this report to provide a complete picture of all hospitalisations attributed to hazardous substances.

Key Findings

• In 2016, for all age groups combined, cleaning products was the substance group attributed to the highest number of hospitalisation cases (80 out of 490 total cases), at 16 percent of total cases.

• In 2016, children under the age of five were the largest portion of the 80 cases attributed to cleaning products, at 30 percent. Twenty-five to 34 year olds were the second largest portion of the 80 cases, at 21 percent.

• In 2016, for all age groups combined, petrol/diesel was the substance group attributed to the second highest number of hospitalisation cases (59 out of 490 total

Figure 7: Number of hospitalisations attributed to hazardous substances by age group and substance type, 2016



EthnicityFigure 8 shows the rate of hospitalisations per 50,000 population attributed to hazardous substances, by ethnicity, from 2006 to 2016. Table 2 provides specific ethnicity information in terms of the number of hospitalisation cases for 2016.

Data source: Hazardous Substances Surveillance System: National Minimum Dataset. Year ended 31 December 2016.Data source: Population as at census year, by ethnicity, http://nzdotstat.stats.govt.nz/.7

6 See the methodology section for more information regarding the use of per 50,000 population rate.

7 The data in Figure 9 from both the population data and health data uses prioritised ethnicity as per Statistics New Zealand’s practice. This means that if someone has identified themselves as belonging to more than one ethnic group, they are recorded as belonging to the group that has the higher priority according to Statistics New Zealand’s criteria. This method tends to over-represent Māori and under- represent the Pacific peoples population. European includes “other” and “unknown” categories, as this most closely aligns to the methodology used by Statistics New Zealand. See the methodology section for more information.

Figure 8: Hospitalisation cases attributed to hazardous substances by ethnicity populations, at a rate per 50,000 population, 2006-20166

Key Findings

• In 2016, Māori had the highest share of hospitalisation cases, at a rate of 7.635 per 50,000 population (total population 622,120), as shown in Table 2.

• In 2016, Pacific peoples had the second highest share of hospitalisation cases, at a rate of 6.139 per 50,000 population (total population 309,488).



Table 2: Number and rate of hospitalisation cases per 50,000 population by ethnicity, 2016

Ethnicity Number of cases

Population count


Asian 41 486,428 4.214

European 316 3,024,064 5.225

Māori 95 622,120 7.635

Pacific peoples 38 309,488 6.139

TOTAL 490 4,442,100* 5.515 * Population count as at 2013 Census, 2016 population estimates are not available for ethnicity



Figure 9 shows the combined rates of hospitalisations per 50,000 population attributed to hazardous substances, by ethnicity and age group, for 2016.

Figure 9: Hospitalisation cases attributed to hazardous substances by ethnicity populations and age groups, at a rate per 50,000 population, 2016

Key Findings

• In 2016, for Māori and Pacific peoples, the highest rate of hospitalisation cases occurred with children under the age of five (26 for Māori and 24 for Pacific people).

• For Europeans, the highest rate of hospitalisation cases occurred with 15-24 year olds (62).

• For Asians, the highest rate of hospitalisation cases occurred with 25-34 year olds (13).

• The reason for difference in age groups between different ethnicities is unknown. However, it may be due to the population profile of the different ethnicities.




RegionTable 3 shows hospitalisations attributed to hazardous substances, by region, for 2016.

8 As 2016 is a non-census year, this is an estimate value by Statistics New Zealand.

9 This report uses Statistics New Zealand’s definition of region, which is “the estimates of the population usually living in regional council areas, and the area units they comprise” http://nzdotstat.stats.govt.nz/OECDStat

Table 3: Number and rate of hospitalisation cases per 50,000 population by region, 20168

Region Number of cases

Population count


Auckland 122 1,614,497 3.778

Canterbury 45 599,899 3.751

Wellington 30 504,899 2.971

Waikato 81 449,199 9.016

Bay of Plenty 28 293,499 4.770

Manawatu-Wanganui 26 236,899 5.488

Otago 25 219,200 5.703

Northland 18 171,400 5.251

Hawke’s Bay 22 161,600 6.807

Taranaki 16 116,700 6.855

Southland 12 98,000 6.122

Nelson 9 50,600 8.893

Tasman 9 50,300 8.946

Gisborne 12 47,900 12.526

Marlborough 1 45,500 1.099

West Coast 2 32,500 3.077

Area Outside of Region 32* 610** -***

TOTAL 490 4,693,200 5.220 Area Outside of Region (not included elsewhere): * National Minimum Dataset: area not available in source data, or is in an area of New Zealand not part of a region, such as the Chatham Islands. ** Population count 610 is the population estimate provided by http://nzdotstat.stats.govt.nz/ *** Rate per 50,000 population not calculated as data point is an outlier.

Data source: Hazardous Substances Surveillance System: National Minimum Dataset. Year ended 31 December 2016. Data source: Population estimates per year, by region, http://nzdotstat.stats.govt.nz/.9

Key Findings

• In 2016, Gisborne and Waikato regions significantly exceeded the national rate within their population size groupings.

• In 2016, Gisborne and Tasman regions had similar total population counts (47,900 and 50,300 respectively), but hospitalisation rates were different. The individual cases

were attributed to different hazardous substances.

• In 2016, Waikato and Wellington regions had similar total population counts (449,199 and 504,899 respectively), but hospitalisation rates were different. The individual cases were attributed to different hazardous substances.


http://nzdotstat.stats.govt.nz/OECDStat

http://nzdotstat.stats.govt.nz


10 Figure 10 includes intentional deaths. Other figures exclude intentional deaths. See methodology section for more information regarding the treatment of intentional deaths in this report.

Deaths attributed to hazardous substances

OverallThis section uses data from the National Mortality Collection, which classifies the underlying cause of death for all deaths registered in New Zealand. Mortality data is derived from death certificates completed by medical practitioners, post mortem reports, coroners’ certificates, and death registration forms completed by funeral directors. Investigations into the cause of death can result in delays of up to three years before mortality data can be published. For this reason, the most up-to-date data available is for year ended 31 December 2014.

The report does not provide in-depth trend or per population (standardised) analysis for deaths attributed to hazardous substances due to the statistically small number of annual deaths. The report does note that the number of intentional deaths attributed to hazardous substances continues to be much higher than unintentional deaths.10

Figures 10 and 11 are an overview of the number of deaths attributed to hazardous substances, by intent. Figure 10 shows the number of deaths attributed to hazardous substances by intent and gender.

Data source: Hazardous Substances Surveillance System: National Mortality Collection. Year ended 31 December 2014.

Figure 10: Number of deaths attributed to hazardous substances by intent, 2006-2014


Figure 11 shows the numbers of deaths by unintentional and unknown intent only.


Figure 11: Number of deaths attributed to hazardous substances by intent, 2006-2014

Key Findings

• From 2008 to 2011, 12 to 13 deaths per year, of unintentional or of unknown intent, were attributable to hazardous substances. Since 2011, the overall trend is in decline.

• In 2014, eight deaths, of unintentional or unknown intent, were attributed to hazardous substances. This is less than the 33 intentional deaths.

• In 2014, five male deaths, of unintentional intent, and one male death, of unknown intent, were attributed to hazardous substances. In 2013, seven male deaths were classified as unintentional or unknown intent.

• In 2014, two female deaths, of unintentional intent, were attributed to hazardous substances. In 2013, there was one female death classified as unknown intent.

• Every year, there are more male deaths of unintentional and unknown intent than female deaths of unintentional and unknown intent.


Hazardous substance typeFigure 12 shows the number of deaths attributed to hazardous substances, by gender and substance, from 2006 to 2014, Table 4 shows selected clinical notes on cause of death, and Table 5 shows the number of deaths by age group of each year.


Key Findings

• During 2006-2014, the highest number of deaths attributed to hazardous substances were from fuels. Of these, males accounted for 18 of the deaths and females for four.

• During 2006-2014, the second highest number of deaths attributed to hazardous substances were from carbon monoxide and dioxide. As noted in the clinical notes field of the National Mortality Collection dataset, these deaths included accidental exposure to carbon monoxide due to being in an enclosed space with a device that generates gas as a by-product (such as an outdoor gas heater or cooker). While these fall outside of the HSNO Act, they have

Figure 12: Number of deaths attributed to hazardous substances, by gender and substance, 2006-2014

been included in this report to provide a complete picture of all deaths attributed to hazardous substances.

• During 2006-2014, the clinical notes field of the National Mortality Collection dataset identified around 29 percent of the cause of deaths, as the result of toxicity from sniffing/huffing hazardous substances. This cause of death is from hazardous substances that are controlled under group standard approvals for substance categories that include fuels (butane), insecticide (fly spray), food additives and fragrances (air fresheners), petrol/diesel (open fumes), and LPG (canister/cylinder).


Table 4: Selected clinical notes on cause of death, from the National Mortality Collection dataset

Carbon Monoxide and Dioxide Deceased using outside gas heater inside bedroom. No other available heater.

Surface Coatings and Colourants

Toluene toxicity from glue sniffing.

Cosmetic Products Deceased was found with 3 deodorant cans, known for huffing inhalants.

Fuels Acute butane toxicity, deceased collapsed with seizures after huffing butane gas.

Fuels Combined effects of alcohol and butane inhalation, huffing. Death was accidental in the course of recreational use.

Insecticide Cause of death resulted from hydrocarbon toxicity from inhalation of fly spray.

Solvents Extensive thermal burns from explosion, methamphetamine lab/solvent explosion.

Lubricants Ethylene glycol toxicity, deceased deliberately ingested while in a disturbed state of mind, but with no clear intention to commit suicide.

Note: some comments have been revised for clarity

Table 5: Number of deaths attributed to hazardous substances by age group, 2006-2014

Age group 2006 2007 2008 2009 2010 2011 2012 2013 2014

00-04 - - - - - - - - -

05-14 1 2 1 1 2 - 1 - -

15-24 3 6 6 4 8 4 2 3 3

25-34 - - 1 - - 2 1 1 1

35-44 2 - 2 2 - 1 3 3 3

45-54 1 1 2 3 1 3 2 - 1

55-64 1 1 - 1 1 1 - - -

65+ 1 5 - 2 - 2 1 1 -

TOTAL 9 15 12 13 12 13 10 8 8


Key Findings

• During 2006-2014, the age group with the largest overall number of deaths attributed to hazardous substances was 15-24 year olds. During this time, with the exception of 2012, this age group consistently had the highest annual number of deaths attributed to hazardous substances.


RegionFigure 13 shows the number of deaths attributed to hazardous substances, by region, from 2006 to 2014.


Figure 13: Number of deaths attributed to hazardous substances by region, 2006-2014

Key Findings

• From 2006-2014, Auckland region had the highest overall number of deaths attributed to hazardous substances. Waikato region had the second highest overall number of deaths.

• The Auckland region had the highest annual number of deaths attributed to hazardous substances in 2006, 2008, and 2011. The Waikato region had the highest annual number of deaths attributed to hazardous substances in 2007, 2009 and 2012.

• In 2013, the Southland and Wellington regions had the equal highest annual number of deaths (two in each region). In 2014, the Auckland, Wellington and Northland regions had the equal highest annual number of deaths (two in each region) despite the population differences between these regions.

In 2014, Māori and Pacific peoples had the same number of deaths attributed to hazardous substances (three each), which made up 75 percent of all deaths for that year. European people made up two deaths and there were no deaths for all other ethnicities.



The Hazardous Substances Disease and Injury Reporting tool (HSDIRT) has data on notifications of hazardous substances injuries, from primary health care to Medical Officers of Health. These injuries exclude hospitalisations. HSDIRT was developed by the Centre for Public Health Research in conjunction with best practice Decision Support, and funded by the Ministry of Health.

11 In 2007, the non-occupational notifiable blood lead level was lowered from 0.72 to 0.48µmol/L.

12 Source data was generated based on the most recent data provided.

13 In 2013, the Hazardous Substances Disease and Injury Reporting Tool (HSDIRT) was rolled out to all health districts. Data from repeat blood lead level tests taken within a year of the original test has been excluded from this data unless further investigation has resulted.

14 This dataset includes intentional injuries, as well as injuries of unintentional or unknown intent.

This report uses data from HSDIRT related to notifications of: • blood lead absorption level of ≥0.48μmol/l

from a variety of sources;11 and• injuries and diseases due to

hazardous substances. 12

Because there are only four years of data (2013-2016), the trend analysis is not as extensive as the hospitalisation trend analysis.

Figure 14: Primary care notifications: number of lead absorption notifications by age group, 2013-2016

LeadFigure 14 shows the number of lead absorption notifications, split by age group, from 2013 to 2016.Tables 6 and 7 show the number of lead absorption notifications, by gender and ethnicity respectively, from 2013 to 2016. Figure 15 shows the sources of non-occupational lead exposure for 15 year olds and over.

Data source: Hazardous Substances Surveillance System: Hazardous Substances Disease and Injury Reporting Tool (HSDIRT), 2013-2016.13 14


Key Findings

• In 2016, there was a total of 106 lead absorption notifications, compared with 121 in 2015.

• In 2016, two lead absorption notifications were for children under the age of five, compared with six notifications in 2015.

• From 2013-2016, 45-64 year olds have consistently had the highest number of lead absorption notifications.

• The trend is in decline for total lead absorption notifications.

Table 6: Number of lead absorption notifications by gender, 2013-2016

Gender 2013 2014 2015 2016

Male 150 106 102 93

Female 30 22 18 13

Unknown - 2 1 -

TOTAL 180 130 121 106

Data source: Hazardous Substances Surveillance System: Hazardous Substances Disease and Injury Reporting Tool (HSDIRT), 2013-2016.

Table 7: Number of lead absorption notifications by ethnicity, 2013-2016

Ethnicity 2013 2014 2015 2016

Asian 7 6 4 6

European 137 95 85 64

Māori 13 8 5 8

Pacific peoples 6 2 1 5

Unknown 17 19 26 23

TOTAL 180 130 121 106 Data source: Hazardous Substances Surveillance System: Hazardous Substances Disease and Injury Reporting Tool (HSDIRT), 2013-2016.

Key Finding

• From 2013-2016, males have had significantly higher numbers of notifications than females.

Key Finding

• From 2013-2016, Europeans had the highest number of lead absorption notifications of all ethnic groups. A per population rate has not been calculated for the lead absorption notifications due to the low number of notifications.


Figure 15: Primary care notifications: sources of non-occupational lead exposure for 15 years old and over, 2013-2016

Data source: Hazardous Substances Surveillance System: Hazardous Substances Disease and Injury Reporting Tool (HSDIRT) (2013-2016)

Key Finding

• From 2013-2016, lead-based paint was the source attributed to the highest number of non-occupational lead exposure notifications for 15 year olds and over (84 out of 312 total cases).

15 This statement excludes the “other/unknown” sources.

16 More than one source of lead exposure can be selected for a single notification, therefore the total adds to more than the number of notifications.


All hazardous substance notificationsFigures 16 to 19 show the number of all hazardous substance notifications, by gender, age group, ethnicity, and substance, to identify if there are any emerging trends that should be watched for in the future, and to compare with hospitalisation and/or mortality data. The overall shape of the graph in Figures 16 to 18 are the same. However, the breakdown of the bars differs between these three figures.


Figure 16: Primary care notifications: number of hazardous substance notifications by gender, 2013-2016

Key Findings

• In 2016, males had 67 hazardous substance notifications, which exceeded the previous year’s total notifications for males and females combined.

• There is an increasing trend in the notifications. However, this could be due to increased reporting.

• While it might appear there is a correlation between increasing hazardous substance notifications and decreasing hazardous substance hospitalisation, no clear inference can be made between the two trends.

• It is not clear why there were increases in total number of hazardous substances notifications for 2014 and 2016 compared with 2013 and 2015.


Figure 17: Primary care notifications: number of hazardous substance notifications by age group, 2013-2016



Key Findings

• From 2013-2016, the number of hazardous substance notifications for 5-14 year olds increased, from one in 2013 to five in 2016. Due to the small numbers involved in these groups, there might not be any significance in this outcome.

Figure 18: Primary care notifications: number of hazardous substance notifications by ethnicity, 2013-2016

• From 2013-2015, 25-44 year olds had an average number of hazardous substance notifications of 24. In 2016 this increased to 39. This differs from the hospitalisation data, where 0-5 year olds were the largest group.

Key Finding

• From 2013-2016, Europeans had the highest number of hazardous substance notifications each year. This is the same trend seen in hospitalisation data prior to standardising for population.


Figure 19: Primary care notifications: number of hazardous substance notifications by substance, 2014-2016


Key Finding

• From 2014-2016, industrial chemicals had the highest number of hazardous substance notifications each year.17 Hazardous substance type cannot be directly related to the hospitalisation or mortality data due to the way the health sector data has been compiled.

17 Data for 2013 was unavailable.


Case study: Children under five, where the event occurred in the homeAs shown in Figure 5, children under the age of five have consistently had the highest rate of hospitalisation cases attributed to hazardous substances of all age groups over the past 10 years.

As shown in Figure 6, 75 percent of hospitalisation cases in 2016 for children under the age of five were a result of exposure to hazardous substances which occurred in the home.

Figure 20: Number of hospitalisations attributed to hazardous substances, for children under the age of five where the event occurred in the home by substance type and gender, 2016

For these reasons, the focus on this part of the report is hospitalisation cases for children in this age group, where the event occurred at home. The vast majority of cases involved cleaning products.

Figure 20 shows the number of hospitalisations attributed to hazardous substances for children under the age of five where the event occurred in the home by substance and gender, for 2016.

Tables 8 to 10 provide data on the hospitalisation of children attributed to hazardous substances.



Key Finding

• In 2016, cleaning products were the substances which attributed to the highest number of hospitalisation cases for this age group. Of the 21 hospitalisation cases attributed to cleaning products, 16 occurred as a result of the child ingesting the substance, as noted in the clinical notes field of the National Minimum Dataset.

Table 8: Selected clinical notes on hospitalisation of children under five, from the National Minimum Dataset

Chlorine and Chlorine Gas Accidental ingestion of chlorine from swimming pool filter at home.

Cleaning Products Contact with Mr Muscle oven cleaner, patient touched inside of oven with hands.

Cleaning Products Patient was playing with sachet of Persil liquid detergent, when it broke and squirted into left eye.

Cleaning Products Patient found with open bottle Ajax cleaner, cupboard accidentally left open, poisoning by ingestion.

Cleaning Products Patient swallowed disinfectant 50-100mls, accidental poisoning.

Cleaning Products Accidental poisoning by ingestion of toilet cleaner/Jif.

Cleaning Products Accidental poisoning by ingestion of dishwashing liquid.

Cleaning Products Accidental poisoning by ingestion of Handy Andy cleaning agent.

Cleaning Products Patient licked spilt caustic soda off ground, poisoning by ingestion.

Cosmetic Products Patient ingested approximately 4.25g/kg of fluoridated toothpaste.

Herbicide Patient ingested about 10mls organophosphate weed killer.

Insecticide Patient was accidentally sprayed by sibling with flea spray.

Insecticide Accidental ingestion of Aerogard insect repellent.

Petrol/Diesel Drank from drink bottle container which was filled with petrol, patient mistook petrol for beverage.

Solvents Patient put hands in open container of turps, which then splashed.

Surface Coatings and Colourants

Patient put card with acrylic paint on it, in to mouth.

Note: some comments have been revised for clarity


Table 9 includes data for hospitalisations of children under the age of five where the event occurred in the home. It shows the proportion of hospitalisation rates per 50,000 population attributed to hazardous substances, by ethnicity for 2016.

Table 9: Rates per 50,000 population for hospitalisation cases of children under the age of five where the event occurred in the home by ethnicity and gender, 2016

Gender Asian European Māori Pacific peoples

TOTAL 0.820 0.513 1.688 0.808

Data source: Hazardous Substances Surveillance System: National Minimum Dataset. Year ended 31 December 2016. Data source: Population as at census year, by ethnicity, http://nzdotstat.stats.govt.nz/.

Key Findings

• Māori had the highest proportion of hospitalisation rates at a rate of 1.688 per 50,000 population (total population 622,120), the same trend as seen for all age groups and locations.

• The rate of hospitalisation for Māori is more than twice the second largest rate (0.820 for the Asian population).



Table 10 includes data for hospitalisations of children under the age of five where the event occurred in the home. It shows the proportion of the hospitalisation rates per 50,000 population attributed to hazardous substances by region and gender, for 2016.

Table 10: Rates per 50,000 population for hospitalisation cases of children under the age of five where the event occurred in the home by region, 2016

Region Total (rate per 50,000 population)

Auckland 0.619

Canterbury 0.250

Wellington 0.198

Waikato 0.779

Bay of Plenty 0.681

Manawatu-Wanganui 0.844

Otago 0.456

Northland 0.875

Hawke’s Bay 1.856

Taranaki 2.142

Southland 0.510

Nelson 0.000

Tasman 0.994

Gisborne 2.088

Marlborough 0.000

West Coast 0.000

Data source: Population estimates per year, by region, http://nzdotstat.stats.govt.nz/. Data source: Hazardous Substances Surveillance System: National Minimum Dataset. Year ended 31 Dec 2016.

Key Findings

• In 2016, Taranaki region had the highest proportion of hospitalisation rates for children under the age of five, at a rate of 2.142 per 50,000 population (total population 116,700).

• In 2016, Taranaki and Southland had similar total populations (116,700 and 98,000 respectively), but different rates of hospitalisation (2.142 and 0.510 respectively).

• In 2016, for Taranaki region, the substances involved were cleaning products, fuels,

petrol/diesel, surface coatings and colourants and vertebrate toxic agents18. For Southland region, the substances involved were cleaning products.19

• In 2016, Gisborne region had the second highest proportion of hospitalisation rates for children under the age of five, at a rate of 2.142 per 50,000 population (total population 47,900). For all age groups and locations, Gisborne region had the highest rate (at 12.526 per 50,000 population).

18 The substances have been identified from the Hazardous Substances Surveillance System data source, by number of cases per region.

19 Hospitalisation cases excludes “not able to categorise”.



02

The impact of hazardous substances and new organisms on the environment


Overview

This section draws on data related to environmental impacts. There is no equivalent to the Hazardous Substances Surveillance System data for measuring harm to human health with respect to measuring environmental impacts. Accordingly, this section has had to use data from a variety of sources to measure the environmental impact of the use of hazardous substances and new organisms.

It is significant to note that the data sources were the best available, and they enable an inference of the effectiveness of the rules applied by the EPA, under the HSNO Act. A significant number of sources are not recent and have not previously been reported by the EPA. However, reporting on them enables comparisons when new data sources covering similar areas are produced in the future.

It is also significant to note that some use of hazardous substances may have changed since the data was collected.


Protecting the ozone layer from ozone-depleting substances

New Zealand has ratified the Vienna Convention on the Protection of the Ozone Layer and the related Montreal Protocol (the Protocol) combating ozone-depleting substances. The Protocol is a multilateral environmental agreement to promote international cooperation and action to protect the ozone layer from changes due to human activities. The Protocol covers the phase-out of the production, consumption, and use of ozone-depleting substances, including hydrochlorofluorocarbons (HCFCs) and methyl bromide, according to agreed timetables.

The Protocol is implemented by the Ozone Layer Protection Act 1996 and the Ozone Layer Protection Regulations 1996, which establish the required permitting system for ozone-

depleting substances. The EPA has responsibility for enforcement of these Acts and Regulations. In addition, ozone-depleting substances with hazardous properties, for example methyl bromide, are covered by the HSNO Act regulatory regime.

The ozone depleting substance methyl bromide is used to quarantine imports and treat products prior to export, as required by New Zealand or offshore biosecurity authorities, referred to as quarantine and pre-shipment (QPS) uses. The Protocol allows this use of methyl bromide but does not allow any other uses. Figure 21 shows all ozone depleting substances and the non QPS uses of methyl bromide, while Figure 22 shows QPS uses of methyl bromide. Note the difference in scale between the two figures.

Figure 21: Consumption of ozone depleting substances new to New Zealand, 2006-2017

Data source: NZ annual returns to Montreal Protocol and reports to Parliament.20

20 Note that this figure only graphs methyl bromide for non-quarantine and pre-shipment (QPS) uses of methyl bromide. Figure 22 graphs QPS uses of methyl bromide.


Key Findings

• New Zealand is striving to meet its obligations under the Montreal Protocol designed to reduce the use of ozone depleting substances.

• Figure 21 shows ozone depleting substances that have already been phased out include:• Chlorofluorocarbons (CFCs). CFCs

are the main source of harm to the ozone layer (new CFCs have not been imported into New Zealand since 1996 and recycled CFCs can only be imported under exemption permits for essential uses. However, there are still CFCs left in older industrial air conditioning and refrigeration systems, car air conditioning systems, and domestic refrigerators).

• Hydrochlorofluorocarbons (HCFCs). The phase-out of HCFCs was completed in January 2015 in advance of the 2030 international target. However, as with CFCs, there are still HCFCs left in certain existing air conditioning and refrigeration systems in New Zealand.

• Methyl bromide. Methyl bromide was previously used for a variety of fumigations and as a pesticide to treat crops, particularly strawberries. These uses were phased out by 2007 (as shown in Figure 21). Now it can only be used for QPS fumigation, all other uses are prohibited.

The consumption of methyl bromide for QPS fumigation in New Zealand from 2006 to 2017 is shown in Figure 22.

As part of the EPA’s 2010 reassessment of methyl bromide, a Hazardous Substances and New Organisms Decision-Making Committee ruled that users would need to ensure recapture technology was in place by 2020 to collect and store the used gas, preventing its spread into the atmosphere.

An industry group was granted grounds to apply for methyl bromide to be reassessed by the EPA in April 2018, as the first step in this process, but as yet, no application for reassessment has been lodged with the EPA.

Key Finding

• Methyl bromide use has risen from 128.8 ODP tonnes to 351.6 ODP tonnes from 2006-2017. The increase in use of methyl bromide is related to the increase in the

Figure 22: Consumption of methyl bromide in New Zealand for quarantine and pre-shipment uses, 2006-2017

Data source: NZ annual returns to Montreal Protocol and reports to Parliament.

volume of logs exported to countries (particularly China and India) that require timber to be treated with methyl bromide prior to export.


Controlling aerial application of 1080

The EPA is aware of unease in some areas of the public about the use of 1080 (sodium fluoroacetate) for controlling pests such as possums, wallabies, rabbits, rats, and stoats. Our predecessor, the Environmental Risk Management Authority, reassessed 1080 in 2007 and, while imposing tighter rules, concluded its benefits outweighed any adverse effects.

The Parliamentary Commissioner for the Environment came to the same conclusion in 2011 after evaluating the use of 1080 and, in 2017, confirmed there was no change to this conclusion. The Commissioner noted that aerial drops of 1080 were crucial in protecting vast areas of the conservation estate, that the substance naturally breaks down in the environment, and neither leaves permanent residues in water or soil, nor bioaccumulates in plants and animals.

1080 is one of the most closely monitored and controlled hazardous substances in New Zealand. The EPA monitors aerial 1080 pest control operations and publishes an annual report on these activities. The HSNO Act specifies that it must be tracked and handled only by approved handlers, locked up securely when not in use, and disposed of safely. For the past decade, the EPA has required all operators to report on all 1080 aerial operations. This enables us to monitor use, and promote best practice regarding pre-operation planning and operational management.

Figures 23 and 24 show the number of aerial 1080 operations, breaches, size of treatment area, and organisations carrying out operations, from 2008 to 2017.

Figure 23: Aerial 1080: number of operations, breaches, size of treatment area, 2008-2016

Data source: EPA Annual Report on the Aerial Use of 1080 for the year ended 31 December 2017.


Key Findings

• In 2017, there were 50 aerial 1080 operations, compared with 36 in 2016 and 45 in 2015, although Figure 24 shows a greater area covered in 2016 than 2017.

• In 2017, there were 12 breaches of the HSNO Act, compared with 13 in 2016.21 Three out of the 12 reported incidents were the result of complaints from those who were not part of the operation.

• From 2008-2016, the size of treatment area has varied. The significant peaks in 2014 and 2016 coincided with beech mast events (which occur when favourable climatic conditions encourage excess seed and flower production, feeding both predators and native species).

Data source: EPA Annual Report on the Aerial Use of 1080 for the year ended 31 December 2017.

21 A breach is a non-compliance with HSNO Act controls, or any other legal requirement associated with a 1080 aerial-application operation. More information about these breaches can be found in our Annual Report on the Aerial Use of 1080 for the Year Ended 31 December 2017, at https://www.epa.govt.nz/assets/Uploads/Documents/Hazardous-Substances/1080-reports/Annual-reports/2017-Annual-Report-1080.pdf

22 In Figure 24, private land includes rabbit and possum control.

Figure 24: Aerial 1080: size of treatment area (thousands of hectares) by organisation, 2008-2016

Key Findings

• In 2017, the total land area to which 1080 was applied aerially was 875,106 hectares.22

• In 2017, the organisations that applied the majority of 1080 aerially were TBfree New Zealand (treating 362,147 ha), and the Department of Conservation (DoC) (treating 511,379 hectares).


https://www.epa.govt.nz/assets/Uploads/Documents/Hazardous-Substances/1080-reports/Annual-reports/20

Monitoring cadmium in the soil and groundwater

Cadmium is a naturally occurring heavy metal within the phosphate rock used to make fertiliser. The EPA regulates fertilisers and monitors efforts to reduce cadmium in order to decide whether additional regulatory intervention is required. Exposure to certain forms and concentrations of cadmium is known to produce toxic effects on humans. It is not economically feasible to remove cadmium during the manufacturing of the end-product fertiliser.

The New Zealand fertiliser industry has had a cadmium reduction strategy in place for some 20 years, involving reducing the amount in fertiliser and hence the amount accumulating in the soil.

There is a voluntary industry standard that all fertilisers supplied by members of the Fertiliser Association of New Zealand contain less than 280mg cadmium per kg of phosphorus. This is achieved by blending together phosphate rocks containing different cadmium concentrations. It is best practice to consider cadmium soil concentrations when considering fertilisers.

In the 2017 monitoring report, the EPA reported on the level of cadmium in the soil due to fertilizer. Cadmium can also be found in water, either due to run-off from surface waters or leaching from soil. The following information is from a report to the Ministry of Health regarding the amount of cadmium in groundwater.

Table 11: Measurements of cadmium in groundwater that may be used for drinking water.

Regional Council

Number of data points

Range of concentrations

(mg/L)

Form of cadmium reported

Median (mg/L)

90th Percentile

(mg/L)

Number of samples

with no Cd reported

Bay of Plenty Regional Council

90 <0.00005–0.002

Dissolved 0.000025 0.00022 67

Environment Canterbury

305 <0.00005–0.00178

Total 0.000025 0.000025 298

Environment Southland

64 <0.00005–<0.0003

Dissolved 0.000025 0.000025 64

Waikato Regional Council

762 <0.00005–0.0021

Total (755) Dissolved (7)

0.000027 0.000089 634

Taranaki Regional Council

62 <0.00005– 0.001

Total (5) Dissolved (44)

Dissolved (by AAS) (5)

Acid soluble (8)

0.000025 0.0025 52

Data source: Cadmium in Groundwater: review of regional council data, prepared as part of a Ministry of Health contract for scientific services, May 2014.


Key Findings

• No samples exceeded the maximum acceptable value.

• Of a total of 1283 results, 1115 (87 percent) were reported to have undetectable cadmium concentrations.

• Three samples contained cadmium concentrations exceeding 50 percent of the maximum acceptable value. The remaining samples were at least a factor of 80 times less than the maximum acceptable value.

• The method used to measure 13 of the Taranaki Regional Council samples,23 did not detect whether these samples exceeded the maximum acceptable value. However, no cadmium was measured in these samples.

• Additional samples were taken from sites where fertiliser, the major contributor of cadmium in the soil, had been stored. These samples were not included as they were contaminated sites that would not be used for drinking water.

• Information from the 1995-2008 data source indicated that all sites were within an order of magnitude of the maximum acceptable value and concluded that “in general, cadmium concentrations in groundwater are presently too low to create a hazard to drink-water supplies sources from groundwater”.

23 Samples “dissolved (by AAS)” and “acid soluble” have a limit of detection of 0.005 mg/L, higher than the maximum acceptable value for cadmium.


24 Information for this statement has been obtained from the COLOSS survey http://www.coloss.org/colony-losses-monitoring/

Survey of New Zealand bee colony loss

The Ministry for Primary Industries commissioned Landcare Research New Zealand to conduct a survey to quantify bee colony losses in New Zealand over the winter of 2017. The survey was based on a questionnaire sent to all New Zealand beekeepers, and phone calls made to beekeepers with more than 400 hives. In total,

Data source: Report on the 2017 New Zealand Colony Loss Survey.

the beekeepers who responded to the survey or phone calls represented 30.1 percent of all New Zealand production colonies (2,066 beekeepers representing 242,924 production colonies). Figure 25 shows the percentage of bee colony loss during the winter of 2017, by the causes identified by beekeepers.

Figure 25: Percentage of bee colony loss in New Zealand, by cause, during the winter of 2017 (n = 838)

Key Findings

• During the winter of 2017, there was a national-level estimate of colony losses of 9.78 percent. Of this, two percent of total colony losses were attributed to suspected exposure to toxins, some of which are naturally occurring (the survey does not make a distinction).

• Over-winter colony losses in New Zealand have been consistent and moderate for the past three years. The over-winter colony loss of 9.78 percent is lower than many northern hemisphere countries (an overall loss of 20.9 percent), as noted in the COLOSS survey.24


http://www.coloss.org/colony-losses-monitoring/

Approvals for new organisms in New Zealand

Since 2010, the EPA has approved 157 new organisms for full release (which means there are no conditions or controls set on them).25 To date the EPA has no data to suggest that these organisms have become pest species.

During 2017 and early 2018, the EPA approved new organisms, including genetically modified organisms, coming into New Zealand. The importance of the EPA’s approval process in being able to carefully manage the risks of introducing new organisms, is demonstrated in the following examples:

Arundo galling wasp and arundo scale insect to control reed weed

Northland Regional Council applied to release these two insects as biological control agents for the giant reed weed. This woody, bamboo-like grass grows in dense clumps up to five metres high, and can threaten wetlands and block waterways. It can also provide a habitat for rats and possums. The arundo galling wasp injects its eggs into the stems of the giant reed, which causes a growth or gall that stunts and sometimes kills the stem, reducing the plant’s growth rate. The arundo scale insect sucks nutrients from the stem, reducing the rate at which the giant reed grows and takes up space. The insects’ feeding niches do not overlap so their combined effect on the giant reed can be significant.

Genetically modified T cells for cancer research

The Malaghan Institute received approval to develop genetically modified Chimeric Antigen Receptor T cells as a potential therapy for various blood cancers. If the work under this approval is successful, it may lead to a release application for clinical trials.

Telomelysin for cancer research

Telomelysin is a genetically modified adenovirus that may be used as part of a clinical trial of patients with advanced and inoperable melanoma. It is derived from a common human virus that causes the common cold, and that nearly all people are immune to from around the age of two to five. Once directly injected into a tumour, it replicates in cancer cells, targeting them for destruction.

The approval has been granted to applicant Oncolys BioPharma Incorporated, which has a five-year period to initiate clinical trials with the virus to explore its effectiveness and safety for cancer patients.

Pexa-Vec for cancer research

Pexa-Vec is a genetically modified vaccinia virus that is used in a clinical trial for patients with liver cancer (approved by the EPA in 2015). In April 2018, the EPA approved Pexa-Vec for use in a second clinical trial, to treat renal cell carcinoma, a form of kidney cancer.

25 This number includes 43 camellias approved in a single decision and 46 similar fungal species that are symbiotic with grasses approved in a single decision.


Monitoring of genetically modified organisms

The EPA approved two applications to field test genetically modified organisms (GMOs) in containment, subject to stringent rules which include containment facility standards and requirements, inspection and monitoring commitments, and completion of the approval timeframes. Both field tests are required to report annually on the field testing activities, any unforeseen adverse effects and incidents that have occurred and relevant details, iwi liaison and engagement, environmental impact research, and a five-year assessment of outcomes and benefits achieved to date.

In a field test or outdoor development, GMOs are kept within outdoor enclosures where there are physical barriers (such as buildings) and operating procedures (such as preventing plants from flowering) to keep the genetically modified plant or animal within its secure enclosure. Such activities are classed as being in containment within approved facilities. Table 12 shows the field test taking place in New Zealand.26

26 The 2017 annual reports are at: Scion Research: https://www.epa.govt.nz/assets/FileAPI/hsno-ar/ERMA200479/ERMA200479-Scion-Report-Field-Test-2017.pdf AgResearch Ltd: https://www.epa.govt.nz/assets/FileAPI/hsno-ar/ERMA200223/ERMA200223-Annual-Report-ERMA200223-June-2017-Final-Web.pdf

Table 12: Field tests for GMOs in New Zealand

GMO Applicant Approval date Approval expiry

Radiata pine (Pinus radiata) with altered plant growth/biomass acquisition, reproductive development, herbicide tolerance, biomass utilisation, wood density, and wood dimensional stability.

Scion Research Dec 2010 Dec 2035

Cattle, sheep and goats with therapeutic proteins in milk, or with altered levels of endogenous proteins for the study of gene function, milk composition, and disease resistance.

AgResearch Ltd April 2010 April 2030

Key Finding

• No unforeseen adverse effects or incidents occurred during 2016 to 2018.


https://www.epa.govt.nz/assets/FileAPI/hsno-ar/ERMA200479/ERMA200479-Scion-Report-Field-Test-2017.pd

https://www.epa.govt.nz/assets/FileAPI/hsno-ar/ERMA200223/ERMA200223-Annual-Report-ERMA200223-June-2

27 Note that the approvals allow the aquatic herbicide to be used in water, but the active ingredients in these herbicides can be used on land. The monitoring referred to here is only for use of the herbicide in water, not land.

28 In Figure 26, “regions” refers to: Northland Regional Council (NRC), Auckland Council (AC), Bay of Plenty Regional Council (BOPRC), Waikato Regional Council (WRC), Marlborough District Council (MDC), West Coast Regional Council (WCRC).

Monitoring of aquatic herbicides used to target pest plants

In December 2012, the EPA approved herbicides containing the active ingredients metsulfuron-methyl, imazapyr isopropylamine, haloxyfop-R-methyl and triclopyr triethylamine being applied onto or into water to control aquatic pest plants. The EPA approval is subject to rules that require the ongoing management of risks associated with use of these substances over water. The EPA has set maximum application rates for each herbicide. The EPA has set Tolerable Exposure Limits (TELs) for these herbicides, which are maximum concentrations legally allowed, to help protect people and the environment. Findings for 2016/2017 are outlined in Figure 26 and Table 13.

These rules include requirements for users to monitor a range of environmental indicators and report the findings to the EPA. The purpose of annual monitoring is to reduce the risk of the Environmental Exposure Limit (EEL), a concentration level set by the EPA to ensure protection of the aquatic environment, being exceeded outside the application area as a result of herbicide use in the field.27

Data source: Using herbicides to control aquatic pest plants: shared annual report to the Environmental Protection Authority, 1 July 2016 – 30 June 2017.28

Figure 26: Aquatic herbicides: number of operations undertaken by region and target pest plant, 2016-2017


Key Findings

• In 2016-2017, Haloxyfop-R-methyl was below the EEL through the entire monitoring program, imazapyr isoproylamine was below the EEL seven days after treatment.

• Metsulfuron-methyl was detected in all water samples from both the control site (where no metsulfuron-methyl was added) and the treated site (where metsulfuron-methyl was added), with the exception of the pre-treatment sample from the treated site: • At the treated site, metsulfuron-

methyl was detected in the water at 1,988.1 times greater than the EEL one day after treatment and 38.1 times greater than the EEL 28 days after treatment.

• At the control site, metsulfuron-methyl was detected in the water at 4.6 times greater than the EEL one day after treatment and 19.4 times greater than the EEL 28 days after treatment.

• Prior to treatment, metsulfuron-methyl was detected in sediments at both control (8.2 μg /kg) and treated sites (1.7 μg /kg). Twenty-eight days after treatment, metsulfuron-methyl was detected in sediments at the treated site (2.3 μg /kg) but not at the control site.

• The reason for the detection of metsulfuron-methyl at the control site is unclear as no further information was given. The control site was

approximately 200 m upstream of the treatment area, making any contamination of the control site by the treatment programme unlikely. Metsulfuron-methyl may have contaminated the site from weed control of roadside plantings near the stream and/or from treatment on the Waikato River adjacent to site. No herbicides were applied by Waikato Regional Council prior to monitoring in the 2016/17 growth season.

• Metsulfuron-methyl has a 9.1A HSNO hazard classification due to the effect it has on plants and algae, and is also persistent in the environment. If it is present over the EEL, as found in the control site above, it may cause irreversible damage to aquatic plants (depending on the concentration). In this case, the control site was close upstream to the treatment site, so depending on how far up the river was the source, any damage will be limited to the amount in the river prior to the treatment area.

• The report does not specify whether this finding has resulted in any change of practice or enforcement action, however, monitoring of metsulfuron-methyl will continue.

Table 13: Environmental Exposure Limits (EELs) monitored on sites by the Agrichemical Reassessment Group

Herbicide Location EPA set EEL (µg/L) Water residues Sediment residues

Metsulfuron-methyl Waikato 0.0084 Above EEL throughout

Above EEL throughout

Imazapyr isopropylamine

Waikato 0.1800 Below EEL 7 days after treatment

Below detection limit

Haloxyfop-R-methyl Northland 0.884 Below EEL throughout

Below detection limit

Key Finding

• In 2016-17, Northland Regional Council undertook the highest number of operations using aquatic herbicides to control aquatic pest plants, with a focus on Manchurian wild rice, indicating a higher environmental loading of aquatic herbicides in this region.

Data source: Annual aquatic herbicide residue monitoring 2016/17, prepared for Hawke’s Bay Regional Council on behalf of the Agrichemical Reassessment Group, July 2017.


Approvals for agrichemicals in wheat and barley

The EPA regulates agrichemicals under the HSNO Act, whereby all agrichemicals must be approved before they can be used in New Zealand. Each agrochemical substance contains an active ingredient, which is the chemical ingredient that gives the substance its agrichemical purpose. Active ingredients include glyphosate (a herbicide), permethrin (an insecticide) and thiram (a fungicide).

The EPA uses separate approvals for each distinct substance so specific rules can be applied. These rules are different for every substance, and may include rules regarding how often a substance can be used a year, how far away from water a substances can be applied (buffer zones), and the amount of a substance that can be applied in one session.

The amount of a substance that is applied in one session is called the application rate, and is measured in kilograms of the active ingredient per hectare (kg ai/ha). For some formulations of some fungicides,29 insecticides30 and herbicides,31 the EPA sets a maximum allowable application rate to keep people and the environment safe.

In 2008-2009, a study of pest management using agrichemicals on wheat and barley crops in New Zealand informed pest management strategies. Part of the study included a comparison between 1998 and 2004, providing information about the overall use and application rate of agrichemicals over time, which can be used to compare to the EPA application rates. This information will be a benchmark for future studies.

Figure 27 shows the mean application rate of various families of pesticides on wheat and barley for the period of 2008-2009.

29 These fungicides include cyproconazole (0.056 kg ai/ha), epoxiconazole (0.063 kg ai/ha), propiconazole (0.125 kg ai/ha), prothioconazole (0.107 kg ai/ha) and tebuconazole (9.9 kg ai/ha).

30 These insecticides include chlorpyrifos (1.5 kg ai/ha) and diazinon (2.4 kg ai/ha).

31 These herbicides include glyphosate (7.0 kg ai/ha as the only active ingredient in the formulation), dichloroprop-P (0.25 kg ai/ha), micoprop (0.34 kg ai/ha) and MCPA (0.42 kg ai/ha).


32 This includes cyproconazole, epoxiconazole, propiconazole, prothioconazole and tebuconazole.

33 This includes chlorpyrifos, diazinon and primiphos-methyl.

34 This includes glyphosate and glyphosate-trimesium.

35 This includes dichloroprop-P, micoprop, and MCPA.

36 For instance, the mean application rate for triazole fungicides is 0.166 kg ai/ha. This family of fungicides include epoxiconazole (with a maximum application rate set by the EPA of 0.063 kg ai/ha) and tebuconazole (with a maximum application rate set by the EPA of 9.9 kg ai/ha). The mean application rate is above the maximum application rate set for epoxiconazole but within the maximum application rate set for tebuconazole. From this number, there is no way to identify whether the maximum application rate was adhered to when epoxiconazole was applied. In this instance, it should be noted that tebuconazole was the most commonly used triazole fungicide and is therefore likely to have inflated the mean application rate.37 See the footnotes on page 52 for indicative maximum application rates as set by the EPA.

Figure 27: Rate of application of agrochemicals in wheat and barley, 2008-2009

Data source: RF van Toor, SLH Viljanen-Rollinson, A Rahman & DAJ Teulon (2012) Agrichemical use on wheat and barley crops in New Zealand in 2008–09, New Zealand Journal of Crop and Horticultural Science, 41(1): 9-22, DOI: 10.1080/01140671.2012.673174. The different active ingredients are grouped together based on their chemical class. van Toor et al. contains a breakdown of what each chemical class includes.


Key Findings

• van Toor et al. calculate that 2.13 and 2.93 kg ai/ha of overall of agrichemicals were applied to barley and wheat respectively.

• The fungicides that are applied at the highest application rate are the triazole fungicides (0.166 kg ai/ha in wheat).32 The most commonly used triazole fungicide was tebuconazole.

• The insecticides that are used at the highest application rate are the organophosphates (0.246 kg ai/ha in wheat).33 Since this data was collected, the EPA has reassessed this class of insecticides. This resulted in some of these insecticides being phased out of use and others with increased restrictions on their use, including a lower application rate. Were this data collected again, it is expected that the application rate would decrease.

• The herbicides that are used at the highest application rates are the glycine herbicides (0.692 kg ai/ha in wheat),34 and phenoxy carboxylic acid (0.67 kg ai/ha in barley).35

• The plant growth regulators that are used at the highest application rates are the tertiary amines plant growth regulators (0.815 kg ai/ha in wheat).

• Due to the way van Toor et al. report the application rates as mean application rates of a family of pesticides, the rates cannot be directly compared with the EPA maximum application rates. This means we are unable to comment on whether the application rates are within those set by the EPA.36 Overall, the average application rates are all below 0.9 kg ai/ha, with the majority below 0.3 kg ai/ha. This is significantly less than some relevant maximum application rates set by the EPA.37

• van Toor et al. compared these application rates with those observed in 2004 and 1998 and concluded that the overall amount of agrichemical used on wheat and barley remained generally static since 1998, but the yield increased in this time frame, suggesting agrichemical use is more efficient.


Monitoring herbicide use in New Zealand planted forests

Agrichemicals, such as herbicides, can be used in planted forests in New Zealand. The EPA sets rules to keep people and the environment safe when using substances in forestry.

In 2012, herbicide use in New Zealand planted forests was surveyed to better understand what pesticide use there was in the sector and whether best practice was being followed. The survey was designed to inform pest management strategies. Figure 28 shows the estimated annual input of herbicides for New Zealand’s planted forest area 2012.

Data source: CA Rolando, LG Garrett, BR Baillie and MS Watt (2013) A survey of herbicide use and a review of environmental fate in New Zealand planted forests New Zealand, Journal of Forestry Science, 43(17), DOI: 10.1186/1179-5395-43-17.

Figure 28: Estimate of the annual input of herbicides for New Zealand’s planted forest area, 2012


Key Findings

• Overall, an estimated 447,000 kg ai of herbicide was used in New Zealand planted forests in 2012. Rolando et al. specify that the amount of land in forestry in New Zealand is approximately 1.8 million ha. Each year, 125,000 ha of planted forest (approximately 7 percent) is sprayed with herbicide.

• The most commonly used herbicides were terbuthylazine (179,300 kg per annum) and glyphosate (175,000 kg per annum). Hexazinone (44,800 kg per annum) and clopyralid (37,500 kg per annum) were the next most commonly used.

• Rolando et al. found that glyphosate was the most widely used for pre-plant weed control (control of the weeds before the trees are planted) and terbuthylazine and hexazinone the most widely used for post-plant weed control (control of weeds after the trees have been planted). Rolando et al. estimated average aerial application rates for these three active ingredients were 3.3 kg ai/ha (glyphosate), 7.0 kg ai/ha (terbuthylazine) and 1.8 kg ai/ha (hexazinone). These are all less than the maximum application rate specified by

the EPA for these active ingredients (7.0 kg ai/ha for glyphosate, 9.9 kg ai/ha for terbuthylazine), currently none are set for hexazinone.

• Rolando et al. found that 57 percent of area treated with terbuthylazine and hexazinone was treated via spot application (where only a small amount was sprayed in a specific area instead of spraying everything in an area). This uses 74 – 89 percent less herbicide than aerial spraying.

• Rolando et al. stated the amount of herbicides used for planted forests was similar between 2004 and 2012, when compared with the area of planted forest in those two years. The type of herbicides used were consistent between 2004 and 2012.

• There is a growing trend, in New Zealand and internationally, to decrease the use of pesticides. This is driven by environmental policies and voluntary subscriptions to global sustainable forest management certification schemes, such as the scheme administered by the Forest Stewardship Council (FSC).


Case study: Monitoring of the aquatic environment in New Zealand planted forests Between 2012 and 2014, two studies were conducted regarding the monitoring of various aspects of the environment after application of terbuthylazine and hexazinone to planted forests. Multiple papers were published regarding these studies,38 however, this case study will focus on the aquatic environment as reported by Ballie et al. (2015) and Ballie (2016). These studies are useful, as they identify whether the controls are appropriate in different forest environments, including steepland.

The first trial site was sprayed with terbuthylazine (7.4 kg ai/ha) and hexazinone (1.1 kg ai/ha) in November 2012 (the first application) and October 2013 (the second application). It was a rolling to steep site containing pumice soil in the Bay of Plenty region. The application of pesticide included a 10m “no spray zone” along either side of the stream channels.

38 The papers published include:

BR Baillie, DG Neary, S Gous and CA Rolando (2015) Aquatic Fate of Aerially Applied Hexazinone and Terbuthylazine in a New Zealand Planted Forest, Journal of Sustainable Watershed Science & Management 2(1): 118–129, DOI: 10.5147/jswsm.2015.0187

BR Baillie (2016) Herbicide concentrations in waterways following aerial application in a steepland planted forest in New Zealand, New Zealand Journal of Forestry Science 46(16) DOI: 10.1186/s40490-016-0072-0

LG Garrett, MS Watt, CA Rolando, SH Pearce (2015) Environmental fate of terbuthylazine and hexazinone in a New Zealand planted forest Pumice soil, Forest Ecology and Management 337: 67–76, DOI: 10.1016/j.foreco.2014.10.028

LG Garrett, MS Watt, SH Pearce (2016) Environmental fate of terbuthylazine and hexazinone in a planted forest steepland Recent Soil, New Zealand, New Zealand Journal of Forestry Science 46:17, DOI 10.1186/s40490-016-0073-z

DG Neary and BR Baillie (2016) Cumulative Effects Analysis of the Water Quality Risk of Herbicides Used for Site Preparation in the Central North Island, New Zealand, Water, 8(12), 573; DOI: 10.3390/w8120573


Key Findings

• The highest concentrations for both terbuthylazine (1160 µg/L) and hexazinone (230 µg/L) were measured in water on the day of the first application. At the end of the day of application, the concentrations were below 12 µg/L and 1 µg/L for terbuthylazine and hexazinone respectively.

• Lower levels were detected after the second application, due to decreased amount of herbicide used (85% of the previous year) and a more conservative spray regime around streams. The highest concentrations for both terbuthylazine (4 µg/L) and hexazinone (3 µg/L) were measured in water on the day of the second application. After the second application, there were significant rainfall events seven and 36 days after application of the herbicide. This increased terbuthylazine (210 µg/L at seven days and 5 µg/L at 36 days) and hexazinone (7 µg/L at seven days and <3 µg/L at 36 days) concentrations in water.

• The authors noted that the amounts of herbicides in the aquatic environment were above the level required to pose a risk to algae in the environment, however no dead algae were seen. The amounts of herbicides were significantly below the level required to pose a risk to other aquatic organisms.

• The second site was sprayed with terbuthylazine (6 kg ai/ha) and hexazinone (1.5 kg ai/ha) in November 2014. It was a steepland site with greywacke hill country

in the Bay of Plenty region. The application of pesticide included a 30 m “no spray zone” along either side of the stream channels.

• The highest concentrations for both terbuthylazine (9.60 µg/L) and hexazinone (5.30 µg/L) were measured in water on the day of application. After the day of application the concentrations were below 3 µg/L and 3.7 µg/L for terbuthylazine and hexazinone respectively and did not raise above those levels.

• The authors noted that the amounts of herbicides in the aquatic environment in the second study were significantly below the level required to pose a risk to aquatic organisms. Limits on the amount of terbuthylazine and hexazinone allowed in the aquatic environment have not been set by the EPA.

• The application rate of terbuthylazine for both sites are less than the maximum application rate specified by the EPA (9.9 kg ai/ha for terbuthylazine). No maximum application rate is set for hexazinone.

• These studies showed that concentrations of terbuthylazine and hexazinone in the aquatic environment can be minimised using “no spray zones” surrounding streams and other spray regime measures around streams, even in steep terrain.

• The EPA agrees that, given certain conditions, “no spray zones” are appropriate to ensure that rules surrounding hazardous substances are followed.


Regulatory interventions and initiatives

The EPA has advanced the vision of ‘an environment protected, enhancing our way of life and the economy’ using a range of regulatory interventions and initiatives under the HSNO Act, that include:

Working Safer reforms

A key focus for 2017 was the Working Safer reforms (that transferred responsibility for regulating hazardous substances in the workplace to WorkSafe New Zealand from 1 December 2017, under the Health and Safety at Work (HSW) Act 2015). Territorial authorities are responsible for enforcing the provisions of the HSNO Act in non-workplaces, the Ministry of Health is responsible for enforcing the provisions of the HSNO Act where there is a risk to public health, and the EPA is responsible for protecting people and the environment from harm through the hazardous substances approvals process, and by setting rules to ensure the general public is not exposed to hazardous substances.

The EPA is responsible in areas such as product labelling and packaging requirements, managing the environmental risk of a substance, disposing the substance and the use of the substance in non-workplaces.

The EPA sets out its rules in a series of EPA Notices that came into force on 1 December 2017, to coincide with the commencement of the HSW (Hazardous Substances) Regulations.

Safer Homes program: giving people the knowledge to keep safe

During 2017 and 2018, the EPA provided information for consumers about safe use of household chemical products such as cleaning products, detergents, toiletries, cosmetics, fuels, and garden products. There is a wide range of information on the EPA website; and the EPA Facebook page provides regular updates. Launched in August 2016, a year later the website had been viewed 93,000 times.

In 2018, in partnership with Wellington Rugby the EPA increased visits to schools and events to further spread the message, and increased resources, including translating them into Te Reo Māori.

Key messages used in the Safer Homes initiative include: always read the label and follow safety instructions; use products as intended and never mix chemicals together; close containers properly, lock them up, and keep them out of reach; store products in original containers, and use child safety fasteners on cupboards.

Red Alerts and Caution Notices to keep people safe

The EPA pioneered direct forms of communication to warn the public about dangers to their safety and to the environment. The new tools – the Red Alert and Caution Notices – raise awareness about dangers arising from the use of particular hazardous substances. Red Alerts warn of very significant dangers. Caution Notices alert consumers and users on how to stay safe and protect the environment when handling or applying particular hazardous substances.

The first Red Alert notice warned the public of the dangers of using products containing chlorothalonil, a broad-spectrum pesticide used to control fungal leaf diseases in vegetables, ornamental crops, and turf. This was after a reassessment of chlorothalonil, where the EPA banned four products from sale in New Zealand.

The first Caution Notice set out good practice measures for households using over-the-counter harmful products to eradicate rats, mice and other similar pests around the home, as such products are widely used. This safety notice was not in response to any surge in incidences, but was motivated by wanting to promote, maintain and enhance consumer safety.


Chemical map

During the past year, the EPA commenced an ambitious project aimed at developing a 'chemical map' of New Zealand. This will inform decisions about the use of chemicals across the country, spark conversations with stakeholders about chemical management, and make it easier to compare New Zealand with other countries. This will include identifying and obtaining data about chemicals in New Zealand, which may give more insights into New Zealand’s regulatory regime.

This is an exciting and far-reaching project, which will require close liaison with stakeholders. The chemical map is expected to produce a system for visualising chemical information in ways that will provide insights, and may impact on how this report is delivered in the future.

Native species testing

The native species testing project is to ascertain whether the test species (known as ‘surrogate species’) that are used for risk assessment of hazardous substances, are appropriate for New Zealand native species. This project should enable the EPA, agrichemical manufacturers and users, and Māori, to have confidence in the risk assessment methodology that is used to assess risk to native species.

Hazardous substances applications

In assessing applications for new hazardous substances, the EPA balances their potential economic and environmental benefits against the risks they pose to human health and the environment.

The EPA approved applications in 2017 that included HFO-1234yf (2,3,3,3-tetrafluoropropene), which is a refrigerant gas that (unlike many other refrigerant gases) does not harm the ozone layer, for use in domestic and commercial refrigeration and vehicle air conditioning. With a comparatively low global warming impact and zero ozone-depleting rating, the product could replace substances that are more harmful to the environment.

Poly-fluoroalkyl-substances

The EPA is formally investigating fire-fighting foams containing PFOS (perfluorooctane sulfonic acid) and PFOA (perfluorooctanoic acid), and whether these are held or being used at airports or other locations. Poly-fluoroalkyl-substances (PFAS) is a large family of synthetic chemicals which have been used in many different types of manufacturing since the 1940s, and in foams since the 1960s. PFOS and PFOA are members of the PFAS family of chemicals. Fire-fighting foams manufactured using PFOS or PFOA have not been legal for use in New Zealand since 2006.

PFOS, its salts, and precursors are of national concern as they are persistent in the environment, resistant to environmental degradation, and can potentially bioaccumulate in animals and humans. Their use and management are restricted internationally under an agreement called the Stockholm Convention, as they are persistent organic pollutants.

The EPA’s priority has been to locate foams containing PFOS and PFOA, and to promote their appropriate disposal. Where foams containing PFOS or PFOA have been identified, the EPA has been ensuring that they are no longer used, and that they are stored appropriately prior to disposal. The EPA has also provided information about the disposal of fire-fighting foams containing PFOS, as well as how to carefully manage foams containing PFOA, or other PFAS compounds. Provided these foams are appropriately stored, they pose no immediate risk to people or the environment.

Reassessment of chemicals strategy

To ensure risks to people and the environment continue to be managed effectively, the EPA screened a list of approximately 700 chemicals for which both New Zealand and international information indicated merited review, and from that list, identified a priority chemical list, from which the EPA will reassess first.

The first reassessment was of herbicides containing paraquat. These are of concern because paraquat has severe effects on human health and aquatic environments.

New organisms approvals

Biological control agents – living organisms – are used as one way to combat pests, insects, weeds and plant diseases that can damage agricultural crops and native flora. The EPA manages the approvals process for bringing new organisms into the country. The aim is to ensure the benefits from any new organism outweigh any risks to human health or the environment.

Protecting bees and other pollinators

The EPA keeps in contact with key stakeholders concerned about the wellbeing of pollinators and helps protect bees and other pollinators, such as moths, butterflies, hoverflies, and birds, by setting the rules around when, how, and where insecticides should be used. These rules apply whether the insecticide is for use in the garden, or in large-scale agricultural or horticultural settings.

In New Zealand, strict rules have been in place for many years around the use of a class of insecticides that contain neonicotinoids.


Neonicotinoids are systemic insecticides. This means they move around plant tissues to protect the entire plant from insects. They are used to control insects that can damage some fruit, ornamental, cereal, and vegetable crops. They are also used as a seed treatment in maize or cereals (which are wind-pollinated) to control pests and thereby help crops become established.

In 2018, when the European Food Safety Authority (EFSA) updated the risk assessments for three neonicotinoids, the EPA put out a call for information to see how the substances are used in New Zealand, and whether EFSA’s findings are relevant to the New Zealand context. The EPA is now analysing the results of the call for information, and will determine the next steps.


Appendix 1: Methodology

This year’s report goes into more depth than previous reports by investigating the data related to measurements of harm to people attributed to hazardous substances, and using new data sources related to the use of agrichemicals in the environment.

There is a difference in some of the human health-related findings between this year’s report and previous years’ reports, this is due to a refresh of the data used in this year’s report.

Hospitalisation cases and deaths attributed to hazardous substances

In terms of hospitalisation cases and deaths attributed to hazardous substances, there are different categories of exposure. Most of the report uses two categories: unintentional exposure to hazardous substances, and unknown intent (which is used in cases where it is unclear if the exposure was intentional or not). Data related to intentional harm from hazardous substances exposure is used in a limited capacity in this report. Where rules are intentionally breached, any resulting harm may not meaningfully contribute to measuring the effectiveness, or otherwise, of the HSNO Act to prevent harm. Figures 2 and 10 include cases that were categorised as intentional, to provide a complete picture of all categories of exposure to hazardous substances.

No hospitalisation or mortality counts, attributed to hazardous substances or new organisms as defined by the HSNO Act, have been excluded from this report. It should be noted that some substances are not within the scope of the HSNO Act, including food, alcohol, drugs, and carbon monoxide and carbon dioxide as produced by an internal combustion engine.

This report uses the term “hospitalisation cases” because individuals may be hospitalised more than once. Each hospitalisation is counted as a single case.

Per population divisor

This report uses a calculated rate per 50,000 population of hospitalisation cases to cater for the effect of the different age, ethnicity, and regional distributions of the total New Zealand population. This allows comparisons between different demographic groups. A more common population divisor used is calculated as a rate per 100,000 population.

The per population divisor was decided by taking the lowest regional council populations (Nelson, Tasman, Gisborne, and Marlborough), which roughly have a population of 50,000 population. If a 100,000 population divisor was used, it would suggest that the rates were significantly higher than the counts for these low population areas, which gave a misleading interpretation of what is being measured in these regions.

By using the 50,000 population divisor, the overall effect is to appear to slightly inflate lower values, and slightly deflate higher values. For a quick comparison to the 100,000 population divisor, the rates in this report can be doubled.

Use of Statistics New Zealand data

The ethnicity data field was extracted from Statistics New Zealand. It is only available as at census years, which were 2013, 2006, 2001, and 1996. There is no population estimates for this data field.

The region and age group data fields were extracted from Statistics New Zealand. These are provided as per year estimates, unless they coincide with census years, in which case actual census data is used.

This report uses regions as defined by Statistics New Zealand.


Substance classifications

Using the data from the Hazardous Substances Surveillance System, substances have been classified into the HSNO group standards or substance types by analysing the free text “substance” fields in the raw data. Group standards are broad approvals that cover multiple hazardous substances, and set the rules for all hazardous substances that fit within each particular group standard.

The substances in the raw data were matched with the appropriate group standard approval or group of individual approvals. When the “substance” field contained the text “gas” without additional context into the type of gas, it was matched to “unspecified gas” and “unspecified flammable gas”, depending on the other information in the diagnosis group and substance fields. “Gas” is a common name for LPG and therefore many of these entries may be referring to LPG.

When the substance field gave no information as to the substance, it was matched to “not able to categorise”. For example, if the “substance” field contained the text “sodium hydroxide” or “caustic soda” without additional context, it was matched to “not able to categorise”. Sodium hydroxide (also called caustic soda) is commonly used as a cleaner but has other uses. Without additional context, the appropriate substance group matching cannot be made.

When the substance field specified a chemical, but it was not clear which group standard it belonged to, it was matched to “unspecified hazardous substance”. For example, when the substance field contained the text “alkali” without

additional context (which might have clarified, for example, that it referred to alkali based cleaning products), it was matched to “unspecified hazardous substance”.

There are some hospitalisation entries that note drug and alcohol use. If no clear substance information is available in the substance field, it is not possible to tell if the hospitalisation is due to drug and alcohol use, or due to exposure to a hazardous substance during the episode of drug or alcohol use. Those entries that do not specify any hazardous substance in the substance field have been matched to “unspecified hazardous substance.” If the substance was specified but may be a component of the drug or alcohol, it was matched to “not able to categorise”.

Carbon monoxide or carbon dioxide as produced by an internal combustion engine is beyond the scope of the HSNO Act. No attempt has been made in this report to differentiate between various sources of carbon monoxide or carbon dioxide and this is clearly noted in the substance category name “carbon monoxide and dioxide (including as produced by combustion engines)”.


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