Advancing Animal Disease Traceability

(ADT) Road Map for

Colorado

A Three-Year Plan

Submitted by:

DR. MAGGIE BALDWIN

COLORADO STATE VETERINARIAN

COLORADO DEPARTMENT OF AGRICULTURE, ANIMAL HEALTH DIVISION

305 INTERLOCKEN PARKWAY, BROOMFIELD, CO 80021

303-869-9130

Submitted to:

DR. DON BECKETT

AREA VETERINARIAN FOR COLORADO

VETERINARY SERVICES

ANIMAL AND PLANT HEALTH INSPECTION SERVICE

UNITED STATES DEPARTMENT OF AGRICULTURE

13922 DENVER WEST PARKWAY, SUITE 100-VS, LAKEWOOD, CO 80401

303-231-5385

Date: February 10th, 2023
Table of Contents

Table of Contents

I. EXECUTIVE SUMMARY ..................................................................................................................3

II. CURRENT TRACEABILITY SITUATION.............................................................................................5

2.1 Who are we? .........................................................................................................................5

2.2 Where are we now?..............................................................................................................6

2.3 Strengths and Weaknesses.................................................................................................10

2.4 Opportunities and Threats..................................................................................................11

2.5 Inventory of existing infrastructure and suitability assessment.........................................11

III. VISION AND MISSION CONTEXT FOR ADVANCING TRACEABILITY..............................................12

3.1 Vision Statement.................................................................................................................12

3.2 Mission Statement..............................................................................................................12

IV. TRACEABILITY REQUIREMENTS...............................................................................................12

4.1 Strategic goal(s)...................................................................................................................12

4.2 Programmatic goals (objectives).........................................................................................13

4.3 ADT Trace Performance Measures (TPMs).........................................................................16

4.4 Data requirements..............................................................................................................17

4.5 Information technology plan ..............................................................................................18

4.6 Resource requirements.......................................................................................................20

4.7 Organizational needs ..........................................................................................................20

4.7.1 Executive support ...........................................................................................................20

4.7.2 Coordination and oversight procedures.........................................................................20

4.7.3 Policy ...............................................................................................................................20

4.7.4 Staffing ............................................................................................................................20

4.7.5 Budget requirements......................................................................................................21

4.7.6 Outreach (required to be addressed within the Road Map) ..........................................21

4.8 Monitoring and reporting interstate movement activity ...................................................23

V. ADVANCING TRACEABILITY.........................................................................................................23

5.1 Ranking of priorities for advancement ...............................................................................23

5.2 Implementation of objectives.............................................................................................24
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I. EXECUTIVE SUMMARY

The Animal Health Division of the Colorado Department of Agriculture (CDA) has greatly 

enhanced its animal disease traceability capabilities in the last 10 years. Important components 

of the improvements were made possible through the Animal Disease Traceability Cooperative 

Agreements from USDA APHIS Veterinary Services. Animal Disease Traceability is not something 

new but has been a focus of the Division’s office processes dating back to the implementation of 

the health certificate system for interstate movement of livestock. During this history, much of 

the Division’s animal disease traceability was based on the paper health certificate system but 

lacked the ability to quickly query, search, analyze, and run reports on livestock premises, 

livestock movement, and animal ID. Instead, disease trace-outs and finding animals of interest in 

a disease outbreak were done through accessing paper-based filing systems of the day. Many 

times, those systems were very inadequate, and the time involved in searching for data is very 

time-consuming. 

Up until 2012, a paper-based filing system was still in use at CDA. In January 2012, the Division 

began the transition from a paper-based filing and searching system to an electronic, searchable, 

database for livestock premises, livestock movement data obtained from certificates of 

veterinary inspection (CVI), animal ID information, and management of animal incidents. CDA 

contracted with Computer Aid Incorporated (CAI), the former software vendor for the USAHERDS 

animal health information management system and implemented it in July 2012. The USAHERDS 

system and CDA’s development of detailed office processes and standard operating procedures 

(SOPs) for all USAHERDS processes and personnel are key components for the success of the 

system. 

This electronic transformation was not one that happened overnight, but the Division continues 

to set goals, objectives, and priorities for advancing its electronic animal disease traceability 

capabilities with the overarching goal of rapid response to real life animal health and disease 

control incidents. Consistent, accurate, and proficient data entry of premises, livestock 

movement, animal ID, and laboratory testing information is vital for accurate and useful 

reporting and analysis. USAHERDS has helped to increase the speed of response to real life 

disease incidents and outbreaks and improved the management of animal incidents such as allhazard events like wildfire, blizzard, flood, and other natural disasters. 

Foundational to our animal disease traceability goals is the Division’s high priority to increase 

the number of veterinarians that use electronic CVIs; which allows data from the CVIs to be 

directly migrated into the USAHERDS database. We have made significant progress as currently 

there are 1,158 Colorado veterinarians that use some type of electronic CVI system. The use of 

electronic CVIs creates greater office efficiencies within the Animal Health Division because it 

saves the Division’s staff from having to do as much data entry as there are fewer paper CVIs 

that arrive in the office. In 2017 CVIs issued by Colorado veterinarians were 56% electronic. In 

2022 CVIs issued by Colorado veterinarians were 83% electronic.
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CDA has put funding towards designing and creating an electronic CVI (VET CVI) application that 

will allow the creation and sharing of CVIs for veterinarians. This application also allows for 

recording of brucellosis vaccination and tuberculosis testing reporting. Combining these into one 

application and uploading that information into the USAHERDS database increases our exposure 

to electronic IDs. All of this leads to our increased ability to trace animal disease. 

Manual data entry from paper CVIs takes an immense amount of time to capture and transfer 

that livestock movement data and animal ID data from the paper certificates and enter it into 

USAHERDS. Through the office efficiencies created by increased electronic CVI data “flowing” 

automatically into the database, it has allowed staff the time to collect more animal ID data from 

the paper CVIs. Ultimately this has resulted in greater animal disease traceability through animal 

ear tag information becoming more searchable. For example, in the last quarter of 2022 Division 

staff entered 13,208 official IDs from cattle into USAHERDS, there were 69,555 cattle IDs that 

were migrated into USAHERS through the use of electronic CVIs. To compare, in the last quarter 

of 2019 Division staff entered 33,026 official IDs from cattle into USAHERDS, there were 65,121 

cattle IDs that were migrated into USAHERDS through the use of electronic CVIs, in a recent 

quarter of 2016, the Division staff entered 30,649 official IDs from cattle CVIs into USAHERDS. In 

the same quarter of 2015, there were only 11,396 official IDs entered from cattle CVIs. In 

addition, Division staff continue to create ideas for enhancements within USAHERDS to improve 

the speed of uploading animal ID numbers and other improved capabilities so that 

enhancements can be built by Acclaim (the vendor for USAHERDS) within the database. Overall, 

our ability to search livestock movement data and animal ear tag information has improved 

considerably which aids our animal disease traceability and livestock emergency response 

efforts. 

In 2015, CDA contracted with CAI (the former vendor for USAHERDS) to implement USALIMS at 

the Animal Health Division’s Animal Health Laboratory (AHL). It is a laboratory information 

management system that is a sister application to USAHERDS, it is being used at 19 different 

animal health laboratories across the country. The addition of USALIMS to our Division has 

further advanced animal disease traceability efficiencies. It enhances information sharing, 

facilitates transfer of samples between labs, streamlines reporting of program disease data, 

increases the number of official animal IDs recorded in USAHERDS, and enables our disease 

response activities to be more effective. Also, more importantly, it provides real time information 

on laboratory testing and ties those results to the premises in USAHERDS therefore increasing 

efficiency and reducing labor. The USALIMS at AHL also tracks official ID tags and paper CVIs that 

are dispersed to Colorado veterinarians, aiding in trace-back activities. 

Colorado State University, a National Animal Health Laboratory Network lab, began using 

USALIMS several years ago. CDA funded an enhancement that will allow messaging from CSU’s 

USALIMS database directly into USAHERDS. This capability will drastically increase our capability 

and efficiency to respond to disease incidents and outbreaks. 

The Colorado Department of Agriculture plans to:
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● Achieve and Report on National Priority Traces

● Provide Proficient and Effective Administration and Reporting of Official 

Identification Devices 

● Integrate and Provide Efficient Processes for Information Sharing in order to 

Improve Traceability and Disease Control Capabilities 

● Implement and Sustain Traceability Education and Outreach

● Continue to Increase Use of Electronic Records in the Management of Livestock 

Premises, Animal IDs, Livestock Movement Information, and Disease Control 

● Increase Compliance Activities and Enforcement of the ADT Rule 

● Monitor and Report on the Administration of Official Identification Devices and 

on the Interstate Livestock Movements Imported and Exported from the State 

via CVIs 

These ideas will be outlined below. 

ADT funding predominantly supports the salaries for one traceability program specialist (95% of 

that salary and fringe benefits) and one Traceability Veterinarian also known as program 

veterinarian (40% of that salary and fringe benefits). The remainder of the funding goes towards 

monthly cell phone service for the program specialist and a portion of the annual maintenance 

cost of the USAHERDS database. In the next 3 years these salaries are projected to increase by at

least 3% each year, which would deplete the budget amounts available for cell phone service and 

USAHERDS maintenance.

This Animal Disease Traceability Road Map lays out specific traceability strategic objectives for 

Colorado to serve as a guide and sets the 3-year course for animal disease traceability activities 

running through FY 2025. 

II. CURRENT TRACEABILITY SITUATION

2.1 Who are we?

● Who are the primary constituents?

Colorado Department of Agriculture, Division of Animal Health

Colorado area USDA-APHIS-VS

● Who are the external constituents?
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Colorado livestock industry stakeholders, Colorado State University Veterinary 

Teaching Hospital, Colorado State University Research and Extension, Colorado 

Veterinary Medical Association, Colorado Livestock Market Association, 

Governor’s Forum on Colorado Agriculture. All of these stakeholders have contact 

with more small industry stakeholders which creates a trickledown effect of 

information that can impact the ADT program. 

● What does statewide, tribal-wide, territory-wide mean?

Statewide means the entire state of Colorado.

● How are traceability data used internally, externally?

In Colorado, there is a State statute called the Livestock Information Security Act 

which prevents the State from sharing all proprietary information with federal 

agencies but an exemption is written into the statutes whereby CDA can share 

information with USDA, state animal health officials, and other emergency 

management response partners in time of disease and disaster affecting Colorado 

animal agriculture. We fully intend to do that and partner with USDA VS for 

disease control, emergency response, and animal disease traceability efficiencies.

● What values guide the ADT system?

The values that guide our ADT system are the same that guide our entire Colorado 

Department of Agriculture: Respect Professionalism, Service, Partnership, and 

being Proactive. 

2.2 Where are we now?

Since 2012, we have used USAHERDS as our animal health information management 

database. There is much overlap between livestock disease control, animal emergency 

response, and disease traceability; USAHERDS stores information on livestock premises, 

official animal ID, livestock movement as captured from certificates of veterinary 

inspection (both import and export CVIs), and disease outbreak incidents in Colorado. It 

is a highly searchable database that allows for timely responses to NPTs, as well as real 

life traces, and livestock incidents. USAHERDS also allows us to export data and generate 

reports as well as manage disease quarantines and associated documents. The system is 

limited only by our ability to populate it with useful data from CVIs, test charts, disease 

investigations, and livestock incident response activities. We can more readily share 

information with other states that use USAHERDS due to the common database structure, 

but it is not as easy with other state or federal databases. It is our goal to work at the 

national level to find ways to integrate animal disease traceability data with other 

databases that are in use as it will benefit all states and our national capabilities in disease 

traceability. 
7

Colorado strives to be a leader in the field of ADT information sharing. By being involved 

in these conversations, both regionally through the Western States Livestock Health 

Association and nationally through the United States Animal Health Association, progress 

has been made on data sharing and integration. We will continue to be a leader in 

electronic ID and information sharing. Helping to establish a common reporting format 

for ADT information that will work with multiple state information databases is a priority 

for Colorado as this type of standard data formatting will reap dividends in regards to 

shared interstate livestock movement and animal ID information. CDA personnel have 

served on the Subcommittee on CVI XML Standards of the USAHA Committee on Animal 

Health Surveillance and Information Systems. This sub-committee developed the current 

USAHA XML CVI Standards which has served as a template for any new electronic CVI 

systems so that the data transfer from the company’s CVIs would easily message into 

USAHERDS or other databases without manual data entry. CDA is committed to continue 

setting this as a goal that has the highest priority; to cooperate and advance a national 

effort to work towards building integration between databases in order to share 

information without manual data entry. This is especially true as it relates to CVI livestock 

movement and animal ID information. 

This data sharing also occurs between the USAHERDS database and the USALIMS 

database at AHL. Laboratory accession data is entered into USALIMS and is connected to 

the premises ID (PIN) or Location ID number (LID), the animal ID, and other premises 

information such as livestock disease incidents. CDA plans to work with Acclaim, the 

vendor for USALIMS and USAHERDS, to develop web-service messaging that will 

automatically send information from the AHL or another USALIMS-user lab to a state that 

uses USAHERDS as their animal health database. For example, if a western Kansas 

veterinarian sends samples to the AHL, the laboratory accession information and test 

results including animal ID data on the animal would be automatically sent to the Kansas 

USAHERDS database in Manhattan, KS. Previously, that type of messaging only occurred 

from AHL to the USAHERDS database in Colorado. In addition, we have made progress 

towards our goal to have all three Colorado State University diagnostic laboratories in 

Colorado able to message into our Division’s USAHERDS database. Currently, those 

diagnostic laboratories report all Trichomonas test results through direct messaging into 

USAHERDS, including official animal IDs and animal location information. This will greatly 

increase our traceability data on the state’s livestock populations. 

Another way that we want to expand upon information sharing between states is by 

seeking ways to increase CVI sharing efficiencies with other states. One way we are 

working on this is through utilization of the VET CVI app as a tool for our accredited 

veterinarians. We are working with IIAD to help facilitate “automatic upload” of the 
8

import CVIs we receive and reciprocate that with other USAHERDS states as well. 

Currently the import and export electronic CVIs are automatically migrated into our 

USAHERDS system from most CVI applications. We also continue to support (through 

consultation, testing assistance, and in some cases monetary funding) solutions for 

sharing information between GlobalVetLINK (GVL) and VSPS in regards to finding a 

uniform reporting format for automatic sending of CVIs generated in those systems to 

our USAHERDS database. We will continue to look for those opportunities for improved 

information sharing of livestock movement and animal ID data between different 

databases and will help to fund those enhancements. With the VET CVI app we would see 

CVIs which are generated by the accredited veterinarians and are then automatically 

uploaded to both the origin state and the destination state simultaneously, upon 

submission of the completed CVI by the issuing veterinarian. This is a pathway to 

improved data sharing between states and to also possibly serve in lieu of an entry 

permitting system. If we are receiving the electronic CVIs as soon as they are issued, the 

process will serve the main purpose of an entry permit system – to receive real-time 

information and to be able to follow up with any necessary actions. 

Increasing the use of electronic records in all aspects of ADT is a primary goal of the 

Colorado Department of Agriculture. By continuing to increase the use of electronic CVIs 

with our accredited veterinarians, we help to make this data more searchable and 

accurate within our USAHERDS database. This helps us to have electronic records of 

livestock premises, animal IDs, and livestock movement information. 

Additionally, helping veterinarians see the benefit of electronic animal ID (RFID ear tagsboth low frequency and ultra-high frequency tags) in their electronic form generation 

(testing and vaccination charts as well as CVIs) saves them time and money while at the 

same time reducing the amount of manual data entry. To this end we continue to train 

and work with our VMOs and also make sure that both the Traceability Veterinarian and 

Traceability Program Specialist are available to educate and troubleshoot these electronic 

options with the veterinarians of our state. We provide a “help-desk” type of service to 

all of our veterinarians so that if they encounter any problems with using electronic CVIs, 

they know that they can count on our office to provide help and solid customer service. 

We feel it is important to support the veterinarians who are trying to change over to a 

new era of CVIs, and this will continue to be a priority for increasing and managing the 

number of electronic records in our database. A veterinarian from our staff is always on 

call to help our veterinarians at all times whether that be to report disease outbreaks or 

help with import or export requirements. 
9

Another way that we continue to increase the use of electronic records is through our 

work with other states in helping them to adopt electronic CVI options for their own

veterinarians. When asked by other state animal health officials, our Division staff has 

also shared our office processes to accommodate the increased use of electronic CVIs. 

CDA has taken a leadership role with the USAHERDS User Group which is a working group 

of all the states that have implemented the USAHERDS database. Our staff have served 

in many leadership roles such as Secretary, Vice-President, and President of the group 

and have been active participants of the group. This group’s role is to envision new 

enhancements, hold annual national training, have monthly conference calls, and, 

ultimately, to develop and implement new enhancements to the database. Colorado has 

taken a leadership role in the past and will continue to stay active and engaged. 

As we continue to work with other states to improve traceability, whether they are using 

state-built databases, SCS, or USAHERDS, it will result in an increasing percentage of 

electronic records generated in our database and in theirs. In building cooperation and 

collaboration on information sharing and database integration, we will increase our 

electronic records to build our nation’s traceability capabilities. It also serves to make 

data sharing more convenient and timely in real life scenarios. 

We are increasing the use of electronic records by working closely with the USDA/APHIS 

VS to facilitate electronic options for any traceability requirements in which it may be 

possible to use electronic submission options. Those electronic formats of data are much 

easier to share and/or trace than traditional data from paper forms or submissions. The 

Division plans to investigate and pursue work with Acclaim, the vendor for USAHERDS, to 

develop and adopt an electronic form for TB test charts and Brucellosis vaccination 

records so that data can be automatically uploaded into USAHERDS. In addition, CDA will 

work with other USAHERDS states to share the funding of building enhancements to 

USAHERDS that will improve electronic records, data management capabilities, and 

functionality. 

We also plan to continue to work closely with livestock auction markets to improve the 

animal ID records; these often play a critical role in actual disease traces and if not 

properly maintained, we can lose traceability at a critical juncture. We intend to have 

VMOs continue to work with all livestock auction markets and their veterinarians to move 

toward electronic record keeping. 

Another component of increasing electronic records for use in disease outbreaks is 

making sure that we have staff within our office, as well as VMOs in the field, that are 

trained and familiar with the databases that will be used in these real-world scenarios. 

Making sure that 2-3 CDA Animal Health Division employees are trained in the use of 
10

EMRS2 continues to be a priority. As mentioned previously, all of our exercise and reallife trace-outs will be recorded in EMRS2 and EMRS2 will play a large role in a real-life 

disease outbreak. Additionally, keeping 2-3 employees trained, proficient, and with upto-date access in the federal and private animal health databases is crucial in searching 

and conducting both NPTs and real-life trace-outs. Private databases like GVL and IMI 

Global, along with federal databases like SCS, SCS-Scrapie, VSPS, and the AINM are all 

critical in tracing a real-world disease scenario. Combining the capability of USAHERDS 

with our familiarity with these locations and proficiency with the other databases 

strengthens the emergency disease response that we can conduct in a real-life scenario. 

The CDA field staff and traceability specialists at the State Veterinarian’s Office have 

also assisted practicing veterinarians and CSU Veterinary Teaching Hospital staff in using 

MIM technology for capture of animal ID data when TB herd testing or in other 

situations. In addition, we will keep at least two CDA staff trained on use of PDAs, 

wands, and animal ID data capture to assist field efforts and for use in emergency 

management incidents. This aids animal ID data sharing and increases traceability 

through an expanded database of animal IDs. In the past, we have funded the purchase 

of equipment and will continue to support, fund, and maintain proficiency in this area. 

We have continued to acquire funding to purchase equipment (RFID readers, RFID 

taggers, rugged laptop, and rugged tablets) and software (SaleTime Vet Module) for 

livestock auctions to increase access to electronic CVIs and RFID capabilities, allowing us 

to improve our traceability. 

2.3 Strengths and Weaknesses

Strengths

● Good working relationships with industry stakeholders

● Staff with strong ties to the livestock industry

● Colorado’s secure food supply plans

● Addition of an emergency management liaison

● Staff with strong technological skills who are willing to 

troubleshoot. 

Weaknesses

● CVIs that are illegible, missing information, animal ID numbers that 

are not accurately recorded by veterinarians

● CVIs or testing that does is not automatically uploaded or 

connected to USAHERDS
11

● Limited funding for EID readers and SaleTime VetModule to be able 

to provide to producers, livestock markets, and veterinarians in the 

field. 

2.4 Opportunities and Threats

Opportunities

● Encourage the use of EID tagging and electronic documents

● Increasing information capture of EID tagging through the No-Cost 

RFID program

● Communication, education, and outreach to our stakeholders

● Improving information and traceability at livestock auctions 

through the SaleTime VetModule

Threats

● Distrust from our Stakeholders due to increased backgrounding 

costs caused by EID. 

● Risk of transboundary or emerging disease introduction without 

appropriate timely recognition in the field. 

● Having a system that is limited to feedback and information 

provided to us. 

2.5 Inventory of existing infrastructure and suitability assessment

CDA office personnel include 3 full time employees who are responsible for entering and 

primary review of CVIs. We also have a full time Traceability Specialist and a Program 

Veterinarian dedicated to ADT and non-compliance issues and contingency plans. We 

have 4 field staff members that also contribute enforcement with livestock auctions and 

routine compliance. We also work closely with our USDA counterparts to be able to cover 

the whole of Colorado. We have adequate office space. We have 3 full time staff that have 

access and proficiency to search for official animal ID and animal movement data located 

in the following nine databases: AINM, SCS, SCS-Scrapie, EMRS2, VSPS, IMI Global, GVL, 

USALIMS, and USAHERDS.

All of our database is now digital and contained with USAHERDS. 

Data management is overseen by Colorado's Office of Technology with all storage in the

cloud. With that the state is providing capacity that does not have any foreseen storage 

limitations, the necessary speed for all staff to complete their multiple tasks along with 

automated functions to perform in the background, security and needed support. In 

addition to this, Acclaim maintains backed up data for all states in the event of any severe 

data corruption.
12

For automated data capture we have several APIs established to deliver information 

directly to USAHERDS on a daily basis or even at the time of submission. Examples include 

multiple CVI platforms and animal ID information messaging out of USAHERDS to AHER.

III. VISION AND MISSION CONTEXT FOR ADVANCING TRACEABILITY

3.1 Vision Statement

Overall, the vision of the Animal Health Division of CDA is to advance animal disease traceability 

and protect Colorado’s livestock industry, and function cooperatively and proficiently as a 

partner with Colorado’s two Native American tribes, 49 other States, and the USDA APHIS 

Veterinary Services in order to respond effectively to livestock disease and all-hazards events. 

3.2 Mission Statement

The mission of the CDA is to strengthen and advance Colorado’s animal agriculture industry; 

ensure a safe, high quality, and sustainable food supply; and protect consumers, the 

environment, and natural resources. More specifically, the mission of the Animal Health Division 

of CDA is to be responsible for animal health and livestock disease control activities in Colorado 

and to provide for an efficient and effective response to significant livestock disease incidents. 

IV. TRACEABILITY REQUIREMENTS

4.1 Strategic goal(s)

1. Enhance electronic sharing of data among Federal and State animal 

health officials, veterinarians, and industry; including sharing basic ADT 

data with the Federal Animal Health Events Repository (AHER);

2. Increase use of electronic ID tags for animals requiring individual 

identification to make the transmission of data more efficient.

3. Enhance the ability to track animals from birth to slaughter through a 

system that allows tracking data points to be connected; and

4. Elevate the discussion with States and industry to work toward a 

system where animal health certificates are electronically transmitted 

from private veterinarians to State animal health officials. 
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4.2 Programmatic goals (objectives)

1) Information Sharing

a) Since 2012, we have used USAHERDS as our animal health information 

management database. There is much overlap between livestock disease control, 

animal emergency response and disease traceability; USAHERDS stores 

information on livestock premises, official animal ID, livestock movement as 

captured from certificates of veterinary inspection (both import and export CVIs), 

disease surveillance testing, and disease outbreak incidents in Colorado. We can 

more readily share information with other USAHERDS-user states due to the 

common database structure but it is not as easy with other state databases or SCS. 

It is our goal to work at the national level to find ways to integrate animal disease 

traceability data with other databases that are in use as it will benefit all states 

and our national capabilities in disease traceability. Our CDA staff will actively 

pursue opportunities to integrate and share information across multiple 

databases. Colorado strives to be a leader in the field of ADT information sharing.

b) We will continue to work to refine the process and participate with USDA VS 

to upload animal ID data to AHER to improve the efficiency of traceability of 

official animal IDs.

c) In Colorado, there is a State statute called the Livestock Information Security 

Act which prevents the State from sharing all proprietary information with federal 

agencies but an exemption is written into the statutes whereby CDA can share 

information with USDA, state animal health officials, and other emergency 

management response partners in time of disease and disaster affecting Colorado 

animal agriculture. We fully intend to do that and partner with USDA VS for 

disease control, emergency response, and animal disease traceability efficiencies. 

d) The existing electronic CVI systems including the VET-CVI, Global Vet Link, VSPS, 

and Fort Supply CVIs migrate data directly into USAHERDS in Colorado and to other 

states that use USAHERDS. This is a tremendous step forward in sharing 

information electronically and improves animal disease traceability. The only 

electronic CVI system that does not share livestock movement and animal IDs 

through automatic web-messaging services is SaleTime. We do receive a copy of 

the CVI and xml data - we hope that future enhancements will improve data 

migration.

e) CDA has MOUs with other border states; these agreements allow for better 

coordination and integration of information between states.

f) Colorado will continue to use the MIM system and also USDA’s Animal 

Identification Management System (AIMS), which tracks official 840 tag transfers, 

and consequently the individual animal movement due to the presence of an 

official 840 tag and livestock movement documents like the CVIs. In addition, 

during disease traceability incidents, CDA will share information with EMRS2. All 

of this improves information sharing between CDA and USDA VS. 
14

g) CDA is available to entities and agencies—both intrastate and interstate—that 

require assistance with animal health and disease traceability. Colorado 

communicates frequently with industry organizations, other states’ animal health 

officials, with tribes, and federal animal health officials. 

h) Colorado will continue to actively participate in the national conversation to 

standardize animal health data transfer from electronic CVIs to other animal 

records. 

i) As a state that utilizes USAHERDS for all of our database needs we are a member 

of the USAHERDS User Group. This group of individuals from states that have 

employed USAHERDS as their animal health information management database is 

key to visioning for the future and bringing forth ideas for enhancements to the 

USAHERDS database to improve the capabilities of the USAHERDS system and to 

more easily share animal health information.

j) Colorado assisted with the development of VET-CVI, an electronic CVI 

application that integrates movement data into USAHERDS. VET-CVI is also 

capable of recording brucellosis vaccination and tuberculosis test charts and 

integrates them into USAHERDS. These features allow for official identification 

RFID tags to be easily scanned into the test/vaccination charts as well as CVIs and 

assures these official IDs are easily searchable in the USAHERDS database.

2) Administration of official identification devices

a) Continue to educate veterinarians and producers on the value of electronic 

official animal ID to their own business models, with the benefit of increasing 

animal disease traceability. 

b) Plan to continue to work with many of the veterinarians who are using 

electronic CVIs to help them in migrating official animal ID tag numbers right on 

to the CVI so that all of those tag numbers automatically migrate into USAHERDS. 

c) When veterinarians call to order or inquire about official ID tags, someone 

always gives the caller some options of different tags that are available, including 

the no-cost program. 

d) The Division offers RFID brucellosis tags & White Brite tags to veterinarians 

who want to use this option for their clients’ livestock. 

e) We will be working with other states and USDA personnel to look for new 

efficiencies that could be developed between databases of different States, and 

also between State and Federal databases in regards to sharing the animal ID 

information in a timely and uniform manner. 

f) CDA will continue to provide electronic white and orange tags through USDAs 

no-cost program while USDA continues distribution of those tags. 

g) CDA will continue to provide activities to educate and provide information 

about the no-cost RFID program to veterinarians and producers. Provide outreach 

programs and courses to inform producers and veterinarians about RFID 
15

technology and the benefits these devices can provide to livestock producers. This 

program will require veterinarians and producers who receive tags to report the 

application of those tags for our records (date, time, place, reason, etc.)

h) CDA has in the past sent out LPR RFID readers to producers and veterinarians, 

and will continue to do so as funding allows. We will also continue to send 

AWR300 readers to livestock markets along with assisting markets who use 

SaleTime software to implement the VetModule in order to track EIDs.

3) EID Tracking

a) Colorado currently has a system to record all No-Cost RFID tags that are 

distributed to accredited veterinarians, producers, and livestock markets. Our 

Traceability Compliance Specialist works to maintain this database of distributed 

tags.

b) If necessary, the Traceability Compliance Specialist will perform AIMS queries 

for any tag that was distributed that is not recorded in the CDA tag database.

c)The Traceability Compliance Specialist will implement an audit program that will 

randomly audit veterinarians, producers and livestock markets that received RFID 

tags to ensure compliance of recording placement of tags. The goal for this audit 

would be 1-2 times per quarter with a minimum of 2 producers, 2 accredited 

veterinarians and 2 livestock markets.

d) Colorado collects data on: premises/locations where livestock are kept; 

livestock that come into Colorado via import permits and CVIs and go out of the 

state via export CVIs; livestock that are tested for federal program diseases such 

as brucellosis, EIA, scrapie, tuberculosis, and bulls tested for the state 

trichomoniasis program; along with other reportable disease incidents and the 

official IDs needed for testing. Capture all official cattle identification into our 

USAHERDS database that appears on movement documents, laboratory reports, 

vaccination submission forms, etc. This information is the foundation for good 

animal disease traceability. 

e) CDA will continue to train or send personnel to training so that they are 

proficient in the use of SCS, SCS Scrapie, AINMS, Prem Allocator, VSPS, EMRS2, 

AHER, and USAHERDS to access animal ID and premises information that is stored 

there. 

f) Review and improve office processes with USAHERDS to constantly look for 

ways to improve upon our ability to capture and share data with the greatest 

amount of efficiency. 

4) Outreach for electronic ID and CVIs

a) Continue to educate and encourage Colorado veterinarians to use improved 

methods of logging and recording official animal ID tags that they have used in 
16

their producer’s operations so that when we trace an official ID tag back to a 

veterinarian or clinic, they can quickly and efficiently inform us where those 

official ID tags were installed

b) We will identify veterinarians and livestock auction market veterinarians who 

need to bolster their animal ID record keeping through spot-checking those who 

are receiving official ID tags to see what type of log or index of animal ID tags 

installed and look at ways that we can provide customer support or options for a 

better method.

c) Develop SOPs to track non-compliance veterinarians and implement changes 

as needed to constantly look for ways to improve upon our ability to capture data 

on non-compliance and help improve veterinarians with their animal disease 

traceability business practices. 

d) Report non-compliance issues to the Colorado AVIC to be included in AVIC USDA 

reporting mechanisms

e) Colorado assisted with the development of VET-CVI, an electronic CVI 

application that integrates movement data into USAHERDS. VET-CVI is also 

capable of recording brucellosis vaccination and tuberculosis test charts and 

integrates them into USAHERDS. These features allow for official identification 

RFID tags to be easily scanned into the test/vaccination charts as well as CVIs and 

assures these official IDs are easily searchable in the USAHERDS database. CDA 

has released this application to veterinarians and uses non-compliance issues as 

one way to suggest Colorado veterinarians use the application as well as has 

discussed this application at stakeholder meetings. 

f) CDA is working with SaleTime to add VetModules to the SaleTime software 

system at auction barns to increase use of RFID tags and to increase traceability. 

Distribution of RFID tags, tag readers and software, along with demonstration of 

the tags and software, will take place at auction markets throughout the year.

.

4.3 ADT Trace Performance Measures (TPMs)

The USDA/APHIS establishes Trace Performance Measures (TPMs) with which to assess 

the procedures that are in place to perform a real life animal trace for each state. These 

TPMs set up a framework of exercises to measure the amount of time it takes to locate 

information related to an animal of interest. Each state is categorized according to the 

size of the cattle industry in that particular state and assigned a number of exercises in 

each of 4 different categories. Colorado is considered to have a large cattle industry and 

therefore is in one of the highest number categories of TPMs exercises to complete in 

each of the categories. Animal identification and livestock movement information is 

supplied to the state officials and the time to follow the animal trace to completion is 

recorded for each state. 
17

Colorado Department of Agriculture (CDA) has used these TPMs as a basis for the 

Division’s performance measures in the CDA Performance Plan and has served as an 

integral part of our overall Division’s goals. 

We strive to complete the required number of TPM exercises in less than 0.25 hours per 

exercise. We also complete real-life traces and report those quarterly. All of the NPTs are 

currently recorded using the USDA/APHIS database of EMRS2 and Colorado maintains a 

certain number of staff that is proficient in the use of EMRS2 and will continue using 

EMRS2 to record all TPM data. In addition, we will also notify and inform all USDA 

Veterinary Services – District 3, personnel and CDA staff and field personnel on the results 

of the trace performance measure exercises in order to educate them on our current 

achievements and create awareness for future trace exercises. We also aim to keep all 

field VMOs, AHTs, and CDA field staff involved in ADT activities in the State as it takes 

buy-in at all levels to assist our accredited veterinarians, livestock markets, and livestock 

producers in reaching our goals for ADT. By informing the VMOs and AHTs what we are 

doing well and what we need to improve upon, we enhance all aspects of ADT and TPM 

reporting with the State. 

4.4 Data requirements

We have the goal of keeping at least three staff members with access and proficiency to 

search for official animal ID and animal movement data located in the following nine 

databases:

AINM, SCS, SCS-Scrapie, EMRS2, VSPS, IMI Global, GVL, USALIMS, and USAHERDS. These 

are all databases that could be searched to find an animal of interest during a real-world 

trace-out scenario. This level of proficiency in multiple databases gives us the most rapid 

response possible in both real-world traces and NPTs. 

This level of administration and reporting on official animal identification has helped us 

to highly value our objectives in increasing the number of electronic animal IDs in our 

USAHERDS database. We have set as a high priority the intention “to enter all animal ID 

data from CVIs, laboratory accessions, and other paper forms that contain animal ID into 

the USALIMS and USAHERDS database.” CDA will continue that objective and also will 

work with Acclaim, the vendor for USALIMS and USAHERDS, to enhance traceability 

capabilities of the stated programs. 

By providing for the increased ease of uploading animal IDs, we are able to provide better 

animal disease traceability along with a marked increase in accuracy of the ID numbers 

due to fewer manual transcriptional errors. To this end, CDA strives to continue to 

educate veterinarians and producers on the value of electronic official animal ID to their 
18

business models, with the benefit of increasing animal disease traceability. The Division 

will continue to offer up to 180,000 no-cost EID tags, as allocated through USDA, to 

veterinarians who want to upgrade and use these tags for their clients’ replacement 

livestock. We will continue to encourage and promote these electronic ID tags in young 

breeding cattle as these cattle usually end up as part of the “breeding herd” and is an 

excellent way to provide for the “bookend” approach to livestock traceability. Also, we 

have worked with many of the veterinarians who are using electronic CVIs to help them 

in migrating official animal ID tag numbers right on to the CVI so that all of those tag 

numbers automatically import into USAHERDS with the certificate. 

CDA has taken the lead in designing and funding the creation of an electronic CVI (VET 

CVI) application that will allow the creation and sharing of CVIs for veterinarians. VET CVI 

has launched for veterinarian use and has 28 users. Currently, CDA staff members are 

developing outreach and education programs to demonstrate the benefits and highlights 

of VET CVI to accredited veterinarians in the state. VET CVI is being included in 

presentations at stakeholder meetings as well as being discussed with veterinarians 

during non-compliance outreach.

Official identification devices can run the gamut of sizes and shapes, and the Colorado 

Department of Agriculture has control over the distribution of three types; metal Official 

Calfhood Vaccinate (or OCV) ear tags, metal National Uniform Ear tagging System (or 

NUES) ear tags, and EID OCV and white button ear tags. These are to be distributed by 

the Animal Health Laboratory (AHL), a part of the Division of Laboratory Services at CDA. 

We are able to track the metal tags and the EID buttons and their sales to the 

veterinarians and producers that order them through AHL and the USALIMS laboratory 

information management system. 

Additionally, official identification devices are sold through various tag manufacturing 

companies to Colorado producers directly, and this information is reported to the Animal 

ID Number Manager (AINM) database through SCS and SCS- Scrapie. CDA currently has 

three staff members that are trained and proficient in searching these and other 

databases for information on official animal ID and specific animals of interest. 

4.5 Information technology plan

It is part of the Division’s plan to continue to educate and encourage Colorado 

veterinarians to use improved methods of logging and recording official animal ID tags 

that they have used in their producer’s operations so that when we trace an official ID 

tag back to a veterinarian or clinic, they can quickly and efficiently inform us where those 

official ID tags were installed. We will continue to find useful options for veterinarians 

and promote their use whether it is hard copy records or electronic methods.
19

Another activity under this objective is to work towards the development and 

implementation of an electronic brucellosis vaccination form so that data that is entered 

by the veterinarian can be uploaded directly into the USAHERDS database. This will 

increase the number of official animal IDs in USAHERDS, provide better animal disease 

traceability, and improve our trace-back proficiency. CDA using funding from USDA has 

worked to help design and fund the program, VET CVI, which includes a digital format for 

submission of brucellosis vaccination records, tuberculosis test records as well as 

allowing veterinarians to create and share electronic CVIs. 

With continued funding, CDA will continue to support and improve our existing programs 

within VETCVI and the USAHERDS database as well as work with livestock markets to offer 

the Saletime Vetmodule along with no-cost RFID tags, RFID readers, and laptops to help 

increase use of RFID tags, and digital CVIs in livestock barns. 

Increasing the use of electronic records in all aspects of ADT is a primary goal of the 

Colorado Department of Agriculture. By continuing to increase the use of electronic CVIs 

with our accredited veterinarians, we help to make this data more searchable and 

accurate within our USAHERDS database. This helps us to have electronic records of 

livestock premises, animal IDs, and livestock movement information. 

We are increasing the use of electronic records by working closely with the USDA/APHIS 

VS to facilitate electronic options for any traceability requirements in which it may be 

possible to use electronic submission options. Those electronic formats of data are much 

easier to share and/or trace than traditional data from paper forms or submissions. The 

Division plans to investigate and pursue work with Acclaim, the vendor for USAHERDS, to 

develop and adopt an electronic form for TB test charts and Brucellosis vaccination 

records so that data can be automatically uploaded into USAHERDS. In addition, CDA will 

work with other USAHERDS states to share the funding of building enhancements to 

USAHERDS that will improve electronic records, data management capabilities, and 

functionality. 

The CDA field staff and traceability specialists at the State Veterinarian’s Office have 

also assisted practicing veterinarians and CSU Veterinary Teaching Hospital staff in using 

MIM technology for capture of animal ID data when TB herd testing or in other 

situations. In addition, we will keep at least two CDA staff trained on use of PDAs, 

wands, and animal ID data capture to assist field efforts and for use in emergency 

management incidents. This aids animal ID data sharing and increases traceability 

through an expanded database of animal IDs. 
20

4.6 Resource requirements

● The COOP is managed by our Emergency Manager and is tested 1-

2 times per year. 

● Continued resources are needed to support existing system 

maintenance and improvement such as that for our USAHERDS and 

VETCVI programs. 

● Further resources are needed to continue to be able to provide 

livestock markets with the SaleTime VetModule, RFID readers, and 

laptops.

● Further resources are also needed to continue to provide RFID 

readers to veterinarians in the field. 

4.7 Organizational needs

CDA Animal Health division currently has a full time Traceability Specialist and a 

full time Program Veterinarian dedicated to ADT processes and enforcement. They 

can leverage the Animal Health Divisions newsletter as well some industry 

stakeholder newsletters for communication purposes. 

4.7.1 Executive support

Commissioner Greenberg is in full support of the Animal Health Division and works 

closely with the department. Our division provides a monthly newsletter which 

includes accomplishments, projects and alerts on testing directly to the 

commissioners office. The Colorado Department of Agriculture holds Town Hall 

meetings every other month. 

4.7.2 Coordination and oversight procedures

4.7.3 Policy

CDA’s import standards match or exceed the standards set forth in 9CFR part 86. 

As part of our own 1201-19 rule review within the state we ensure that our 

standards continue to meet updates and advance the ADT General Standards.

 

4.7.4 Staffing

Currently CDA Animal Health Division has an Animal Disease Traceability Specialist 

and a Program Veterinarian that perform most of the ADT program. 

● The entire Animal Health division works towards promoting ADT 

with CVI revision, data entry, and follow up.
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4.7.5 Budget requirements

ADT funding predominantly supports the salaries for one traceability 

program specialist (95% of that salary and fringe benefits) and one 

Traceability Veterinarian also known as program veterinarian (40% of that 

salary and fringe benefits). The remainder of the funding goes towards 

monthly cell phone service for the program specialist and a portion of the 

annual maintenance cost of the USAHERDS database. The remainder of 

these salaries are provided by the Umbrella cooperative agreement. No 

additional funds are provided by the state or other outside agencies for 

these salaries. 

Years two and three of this roadmap, salaries are projected to increase by 

a minimum of 3%, which will deplete the budget amounts available for cell 

phone service and USAHERDS maintenance.

Due to the salary, fringe and indirect cost increases over the next three 

years, cost sharing will need to be utilized. Without funding increases from 

USDA APHIS, Colorado will use funds from our operating budget provided 

by the state of Colorado. This will also be the course of action should there 

be budget cuts or other shortfalls.

4.7.6 Outreach (required to be addressed within the Road Map)

4.7.6.1 Accredited veterinarians

An important part of ADT education and outreach is staying engaged with our 

Veterinary Medical Officers (VMOs) here in Colorado. These veterinarians have a 

front line role in disease outbreak investigations and traces and are the first point 

of contact for accredited veterinarians in many disease outbreak scenarios. 

Having each of them on board and engaged with ADT within their geographic area 

is critical to the efforts of education and outreach as they have experience with 

the producers in their area. In addition, they have built good working relationships 

with the livestock markets and market veterinarians in their area. 

CDA continues to assist the USDA Veterinary Services efforts in the accreditation 

of veterinarians that are new to our state, as well as the veterinary students at 

Colorado State University. Assisting with these accreditation modules, whether it 

is with the content or with the actual course, gives us a chance to contact these 

veterinarians in a face to face manner and begin a professional relationship on 

the right foot. It is also the perfect opportunity to educate them on the currently 

available options for electronic CVIs and animal ID; showing them the benefits 
22

that RFID tags can have for themselves as well as their clients, the livestock 

producers, and markets. 

In addition, we have worked with the CSU Veterinary Teaching Hospital’s field 

staff to move them forward in the use of electronic animal IDs and the use of 

electronic CVIs. By doing so, we also are educating a whole new group of future 

veterinarians about the increased capabilities of livestock traceability. Our 

Division staff also has the opportunity to present animal disease traceability 

presentations during their course work at the CSU veterinary school. Many of 

these future veterinarians will graduate and be employed in a veterinary clinic 

where they will teach the older generation of veterinarians how electronic animal 

ID can be used, utilized to improve their practice methods, and implement the use 

of electronic CVIs. We plan to continue to bring the new technology of electronic 

CVIs to the veterinary students at CSU Veterinary Teaching Hospital as a way to 

make ready the new wave of veterinarians that will help institute change among 

the veterinary profession. In addition, we will continue to keep traceability 

education and outreach as a priority and seek opportunities to further animal 

disease traceability in Colorado and across the nation. 

CDA works with Colorado Veterinary Medical Association (CVMA) directly to help 

disseminate information to veterinarians working throughout Colorado and keep 

them apprised of any changes in animal identification. 

4.7.6.2 Slaughter plants

The Colorado Department of Agriculture will do outreach as part of the USDA 

Approved Slaughter Plant inspection program, with a minimum of annual visits to 

all slaughter plants and quarterly for APHIS approved plants, as part of the Blood 

Tissue Collection program.

4.7.6.3 Industry as a whole

The Colorado Department of Agriculture will continue to build relationships with 

livestock producers, livestock market owners and managers, accredited 

veterinarians, and other livestock affiliated groups in the state through 

traceability education and outreach. Attending organizational meetings with 

these groups, such as Colorado Cattlemen’s Association, Colorado Livestock 

Association, Western Dairy Association, Dairy Farmers of America, CSU Extension 

meetings and field days, CSU Veterinary Diagnostic Laboratory board meetings, 

CSU Veterinary Teaching Hospital, Colorado Veterinary Medical Association, 
23

Colorado Livestock Market Association, Governor’s Forum on Colorado 

Agriculture, and many other livestock-related meetings presents tremendous 

networking opportunities and helps to build trusting relationships with key 

stakeholders. CDA staff often makes presentations at many of those meetings and 

utilizes these events to assist stakeholders in animal disease traceability (ADT) 

education, including specific information on implementing new ways to use 

electronic official animal IDs or CVIs. From troubleshooting with a veterinarian 

about an electronic CVI issue to helping a market veterinarian understand the 

importance of record keeping requirements as described in the ADT rule, we are 

always available to these stakeholders. Keeping their needs in mind, knowing how 

those needs are affected by the ADT rule, and how compliance can integrate best 

with their business model has helped to build a trusting relationship with the 

state’s stakeholders. 

4.8 Monitoring and reporting interstate movement activity

We are committed to finding ways to increase our efficiency in regards to 

reporting and completion of quarterly reports on animal IDs and livestock 

movements to the USDA/APHIS. We currently track this information through 

more than one source, mainly using USAHERDS, the GVL database, and VSPS to 

generate custom reports. We use spreadsheets and pivot tables to give us the 

numbers requested for those reports and reviews with USDA/APHIS. This also 

serves as a way to continue to track our own performance on retrieving 

traceability information, our performance on the NPTs, and our progress in our 

Division performance measures for the CDA Performance Plan. We will continue 

to look for new ways to export our data to provide better reporting. For example, 

we were recently able to improve our reporting by developing a way to report to 

USDA Veterinary Services the number of cattle officially identified on interstate 

CVIs or other movement documents for shipments into Colorado. USAHERDS is a 

flexible database and we are committed to working with the database vendor, 

Acclaim, to improve upon both the reporting capabilities and how searchable the 

database is in order to best serve the needs of Colorado.

V. ADVANCING TRACEABILITY 

5.1 Ranking of priorities for advancement
24

● Continue to educate veterinarians and producers on the value of electronic official 

animal ID to their own business models, with the benefit of increasing animal 

disease traceability. Over the next 6-12 months Colorado will be phasing out the 

distribution of metal OCV and metal Brite tags and go strictly to distribution of EID 

tags.

○ CDA will support ADT enforcement efforts if/when EID tags become the 

sole official identification devices available.

● The Division currently offers no-cost EID brucellosis tags & EID White Brite tags to 

veterinarians who want to use this option for their clients’ livestock. With 

continued funding we will continue to offer the no-cost program to assist in EID 

tag promotion and advance traceability in Colorado cattle.

● CDA will continue to provide activities to educate and provide information about 

the no-cost EID program to veterinarians and producers, provide outreach 

programs and courses to inform producers and veterinarians about EID 

technology and the benefits these devices can provide to livestock producers. This 

program requires veterinarians and producers who receive tags to report the 

application of those tags for our records (date, time, place, reason, etc.)

● CDA has in the past sent out LPR EID readers to producers and veterinarians and

will continue to do so as funding allows. We will also continue to send AWR300 

readers to livestock markets along with assisting markets who use SaleTime 

software to implement the VetModule in order to track EIDs, eCVIs and increase 

traceability efforts as a whole.

● Continued work with veterinarians who are using electronic CVIs to help them in 

migrating official animal ID tag numbers right on to the CVI so that all of those tag 

numbers automatically migrate into USAHERDS. 

● CDA will continue to partner with other states and USDA personnel to look for new 

efficiencies that could be developed between databases of different States, and 

also between State and Federal databases in regards to sharing and migration of 

the animal ID information in a timely and uniform manner.

5.2 Implementation of objectives

Accepting that each year’s cooperative agreement work plan will likely be a 

collection of objectives, CDA will continue to work towards fulfilling the objectives 

outlined in that work plan and will continue to modify and rank the above 

priorities for advancement, as listed above. These priorities will be ranked 

accordingly within the ADT work plan budget requirements and availability of CDA 

staff assigned to ADT duties.