PERMITTED MOVEMENT

FEBRUARY 2017

FAD PReP MANUAL 6-0
February 2017 ii

The Foreign Animal Disease Preparedness and Response Plan (FAD PReP) Manual, Permitted 

Movement, provides valuable information on Federal, State, Tribal, international, academia, industry, and other organizations that would be involved in an foreign animal disease (FAD) event.

This draft document was last updated in February 2017. It is under review—please send questions or comments to: 

National Preparedness and Incident Coordination Center 

Veterinary Services

Animal and Plant Health Inspection Service

U.S. Department of Agriculture

4700 River Road, Unit 41

Riverdale, MD 20737

Fax: (301) 734-7817 

E-mail: FAD.PReP.Comments@aphis.usda.gov 

While best efforts have been used in developing and preparing the FAD PReP documents, the 

U.S. Government, U.S. Department of Agriculture (USDA), Animal and Plant Health Inspection 

Service and other parties, such as employees and contractors contributing to this document, neither warrant nor assume any legal liability or responsibility for the accuracy, completeness, or 

usefulness of any information or procedure disclosed. The primary purpose of these FAD PReP 

documents is to provide operational guidance to those government officials responding to a FAD

outbreak. It is only posted for public access as a reference. 

This guide contains links to various other Federal and State agencies and private organizations. 

These links are maintained solely for the user’s information and convenience. If you link to such 

site, please be aware that you are then subject to the policies of that site. In addition, please note 

that USDA does not control and cannot guarantee the relevance, timeliness, or accuracy of these 

outside materials. Further, the inclusion of links or pointers to particular items in hypertext is not 

intended to reflect their importance, nor is it intended to constitute approval or endorsement of 

any views expressed, or products or services offered, on these outside websites, or the organizations sponsoring the websites. 

Trade names are used solely for the purpose of providing specific information. Mention of a 

trade name does not constitute a guarantee or warranty of the product by USDA or an endorsement over other products not mentioned.

USDA prohibits discrimination in all its programs and activities on the basis of race, color, national origin, sex, religion, age, disability, political beliefs, sexual orientation, or marital or family status. (Not all prohibited bases apply to all programs.) Persons with disabilities who require 

alternative means for communication of program information (for example Braille, large print, 

and audiotape.) should contact USDA’s TARGET Center at (202) 720-2600 (voice and telecommunications device for the deaf [TDD]).

To file a complaint of discrimination, write USDA, Director, Office of Civil Rights, Room 

326-W, Whitten Building, 1400 Independence Avenue SW, Washington, DC 20250-9410 or call 

(202) 720-5964 (voice and TDD). USDA is an equal opportunity provider and employer.
February 2017 iii

Contents

Chapter 1 Introduction and Purpose of Document..................................... 1-1

1.1 INTRODUCTION.................................................................................................. 1-1

1.2 PURPOSE ......................................................................................................... 1-1

1.2.1 Audience .............................................................................................. 1-2

1.2.2 Goals.................................................................................................... 1-2

1.2.3 Related Documents.............................................................................. 1-3

Chapter 2 Roles and Responsibilities in Permitted Movement.................. 2-1

2.1 STATE ROLE IN PERMITTED MOVEMENT .............................................................. 2-1

2.1.1 Before an Incident................................................................................ 2-1

2.1.2 During an Incident................................................................................ 2-1

2.1.3 Requesting Support for Permitted Movement ...................................... 2-2

2.1.4 Additional State Requirements............................................................. 2-2

2.2 USDA APHIS ROLE IN PERMITTED MOVEMENT .................................................. 2-3

2.2.1 Prior to an Incident............................................................................... 2-3

2.2.2 During an Incident................................................................................ 2-3

2.3 USDA APHIS PERSONNEL ROLES..................................................................... 2-4

2.3.1 EMRS2 National Coordinator............................................................... 2-4

2.3.2 EMRS2 Staff Specialists ...................................................................... 2-5

2.3.3 EMRS2 Network Associates ................................................................ 2-5

2.3.4 VS EMRS2 Team................................................................................. 2-5

2.3.5 Incident Management Team Permitting Unit Leader............................ 2-5

2.3.6 National Permitting Unit ....................................................................... 2-6

Chapter 3 Defining Permits and Movements ............................................. 3-1

3.1 INTRODUCTION.................................................................................................. 3-1

3.2 ZONES, AREAS, AND PREMISES.......................................................................... 3-1

3.3 PERMITS........................................................................................................... 3-4

3.4 TYPES OF PERMITS ........................................................................................... 3-5

3.4.1 Specific Permit ..................................................................................... 3-5

3.4.2 Continuity of Business Permit .............................................................. 3-8
 

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3.4.3 Summary of Permit Types.................................................................. 3-12

3.5 TYPES OF MOVEMENTS.................................................................................... 3-13

3.5.1 Permitted Movement .......................................................................... 3-14

3.5.2 Tracked Conveyances ....................................................................... 3-15

3.5.3 Routine Movements ........................................................................... 3-16

3.5.4 Summary of Movement Definitions .................................................... 3-16

Chapter 4 Introduction to Permit Requirements & the EMRS2 

Customer Permit Gateway................................................................ 4-1

4.1 INFORMATION REQUIRED FOR A PERMIT .............................................................. 4-1

4.1.1 Additional Requirements Prior to Movement........................................ 4-2

4.1.2 Time Required for Permit Issuance...................................................... 4-3

4.2 INTRODUCTION TO THE EMRS2 CUSTOMER PERMIT GATEWAY............................ 4-3

4.2.1 General Information and Benefits......................................................... 4-3

4.2.2 Producer Responsibility ....................................................................... 4-4

4.2.3 What Can Be Done in the Gateway ..................................................... 4-4

Chapter 5 Permitting Process..................................................................... 5-1

5.1 STEP 1: REQUEST PERMIT ................................................................................. 5-1

5.1.1 Specific Permit ..................................................................................... 5-1

5.1.2 Continuity of Business Permit .............................................................. 5-1

5.2 STEP 2: ENTER/CONFIRM DATA IN EMRS2 ......................................................... 5-3

5.3 STEP 3: REVIEW PENDING PERMIT AND DOCUMENTATION.................................... 5-4

5.3.1 Specific Permit ..................................................................................... 5-4

5.3.2 Continuity of Business Permit .............................................................. 5-5

5.4 STEP 4: ORIGIN STATE NOTIFIES DESTINATION STATE OF REVIEWED PERMIT ........ 5-6

5.4.1 Specific Permit ..................................................................................... 5-6

5.4.2 Continuity of Business Permit .............................................................. 5-6

5.5 STEP 5: DESTINATION STATE APPROVES OR DENIES PERMIT............................... 5-7

5.5.1 Diagnostic Test Results ....................................................................... 5-7

5.5.2 Concurrence of Destination Premises.................................................. 5-8

5.5.3 Revoking a Permit................................................................................ 5-8

5.5.4 Bulk Approval....................................................................................... 5-8

5.6 STEP 6: DESTINATION STATE NOTIFIES ORIGIN STATE OF DECISION...................... 5-8
 

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5.7 STEP 7: ORIGIN STATE/UNIFIED INCIDENT COMMAND ISSUES PERMIT.................... 5-9

5.8 STEP 8: PERMITTED MOVEMENT OCCURS ........................................................... 5-9

5.8.1 Specific Permit ................................................................................... 5-10

5.8.2 Continuity of Business Permit ............................................................ 5-10

5.8.3 Moving Without a Permit .................................................................... 5-11

5.9 SUMMARY OF PERMITTING PROCESS ................................................................ 5-12

5.9.1 All Permit Types................................................................................. 5-12

5.9.2 Continuity of Business Permits in the Gateway.................................. 5-13

5.10 DATA ENTRY IN EMRS2 FOR PERMITTED MOVEMENT........................................ 5-14

Appendix A Update on the EMRS2 Customer Permit Gateway

Appendix B Abbreviations

Figures

Figure 3-1. Overview of Permits.............................................................................. 3-5

Figure 3-2. Overview of Movements ..................................................................... 3-15

Figure 4-1. EMRS2 Customer Permit Gateway ...................................................... 4-4

Figure 5-1. Initiating Permit Request through the Gateway .................................... 5-2

Figure 5-2. Entering Permit Request through the Gateway .................................... 5-2

Figure 5-3. Status: Permit Request......................................................................... 5-2

Figure 5-4. Status: Accepted Permit Request to Pending Permit............................ 5-3

Figure 5-5. Viewing Permit Requests in the Gateway............................................. 5-4

Figure 5-6. Status: Reviewed Permit ...................................................................... 5-6

Figure 5-7. Status: Approved Permit....................................................................... 5-7

Figure 5-8. Entering Movements Associated with a COB Permit in the 

Gateway .......................................................................................................... 5-11

Figure 5-9. Overview of the Eight Steps in Permitted Movement.......................... 5-13

Figure 5-10. Overview of COB Permit Process Using the EMRS2 Customer 

Permit Gateway ............................................................................................... 5-14

Tables

Table 3-1. Zone and Area Designations ................................................................. 3-2

Table 3-2. Premises Designations .......................................................................... 3-2

Table 3-3. Minimum Sizes of Zones and Areas ...................................................... 3-3
 

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Table 3-4. Minimum Sizes of Zones and Areas for Mosquito or Culicoides 

Vector-Borne Diseases...................................................................................... 3-3

Table 3-5. Summary of Permit Types ................................................................... 3-13

Table 3-6. Summary of Definitions for Movement................................................. 3-17
February 2017 1-1 

Chapter 1

Introduction and Purpose of Document

1.1 INTRODUCTION

In a foreign animal disease (FAD) outbreak, the three goals of a response are to 

(1) detect, control, and contain the FAD in animals as quickly as possible; 

(2) eradicate the FAD using strategies that seek to stabilize animal agriculture, the 

food supply, and the economy, and to protect public health and the environment; 

and (3) provide science- and risk-based approaches and systems to facilitate 

continuity of business (COB) for non-infected animals and non-contaminated 

animal products. 

Achieving these three goals allows individual livestock facilities, States, Tribes, 

regions, and industries to resume normal production as quickly as possible. They 

also allow the United States to regain FAD-free status without the response effort 

causing more disruption and damage than the disease outbreak itself.

Quarantine and movement control (QMC) activities are fundamental to rapidly 

contain an FAD; COB activities are essential to mitigating the economic 

consequences of an FAD outbreak. Both COB and QMC are identified as “critical 

activities” under the U.S. Department of Agriculture (USDA) Animal and Plant 

Health Inspection Service (APHIS) Foreign Animal Disease Preparedness and 

Response Plan (FAD PReP). 

Permits are the mechanism by which movements are allowed during an FAD 

outbreak. These permits allow permitted movements. Permitted movement, the 

topic of this document, intersects both QMC and COB. This document supersedes 

all existing definitions on permits and movements with regard to permitting into, 

within, and out of a Control Area during an FAD outbreak only.

1.2 PURPOSE

In a disease outbreak, permits are issued to move specific transports/items into, 

within, and out of regulatory Control Areas.1 The purpose of this document is to 

provide information on permitted movement for all stakeholders—this FAD PReP 

Manual 6-0: Permitted Movement contains a mix of both general information as 

 1 A Control Area is made up of an Infected Zone and a Buffer Zone. For a quick refresher on 

USDA APHIS zone and premises designations, please go to https://www.aphis.usda.gov/animal_health/emergency_management/downloads/premises_and_zones.pdf. For further information, 

please see the APHIS FAD Framework: Response Strategies (FAD PReP Manual 2-0): 

www.aphis.usda.gov/fadprep. These definitions are also provided in Section 3.2 in this document.
 

February 2017 1-2 

well as procedures from the perspective of USDA APHIS. This document only 

applies to permitted movement in FAD outbreaks.

In an FAD outbreak, the USDA APHIS official information management system 

of record is the Emergency Management Response System 2.0 (EMRS2); USDA 

APHIS personnel use EMRS2 for all permitting processes, including issuing 

permits and tracking movements. While this document frequently discusses 

EMRS2, it does not provide detailed information on how to enter data into 

EMRS2. Step-by-step processes on EMRS2 data-entry are available through 

EMRS2 training courses and EMRS2 documentation. EMRS2 is the information 

management system which tracks and documents permitted movement if a 

regulatory Control Area has been established. If you need further information on 

how to enter data into EMRS2, please contact your Network 

Associate: https://www.aphis.usda.gov/ 

animal_health/emergency_management/downloads/emrs_networkassociates.pdf. 

In addition, this document does not define specific criteria that must be met to be 

approved for a permit, which may vary by State, incident, origin/destination of 

movement, reason for permit, and item being moved. For specific permitting 

requirements, guidance may come from the Secure Food Supply (SFS) Plans, 

origin and destination States, the unified State-Federal Incident Command, and 

the APHIS National Incident Coordination Group (ICG).

1.2.1 Audience

This document is intended to provide responders, States, and all stakeholders with 

an overview of permitted movement during an FAD outbreak.

1.2.2 Goals

The following are USDA APHIS goals for permitted movement:

 To facilitate the issuance of permits during an FAD outbreak.

 To implement science and risk-based permitting guidance based on the 

best evidence available.

 To provide transparent information to States, stakeholders, and the public

on USDA APHIS permitted movement processes.

In an FAD Incident...

In the event of an FAD incident, a regulatory Control Area is established and a unified 

State-Federal Incident Command usually leads response activities in the field. If permitting 

is required, and State(s) request USDA APHIS support, APHIS Veterinary Services (VS) 

uses EMRS2 as the official information management system of record to track and 

document these permitted movements.
 

February 2017 1-3 

 To use EMRS2, the official USDA system of record, for issuing permits 

and tracking permitted movements into, within, and out of a regulatory 

Control Area during an FAD incident/outbreak.

 To ensure permit data is entered into EMRS2 in an accurate and timely

manner, reflecting best practices and standards.

 To provide personnel to unified Incident Command and/or State(s) as 

requested by State(s) to support permitting activities in EMRS2 during an 

FAD outbreak.

While it is the objective of permitting to review and allow timely permitted 

movements in an outbreak, permitting can be delayed or interrupted during an 

incident for many reasons, including the volume of requests, diagnostic laboratory 

delays, epidemiological evidence/risk, verification of premises locations, or other 

reasons.

1.2.3 Related Documents

There are a number of available documents that also relate to permitted 

movement:

 The disease-specific Response Plans: The Red Books, offering general 

response policy (www.aphis.usda.gov/fadprep). 

 Highly pathogenic avian influenza (HPAI)-specific policy documents, 

including Overview of the HPAI Control Area Permitting Process and

Overview of the EMRS2 Customer Permit Gateway

(www.aphis.usda.gov/fadprep). 

 The National Animal Health Emergency Management System (NAHEMS) 

Guidelines: Continuity of Business, which presents the case for business 

continuity (here).

 The NAHEMS Guidelines: Quarantine and Movement Control, which 

provides general information on QMC activities in an FAD incident

(here). 

 The SFS Plans (poultry, milk, pork, and beef—see individual websites 

linked from www.aphis.usda.gov/fadprep).
February 2017 2-1 

Chapter 2

Roles and Responsibilities in Permitted 

Movement

This document provides information on the roles and responsibilities specifically 

applicable to permitted movement. For more information on general roles and responsibilities with regard to FAD outbreaks and FAD response, please review 

APHIS FAD Framework: Roles and Coordination (FAD PReP Manual 1-0). 

2.1 STATE ROLE IN PERMITTED MOVEMENT

2.1.1 Before an Incident

States may choose to use EMRS2, or any other information management system, 

prior to an animal health incident to store relevant data for their State. In addition 

to basic premises information (e.g., the physical location where the animals 

reside, contact information, and production type), these systems may also store 

data on routine diagnostic testing, biosecurity status, or other information that 

may be useful in an FAD incident. 

2.1.2 During an Incident

USDA APHIS has broad authority to intervene during FAD incidents in the 

United States; typically State quarantines, under State authority, are placed on 

Infected, Contact, and Suspect Premises. All premises, including At-Risk and 

Monitored Premises, in the Control Area are subject to movement control 

restrictions—some States may also choose to quarantine these premises.1 Please 

see Section 3.2 for the definitions of zones, areas, and premises that are used by 

USDA APHIS in an FAD outbreak.

In an FAD incident, EMRS2 is the system of record for USDA APHIS. All 

outbreak-related information within regulatory Control Area(s), pertaining to 

disease management, is entered into EMRS2 in a timely and accurate manner. 

Many States continue using their State system for recording outbreak-related 

information within their State. However, USDA APHIS recommends States use 

EMRS2 in an outbreak, and can offer support for EMRS2 as requested by the 

State. 

 1 For more information on State and Federal authorities in QMC, please see the NAHEMS 

Guidelines: Quarantine and Movement Control for more information.
 

February 2017 2-2 

USDA APHIS realizes that permitting is inherently important to all States. While 

USDA APHIS prefers States use EMRS2 for permitting activities, if a State feels 

as if they have a permitting and information management system that can handle a 

potentially large number of requests rapidly during an FAD incident, including 

the ability to communicate with other States to receive approval for interstate 

movements, the State can use their system to issue permits and track permitted 

movements in an outbreak. Due to USDA APHIS authority over FAD incidents in 

the United States, this information must be communicated to the unified Incident 

Command for entry into EMRS2, even when EMRS2 is not used to issue permits 

for a State. There is a process in place to import these data into EMRS2 from 

other information management systems. EMRS2, or any other information 

management system used for permitting, does not guarantee, certify, or otherwise 

assume that all requirements for a permit have been met. EMRS2 facilitates the 

issuance of permits; it remains critical that responsible parties ensure and remain 

vigilant that any requirements are met, as necessary, for the issuance of permits.

However, all information entered into EMRS2 by the unified Incident Command 

and/or State and USDA personnel is validated and considered to be the best 

known data at any given point in an incident. 

Regardless of the information management system selected to issue and document 

permits during an FAD outbreak, USDA APHIS strongly recommends States 

refer to the information in this document and conduct permitted movement in the 

manner defined within to maintain a common understanding for all stakeholders.

2.1.3 Requesting Support for Permitted Movement

As seen in two recent outbreaks of HPAI in the United States, permitting can 

become a monumental task depending on the number of Infected Premises and 

regulatory Control Areas. In these outbreaks, multiple States requested USDA 

APHIS assistance for permitting activities; USDA APHIS is prepared to support 

any State experiencing an FAD outbreak upon their request. Working with the 

unified Incident Command, made up of both Federal and State personnel, USDA 

APHIS personnel with expertise in both EMRS2 and permitted movement support 

States with permit issuance and tracking for both response operations and 

continuity of business. 

2.1.4 Additional State Requirements

Though a unified Incident Command typically manages the regulatory Control 

Area and associated response activities in an FAD outbreak, affected States may 

also establish additional enhanced active surveillance and testing criteria for 

premises located in the Surveillance Zones/Free Areas within their State (outside 

of any regulatory Control Area). In some situations, States may also require 

permits for movements in Free Areas depending on the scope and size of the 

incident—this type of permitting falls outside the scope of this document. 

Different States may have different requirements for the Surveillance Zone/Free 
 

February 2017 2-3 

Areas; requirements within a State are under State authority absent a USDA 

Extraordinary Emergency Declaration or other type of national emergency 

declaration. Movements outside the scope of the Control Area (in other words, not 

going into, within, or out of a Control Area) during an FAD outbreak are not 

captured in EMRS2 and should continue under regular authorities (Federal and/or 

State), using existing processes, procedures, and guidance. 

However, States should avoid placing additional, excessively burdensome

restrictions on interstate movement of animals and products originating from 

outside the Control Area (once the Control Area has been established/defined) in 

FAD-affected States.2

 Finally, it is important to note that any existing entry 

requirements that States have in place prior to an outbreak must also be met for 

interstate movements on Interstate Certificate(s) of Veterinary Inspection, in 

addition to specific FAD permit requirements. These recommendations do not 

supersede existing State regulations or policy guidance. 

2.2 USDA APHIS ROLE IN PERMITTED MOVEMENT

2.2.1 Prior to an Incident

USDA APHIS does not provide permits for movements related to FAD incidents 

until there is an FAD incident; in some cases, other types of permitted movement 

may be recorded in EMRS2 for program diseases for which there are ongoing 

Federal control programs. These other types of movements may be captured in 

EMRS2, including restricted movements requiring a Veterinary Services (VS) 1-

27 Form. These movements are not covered as part of this document, and are not 

discussed further. For information on these type of movements, please refer to 

your VS District Office or Surveillance, Preparedness, and Response Services 

Commodity Center. 

2.2.2 During an Incident

USDA APHIS has broad authority to intervene during FAD incidents in the 

United States. State(s) have primary authority over what occurs within their State; 

however, USDA APHIS—in coordination with State Animal Health Officials and 

the unified Incident Command—provides the oversight for interstate permitted 

movement (commerce) and any movement that relates to international trade.

3

USDA APHIS is prepared to support State(s) in an FAD incident in all permitted 

 2 However, in a known rapidly changing situation, such as early in an outbreak when the 

Control Area is first established, it may be appropriate for States to impose additional 

requirements or further restrictions until more epidemiological information—including trace back 

and trace forward information—is available. 3 In the event that there is an USDA Extraordinary Emergency Declaration or similar emergency declaration, USDA also has authority over intrastate movement (in addition to interstate 

trade and international commerce movements).
 

February 2017 2-4 

movement activities with relation to the Control Area (in/out/within), as requested 

by the State.

USDA APHIS uses EMRS2 to record permitted movement during an FAD 

incident. EMRS2 may be used to issue permits; if State(s) use their own system, 

permitted movement data will be uploaded or entered into EMRS2 for all 

movements that originate in the Control Area or end in the Control Area. EMRS2 

is not used to record movements occurring outside of the regulatory Control 

Area(s). Movements outside the scope of the Control Area (in other words, not 

going into, within, or out of a Control Area) during an FAD outbreak should 

continue under regular authorities (Federal and/or State), using existing processes, 

procedures, and guidance. Further information on what is recorded in EMRS2 is 

provided later in this document.

EMRS2 is used in an incident to routinely produce reports on permitted 

movement. These reports are shared widely and used for further analyses, so it is 

critical that these data are entered in a timely and accurate manner. USDA APHIS 

has completed significant work on data standards in EMRS2, and continues to 

revise these data standards as necessary. For reporting to both internal and 

external stakeholders, it is important that data is entered consistently by all 

personnel in an FAD outbreak—whether State responders, the unified Incident 

Command, VS Districts, or directly by EMRS2 personnel.

2.3 USDA APHIS PERSONNEL ROLES

Permitting during an FAD incident requires a significant amount of data entry in 

close to real-time. For example, during the 2014–2015 HPAI outbreak, there were 

approximately 7,500 permits, and over 20,000 individual permitted movements 

associated with those permits, that were entered into EMRS2. USDA APHIS is 

prepared in an FAD outbreak or other animal health incident that requires 

permitting support to deploy personnel to the unified Incident Command Post, to 

the State affected (as requested), or to work remotely to support permitting 

requirements. The following personnel support permitted movement activities in 

EMRS2 during an FAD incident.

The EMRS2 National Coordinator, EMRS2 Staff Specialists, and EMRS2 

Network Associates exist—and are active—in both “peacetime” and during a 

response. However, the VS National Incident Management Team (NIMT) 

position and National Permitting Unit are stood-up only during an FAD response 

effort that requires permitting.

2.3.1 EMRS2 National Coordinator

The EMRS2 National Coordinator, in National Preparedness and Incident 

Coordination (NPIC), or designee, is the lead for overseeing all USDA APHIS 

permit activities during an incident. This individual, or his/her designee, 
February 2017 2-5 

integrates into existing Incident Command System organizational structures as 

appropriate for the incident. The National Coordinator, or designee, has 

experience not only in FAD outbreak response, but in-depth knowledge of

EMRS2 and the EMRS2 Customer Permit Gateway. 

2.3.2 EMRS2 Staff Specialists

EMRS2 Staff Specialists are dedicated EMRS2 staff members in NPIC; these 

personnel are available to assist States in permitting activities during an outbreak. 

These Staff Specialists augment any existing EMRS2 capabilities that are part of a

NIMT; an additional EMRS2 Staff Specialist may be deployed as needed

specifically to assist in data management, including permitting, as part of the 

unified IMT. EMRS2 Staff Specialists are highly skilled in EMRS2 and serve as a 

point of contact for EMRS2 questions, queries, and problems. 

2.3.3 EMRS2 Network Associates

In addition to EMRS2 Staff Specialists, there are typically at least two EMRS2

Network Associates in every VS District. In addition to their routine duties, these 

Network Associates serve as the “first responders” for EMRS2 questions and

issues within the Districts. EMRS2 Network Associates also serve as EMRS

Specialists on the VS NIMTs. The knowledge of the Network Associates is likely

to be leveraged in any animal health incident for accurate and timely data entry,

including for permits. The EMRS2 Network Associates are identified

here: https://www.aphis.usda.gov/animal_health/emergency_management/downlo

ads/emrs_networkassociates.pdf. 

2.3.4 VS EMRS2 Team

In addition to the personnel described above, there are additional individuals who 

support the IT requirements of EMRS2 behind the scenes, as well as “expertusers” that have been identified to augment any response effort. The EMRS2 

National Coordinator directs all IT support personnel and also can request 

additional personnel dedicated full-time to EMRS2 activities during an FAD 

outbreak through the APHIS National ICG.

2.3.5 Incident Management Team Permitting Unit Leader

A Permitting Unit Leader may be mobilized as part of a VS NIMT during an 

incident. This individual is likely to be (but is not necessarily) an EMRS2 Staff 

Specialist or EMRS2 Network Associate, depending on the permitting 

requirements of the incident. This individual is in the Planning Section, under the 

supervision of the Planning Section Chief. In a unified Incident Command, where 

the affected State uses EMRS2, it is possible that this position could be filled by 

State personnel or a joint State-Federal co-unit leader.
 

February 2017 2-6 

2.3.6 National Permitting Unit

In some cases, the permitting requirements of an incident may be overwhelming. 

In these cases, a full-scale National Permitting Unit is established to support all 

permitting activities, including data-entry. The National Permitting Unit, like 

other emergency response entities, comes together when requested by the APHIS 

National ICG to support a response. This unit can be overseen by the VS NIMT 

Permitting Unit Leader with subject matter expertise and support from other 

EMRS2 personnel as needed. This National Permitting Unit consists of personnel 

with experience in permitting or EMRS2 during an outbreak, and they can rapidly 

assist in a State(s) permitting requirements for permitted movement. This 

National Permitting Unit may be virtual and support multiple incident locations 

across the United States. It is primarily responsible for augmenting VS NIMT 

permit capabilities, including implementing rapid data entry for permits not 

entered directly in the Gateway and also for data verification for permits entered

into the Gateway. 
February 2017 3-1 

Chapter 3

Defining Permits and Movements

This section provides definitions for permits and movements. Please note that the 

intention of these definitions is to provide a broad, conceptual framework for all 

stakeholders for shared communication. This terminology and its usage is 

important for all stakeholders to better understand the permitted movement 

process in an FAD outbreak. This document supersedes all existing definitions on 

permits and movements with regard to permitting into, within, and out of a 

Control Area during an FAD outbreak only. 

3.1 INTRODUCTION 

QMC is a critical activity to prevent the transmission of FADs in a regulatory 

Control Area. Movements are restricted on all premises in the Control Area: 

Infected, Contact, Suspect,1 At-Risk, and Monitored Premises all are subject to 

varying degrees of quarantine and/or movement controls. In other words, all 

premises designations in a regulatory Control Area are subject to QMC activities 

of some type. Obviously, Infected, Contact, and Suspect Premises are 

significantly more restricted in their activities than At-Risk or Monitored 

Premises.

Permitted movement allows entities to make necessary movements without 

creating an unacceptable risk of disease spread. A permit may be issued for the 

movement of “any” item, depending, of course, on the outbreak scenario and 

epidemiological evidence—animals, animal products, potential fomites, materials, 

transports, etc.2 A permit can be used for movement from any type of premises—

Infected, Contact, Suspect, At-Risk, and Monitored Premises. However, different 

types of premises would not be approved for all types of permitted movements. 

3.2 ZONES, AREAS, AND PREMISES

In order to frame the conversation around permitted movement, it is important to 

reference the existing zones, areas, and premises definitions. These definitions are 

found in FAD PReP disease response plans, as well as elaborated in APHIS FAD 

 1 Suspect Premises are typically re-designated before response activities occur based on diagnostic testing and epidemiological information. In addition, it is preferable if Suspect Premises are 

re-designated before any type of movement on to/off of the premises (including feed and/or equipment) occurs. 2 This document does not provide a list of items that can/cannot be permitted. While any item 

can theoretically be permitted, what items actually are permitted depends on the outbreak and 

guidance provided by the unified Incident Command and APHIS National ICG. 
 

February 2017 3-2 

Framework: Response Strategies (FAD PReP Manual 2-0). Table 3-1 provides 

the zone and area designations, Table 3-2 provides the premises designations.

Table 3-1. Zone and Area Designations

Zone/area Definition

Infected Zone (IZ) Zone that immediately surrounds an Infected Premises.

Buffer Zone (BZ) Zone that immediately surrounds an Infected Zone or a Contact Premises.

Control Area (CA) Consists of an Infected Zone and a Buffer Zone.

Surveillance Zone (SZ) Zone outside and along the border of a Control Area. The Surveillance Zone 

is part of the Free Area.

Free Area (FA) Area not included in any Control Area. Includes the Surveillance Zone.

Vaccination Zone (VZ) Emergency Vaccination Zone classified as either a Containment Vaccination 

Zone (typically inside a Control Area) or a Protection Vaccination Zone 

(typically outside a Control Area). This may be a secondary zone 

designation.

Table 3-2. Premises Designations

Premises Definition Zone

Infected 

Premises (IP)

Premises where a presumptive positive case or confirmed positive 

case exists based on laboratory results, compatible clinical signs, 

case definition, and international standards.

Infected Zone

Contact 

Premises (CP)

Premises with susceptible animals that may have been exposed to 

the FAD agent, either directly or indirectly, including but not limited 

to exposure to animals, animal products, fomites, or people from 

Infected Premises.

Infected Zone, 

Buffer Zone

Suspect 

Premises (SP)

Premises under investigation due to the presence of susceptible 

animals reported to have clinical signs compatible with the FAD. 

This is intended to be a short-term premises designation.

Infected Zone, 

Buffer Zone, 

Surveillance Zone, 

Vaccination Zone

At-Risk 

Premises 

(ARP)

Premises that have susceptible animals, but none of those 

susceptible animals have clinical signs compatible with the FAD. 

Premises objectively demonstrates that it is not an Infected 

Premises, Contact Premises, or Suspect Premises. At-Risk 

Premises may seek to move susceptible animals or products within 

the Control Area by permit. Only At-Risk Premises are eligible to 

become Monitored Premises.

Infected Zone, 

Buffer Zone

Monitored 

Premises (MP)

Premises objectively demonstrates that it is not an Infected 

Premises, Contact Premises, or Suspect Premises. Only At-Risk 

Premises are eligible to become Monitored Premises. Monitored 

Premises meet a set of defined criteria in seeking to move 

susceptible animals or products out of the Control Area by permit.

Infected Zone, 

Buffer Zone

Free Premises 

(FP)

Premises outside of a Control Area and not a Contact or Suspect 

Premises.

Surveillance Zone, 

Free Area

Vaccinated 

Premises (VP)

Premises where emergency vaccination has been performed. This 

may be a secondary premises designation. 

Containment 

Vaccination Zone, 

Protection 

Vaccination Zone
 

February 2017 3-3 

In addition, Table 3-3 and 3-4 provide minimum sizes of zones and areas for an 

FAD outbreak. These zone sizes are minimums; there may be situations, incidents, 

and outbreaks where significantly larger zone sizes may be appropriate. While 

much of State and USDA APHIS VS experience with permitting comes from 

HPAI, it is critical to remember that the guidance in this document is intended to 

be applicable in any FAD outbreak and whatever zone size is appropriate. 

Remember, the larger the Control Area, the more movements within and the more 

difficult it will be to manage these movements; however, the larger the Control 

Area, the more confidence there is that the FAD has been confined to that area. 

Table 3-3. Minimum Sizes of Zones and Areas

Zone or area Minimum size and details

Infected Zone (IZ) Perimeter should be at least 3 km (~1.86 miles) beyond perimeters of 

presumptive or confirmed Infected Premises. This will depend on disease agent 

and epidemiological circumstances. This zone may be redefined as the outbreak 

continues.

Buffer Zone (BZ) Perimeter should be at least 7 km (~4.35 miles) beyond the perimeter of the 

Infected Zone. Width is generally not less than the minimum radius of the 

associated Infected Zone, but may be much larger. This zone may be redefined 

as the outbreak continues.

Control Area (CA) Perimeter should be at least 10 km (~6.21 miles) beyond the perimeter of the 

closest Infected Premises. Please see Table 3-1 for factors to consider in 

determining the size of a Control Area. This area may be redefined as the 

outbreak continues.

Surveillance Zone (SZ) Width should be at least 10 km (~6.21 miles), but may be much larger.

Table 3-4. Minimum Sizes of Zones and Areas for Mosquito or Culicoides VectorBorne Diseases

Zone or area Minimum size and details

Infected Zone (IZ) Perimeter should be at least 10 km (~6.2 miles) beyond perimeters of 

presumptive or confirmed Infected Premises. This will depend on disease agent 

and epidemiological circumstances. This zone may be redefined as the 

outbreak continues.

Buffer Zone (BZ) Perimeter should be at least 20 km (~12.4 miles) beyond the perimeter of the 

Infected Zone. Width is generally not less than the minimum radius of the 

associated Infected Zone, but may be much larger. This zone may be redefined 

as the outbreak continues.

Control Area (CA) Perimeter should be at least 30 km (~18.6 miles) beyond the perimeter of the 

closest Infected Premises. Please see Table 3-1 for factors to consider in 

determining the size of a Control Area. This area may be redefined as the 

outbreak continues.

Surveillance Zone (SZ) Width should be at least 20 km (~12.4 miles) but may be larger depending on 

the known geographic range of vector.
 

February 2017 3-4 

3.3 PERMITS 

A permit (can be paper, electronic, or both) is used to approve and document 

movements into, within, and out of a regulatory Control Area. A permit conveys 

two critical pieces of information: (1) approval for a movement (from a specific 

origin point A to a specific destination point B) and (2) approval for a specific 

item associated with this movement (animals, products, materials, etc.). A permit

typically also defines specific requirements that must be met for movement, 

depending on the item that is moved (e.g., diagnostic testing); this may be 

considered the third critical piece of information. A permit must be approved by 

the origin State (where the movement begins) and, if an interstate movement, the 

destination State (where the movement ends).

Only one permit is typically created to track all movements of the same item type 

from a specific origin premises to the specific destination premises for a specific 

time period (e.g., while the Control Area is in place). A permit is usually not 

required for every movement, as long as the two components of a permit do not 

change (the movement origin and destination and the item moved). Additionally, 

if the requirements of the permit change, a new permit is typically also required.3

Figure 3-1 illustrates examples of when one permit is required and when two 

permits are required: if there are multiple destinations or multiple items being 

permitted for movement, multiple permits are required. If there is a single item 

and a single destination, only one permit is required. 

If you are a producer, in a Control Area, and unsure whether you need a permit, 

request a permit from the unified Incident Command/your State Animal Health 

Official. They can provide further information and notify you if a permit is not 

required.

 3 And, as a reminder, the permitted movement and any associated requirements must be completed and documented prior to the movement taking place.
 

February 2017 3-5

Figure 3-1. Overview of Permits 

3.4 TYPES OF PERMITS

There are two primary types of permits: specific and COB. The first type of 

permit relates to controlling and containing the FAD outbreak, particularly for 

biocontainment (keeping the disease on Infected Premises) and bioexclusion 

(keeping the disease out of non-infected premises). The second type of permit is 

for maintaining business continuity in an outbreak for premises that are affected 

by the disease Control Area and associated movement restrictions, but not 

infected by the FAD agent. 

3.4.1 Specific Permit 

Infected, Contact, and Suspect Premises are under quarantine during an FAD 

outbreak and movements on to/off of these premises are highly restricted. On 

A PERMIT tracks associated activities between two locations. It specifies what can 

move, when it can move (frequency), and for how long it can move (start/end date).

 A permit may also list further conditions required for movement.

One type of item, to 

one premises? One 

permit. 

One type of item, to 

two premises? Two 

permits. 

Two types of item, 

to one premises? 

Two permits. 

There are Two Types of Permits

In an FAD outbreak, there are two types of permits issued: specific permits and COB 

permits. The first type of permits relate to controlling and containing the disease outbreak, 

ensuring that Infected Premises do not let the FAD off their premises and non-infected 

premises do not bring the FAD on their premises. The second type of permit—the COB 

permit—is to facilitate business continuity/continuity of operations for non-infected premises

which are inside the regulatory Control Area. 
 

February 2017 3-6 

these premises, movement is prohibited unless a specific permit is issued by the 

unified Incident Command for two overarching reasons: critical movements (e.g., 

animal welfare) and essential movements related to response activities.

4 Critical 

movements are movements that must occur to ensure the welfare of animals 

during an FAD outbreak, and could include the movement of feed. Essential 

movements are movements that must occur to respond effectively to the FAD 

outbreak, based on the judgement of the unified Incident Command and APHIS 

National ICG. This could include moving animals to slaughter or moving 

carcasses to an off-site disposal location. These two reasons are not necessarily

mutually exclusive. 

Examples of specific permits which occur from an Infected, Contact, or Suspect 

Premises could include the following:

 Movement of carcasses to landfill (essential movement). 

 Movement of a feed truck on to an Infected Premises for animal welfare 

(critical movement).

 Movement of animals to slaughter (critical and essential movement).

However, not all response activities that involve a movement require a permit. For 

example, crews may be going on to and off of an Infected Premises on a daily 

basis to conduct response operations like depopulation, disposal, and virus 

elimination. This crew does not need a permit to enter or leave the premises with 

a vehicle. However, responders performing response activities are required to 

follow stringent biosecurity measures to contain the FAD agent to the Infected 

Premises and mitigate transmission risks; the unified Incident Command and/or 

State and APHIS officials can provide more information on these activities during 

an incident. 

Specific permits and associated requirements should be based on science and riskbased information. USDA APHIS recommends the following guidance for the 

unified State-Federal Incident Command in deciding when to require specific 

permits for movement to/from Infected, Contact, and Suspect Premises.5 All 

specific permits are entered into EMRS2. A VS 1-27 form may be requested 

based on the unified Incident Command’s discretion for specific permits.

The unified Incident Command, in coordination with the APHIS National ICG as 

necessary, makes decisions regarding the risk-level of movements to/from 

 4 These groupings are conceptual to improve transparency and understanding in the permitted 

movement process; these categories are not identified in EMRS2 and may not be routinely used in 

all incident communication or are often used synonymously. 5 These risk groupings are based loosely on the Center for Epidemiology and Animal Health 

(CEAH) definitions of these likelihood ratings, where risk means that additional disease 

transmission will occur: negligible = the likelihood that the event will occur is insignificant, or not 

worth considering; low = it is very unlikely that the event will occur; moderate = the event is 

unlikely but does occur; high = there is more than an even chance that the event will occur.
 

February 2017 3-7 

Infected, Contact, and Suspect Premises. It is not possible—a priori—to 

categorize each and every movement that may occur to or from a premises; the 

level of risk will depend on outbreak-specific circumstances. As such, the 

examples here are provided as hypotheticals only.

3.4.1.1 NEGLIGIBLE RISK MOVEMENTS (NO SPECIFIC PERMIT REQUIRED) 

Movements that are highly unlikely to transmit the disease agent should be 

allowed without a specific permit to facilitate response activities in the Control 

Area. These movements should, however, adhere to all established mitigating 

procedures like biosecurity measures (e.g., truck and driver biosecurity). These 

movements and requirements are administered on-site.

Example: Movements from an Infected Premises to remove equipment from 

composting activities, after composting activities are complete and piles have 

been released, may be a negligible risk if appropriate mitigating procedures

are followed (e.g., disinfection of equipment).

3.4.1.2 LOW RISK MOVEMENTS (SPECIFIC PERMIT MAY BE REQUIRED) 

Movements where there is some risk to transmit disease, but this risk is low and 

mitigated by biosecurity measures, may require a specific permit at the discretion 

of the unified Incident Command. Whether or not a permit is required for 

movement should be based on epidemiology of the outbreak, risk of the specific 

movement, and other relevant factors. 

Example: Movements of feed or feedstuffs off of a Suspect Premises may be 

low risk with appropriate mitigating procedures.

3.4.1.3 MODERATE OR HIGH RISK MOVEMENTS (SPECIFIC PERMIT 

IS REQUIRED) 

Movements that have moderate or high risk of transmitting the FAD always 

require a specific permit for movement. Appropriate biosecurity and mitigating 

measures must be implemented to reduce the risk of disease transmission 

wherever possible. High risk movements should be avoided.

Example: Movements of carcasses off of an Infected/Contact/Suspect 

Premises may be a moderate to high risk, even with appropriate mitigating 

procedures.

3.4.1.4 ASSESSING RISK FOR SPECIFIC PERMITS

For some products or movements, such as carcasses to landfill, there may be 

quantitative or qualitative risk assessments or peer-reviewed literature regarding 

the risk of disease transmission for the movement of that specific item. However, 

in most cases, during an outbreak, a practical, common sense-based approach is 
 

February 2017 3-8 

taken to determine the risk of the movement (negligible, low, moderate/high). The 

unified Incident Command needs to take into account characteristics including—

but not limited to—the following in making their assessment, with the 

acknowledgment that there is often a need to make such decisions quickly and 

without complete information:

 What is the likelihood of the FAD agent being transmissible from the 

movement (e.g., is the disease agent alive)?

 How close are non-infected premises?

 What is the susceptible animal population density in the surrounding area?

 What are the potential consequences of disease transmission?

This ad-hoc “risk-assessment”6 during an incident for specific permits is typically 

informal and based on the best judgment of the unified Incident Command and 

available subject matter experts, which may be Federal/State officials or 

academic/industry experts. This risk-assessment process for specific permits 

should not delay movement; the unified Incident Command should err on the side 

of caution when the risk is unknown or transmission risk is not well understood.

3.4.1.5 REQUIREMENTS FOR ALL MOVEMENTS FROM INFECTED, SUSPECT,

AND CONTACT PREMISES

Based on risk, the unified Incident Command must identify whether other criteria 

are required for these critical and essential movements in a response, both those 

that require a specific permit as well as those that do not (negligible risk). These 

may include specific biosecurity measures—such as truck washes—when entering 

and leaving a premises, personnel-specific biosecurity measures, etc. The unified 

Incident Command is responsible for ensuring all responders are aware and 

follow these procedures, and that all requirements are met for specific permits 

prior to movement.

In some cases, the unified Incident Command and/or APHIS officials may request 

that a VS 1-27 form be used to issue specific permits for an incident, or for certain 

specific permits. This form can be uploaded in EMRS2 and the permit and

permitted movement information can be entered and tracked in EMRS2 as for any 

other specific permit.

3.4.2 Continuity of Business Permit

The second primary type of permit is the most commonly known and understood, 

the COB permit. COB permits are for COB movements in an FAD incident, from 

At-Risk Premises or Monitored Premises. While specific permits are rarely for 

interstate movements, COB permits are commonly both intrastate and interstate. 

 6 This may be an ad-hoc risk assessment or a similar science- and risk-based evaluation such 

as a technical memorandum of understanding. 
 

February 2017 3-9 

COB permits, generally speaking, can be for movements into, within, or out of the 

Control Area. Different permitted movements are allowed depending on whether 

the premises is an At-Risk Premises or a Monitored Premises.

Within COB permits, there are two secondary types of permit: the operational 

permit and the animal/animal product permit, also known as a Secure Food 

Supply (SFS) permit. These subsets of permits are for two different types of 

movements. First, operational permits are for normal movements—such as that of 

equipment, service crews, and carcasses—that must continue for the non-infected 

premises to continue operations during an outbreak.7 Second, SFS permits are for 

the movement of animals/animal products that help to facilitate a healthy and safe 

food supply in an outbreak. Both types of permits support overall COB during an 

outbreak. Further detail on these permits are provided below.

3.4.2.1 OPERATIONAL PERMIT

Both At-Risk Premises and Monitored Premises may require operational permits. 

Operational permits are not used for animals/products/commodities; they are used 

to permit normal movements such as service delivery, some feed movements, 

removing mortality, etc. For example, a service crew moving on to or off of an 

At-Risk or Monitored Premises may require a permit. These permits are typically 

for the following:

 normal movements that may have a non-negligible level of risk, and

 movements within or out of the Control Area to/from either At-Risk or 

Monitored Premises.

What types of movements on to/off of At-Risk and Monitored Premises require an 

operational permit, as well as what additional criteria are required to obtain this 

permit, is based on guidance from the unified Incident Command, APHIS 

National ICG, and origin/destination State officials. An ad-hoc process for risk 

assessment may be required. Operational permits are less common than SFS 

permits. 

3.4.2.2 SECURE FOOD SUPPLY PERMIT

Second, the animal/product/commodity permit, or SFS permit, are permits for the 

movements of animals and animal products into the supply chain for further 

feeding, growing, processing, or to market. These permits are intended to 

facilitate the security of a safe, healthy food supply for the United States in an 

FAD outbreak, by focusing on allowing non-infected premises move animals and 

animal products towards or into the market supply chain. Requirements for SFS 

 7 At times, some movements—for example, rendering mortality off-site—may be postponed, 

cancelled, or be required to complete significant mitigations due to known risk of the movement 

spreading disease from an unknown Infected Premises.
 

February 2017 3-10 

permits originate from both the SFS plans for poultry, milk, pork, and beef—and 

from unified Incident Command in concert with State and APHIS officials. 8 

Based on the definitions of At-Risk and Monitored Premises provided in Section 

3.2, At-Risk Premises may be eligible to receive SFS permits to make permitted 

movements within the Control Area; Monitored Premises may be eligible to 

receive permits to move both within and out of the Control Area. It is important to 

note that States and/or APHIS officials, depending on the outbreak situation, may 

decide that to receive an SFS permit, the premises must become a Monitored 

Premises regardless if movement is within or out of the Control Area.9 Some SFS 

plans also indicate this requirement (to become a Monitored Premises before 

movement can occur). However, in large outbreaks with large Control Areas (e.g., 

an entire State), it may not be possible or practicable to establish that premises 

meet all the requirements to become Monitored Premises before certain 

movements are permitted. Allowing At-Risk Premises to make permitted 

movements under an SFS permit is a critical response option that should not be 

eliminated for all diseases, all incidents, or all types of movements. In addition, 

there may be—and can be—specific requirements that At-Risk Premises have to 

meet before a SFS permit is approved: these may not be as stringent as those for 

Monitored Premises, but could include additional measures such as specific 

biosecurity standards. 

The SFS plans offer guidance and suggested requirements, but they may need 

modification during an FAD outbreak. Additionally, the unified Incident 

Command and State/APHIS officials provide information on animals and animal 

products that are not covered by existing SFS plan guidance or recommendations.

3.4.2.3 CRITERIA REQUIRED FOR CONTINUITY OF BUSINESS PERMITS

COB permits have defined criteria that must be met for permit approval and 

associated movement; these criteria are ideally identified ahead of time for SFS 

permits (though changes can always be made based on outbreak situations), and 

provided as guidance to all stakeholders. For operational permits, the unified 

Incident Command and State/APHIS officials determine and establish appropriate 

criteria.

For both SFS and operational permits, these criteria are based on the level of risk 

of the movement, and may include diagnostic testing (very common), 

 8 Significant State, APHIS, industry, and academia effort has gone into making the SFS plans. 

These plans offer guidance and recommendations, and may be accepted in an outbreak. However, 

each FAD incident is different and may necessitate further review or modification of existing SFS 

guidance; during an outbreak, it may be necessary to establish a public-private-academic group 

that can work to inform COB permitting if requested by the unified Incident Command or APHIS 

National ICG 9 Movements within the Control Area may be permitted from At-Risk Premises because the 

risk/movement remains within the Control Area. Whether At-Risk Premises are allowed to make 

SFS movements during an outbreak may depend on the size of the outbreak, the size of the Control Area, biosecurity information about At-Risk Premises, and other relevant information.
 

February 2017 3-11 

epidemiological information, strict biosecurity standards, and other requirements. 

States can verify that these criteria or qualifications have been met before they 

approve the movement (both the origin State and destination State).

The unified Incident Command and State/APHIS officials may both issue 

guidance on what movements require a COB permit, as well as guidance on 

minimum criteria for COB permitted movement. For example, in the recent HPAI 

outbreaks, the APHIS National ICG provided additional guidance on minimum 

diagnostic testing requirements for SFS permits. For interstate movements, 

though destination States may elect to mandate additional criteria (above the 

minimum) be met for movement, States are encouraged to accept the 

requirements and guidance established collaboratively by the unified Incident 

Command and State/APHIS officials. 

3.4.2.4 ASSESSING RISK FOR CONTINUITY OF BUSINESS PERMITS

While risk-assessment for specific permits is typically an ad-hoc process that 

must be completed quickly, for some COB permits—particularly SFS permits—a 

detailed qualitative risk assessment has been completed by the APHIS VS CEAH. 

These commodity-specific risk assessments (by VS CEAH) on movement are 

available for specific products.10 These risk assessments review the likelihood 

that the specific movement will cause disease transmission, if the origin premises 

is infected but undetected. The criteria required for movement is directly related 

to the level of risk identified. While there has been significant risk-assessment 

work completed for HPAI and poultry products, and to a slightly lesser extent for 

foot-and-mouth disease (FMD), there are not detailed risk assessments for many 

pathogens. 

Therefore, in some cases, especially for operational permits as well as SFS 

permits for diseases not products not yet assessed, there may be the need to move 

an item that has not yet undergone the official risk-assessment process. In this 

case, unified Incident Command personnel, State/APHIS officials, and subject 

matter experts (such as the VS CEAH Risk Analysis Team) can quickly perform 

an ad-hoc risk assessment.11 This ad-hoc risk assessment would be similar to the 

process described above for a specific permit, answering questions including (but 

not limited to) the following: 

 What is the likelihood of the FAD agent being transmissible from the 

movement (e.g., is the disease agent alive)?

 10 For information on the risk assessments that have been conducted, please review the 

individual SFS webpages for more information. For example, the summary of a Secure Milk 

Supply assessment is here: http://securemilksupply.org/Assets/SMS-Proactive-Risk-AssessmentsResults-Summary.pdf and a link to the full document can be found here: 

http://securemilksupply.org/plan-components.php. 11 This may be an ad-hoc risk assessment or a similar science- and risk-based evaluation such 

as a technical memorandum of understanding. 
 

February 2017 3-12 

 How close are non-infected premises?

 What is the susceptible animal population density in the surrounding area?

 What are the potential consequences of disease transmission?

It is important to note that in some cases, there is an important need to balance the 

risk of movement versus the risk of not moving the item. For example, not 

moving milk or liquid egg can mean that this product must be disposed of; 

disposal may pose significant and additional challenges and could also present an 

additional risk of virus spread that product movement may not. Certainly this is 

not always the case, but it is an important consideration in making permitted 

movement decisions. Similarly, it is important to prioritize requests for ad-hoc 

review and ensure that the unified Incident Command and the APHIS National 

ICG have open communication pathways and readily share information on riskrelated issues.

Because this type of movement is not directly related to the response effort 

(response activities), some additional time may be taken to perform this 

assessment in comparison to that for a specific permit. However, it should be the 

goal of the unified Incident Command to make a decision within 48–72 hours; 

producers can assist by making permit requests for operational and SFS permits 

well before the movement needs to occur. Some States may elect to consider a 

delay in movement when a new Control Area is established until certain 

requirements, like specified surveillance, are completed. 

3.4.3 Summary of Permit Types

Table 3-5 summarizes the different types of permits issued for permitted 

movement.

Defining a Permit

A permit is used to approve and document movements from a particular origin premises to a 

destination premises, into, within, and out of a regulatory Control Area. Requirements needed 

depend on the type of permit and item moved. All permits must have State of origin approval; 

for interstate movements, in addition to origin State approval, the destination State must also 

approve the permit. 
 

February 2017 3-13 

Table 3-5. Summary of Permit Types12

Type of Permit

Type of 

Premises Details

Into/Within/Out 

of Control Area?

Intrastate or 

Interstate? Example

Specific Permit

Infected, 

Contact, 

Suspect

Includes critical movements 

(e.g., animal welfare) and 

essential movements (e.g., 

response activities). 

Specific permit may/may 

not be required based on 

risk and unified Incident 

Command 

recommendation. 

Can be into, 

within, or out of 

Control Area; 

into or within 

Control Area 

more common.

Usually 

intrastate, 

rarely 

interstate.

Movement of 

animals on a 

Suspect 

Premises to a 

slaughter 

establishment 

in the Control 

Area.

Continuity 

of 

Business 

Permit

Operational 

Permit

At Risk, 

Monitored

Includes normal 

movements necessary to 

keep non-infected premises 

within the Control Area in 

business during an 

outbreak. Permit 

requirements/criteria based 

on unified Incident 

Command, APHIS National 

ICG, and State officials 

recommendation.

Usually within or 

out of Control 

Area.

Can be 

intrastate or 

interstate. 

Movement of 

mortality off of

an At-Risk 

Premises to 

outside of the 

Control 

Area. 13 

SFS 

Permit 

At Risk, 

Monitored

Includes animal and 

animal product 

movements into the 

supply chain for feeding, 

growing, processing, or to 

market. Helps to secure 

the U.S. food supply 

during an outbreak. 

Permit requirements/

criteria based on Secure 

Food Supply Plans and/or 

the unified Incident 

Command, APHIS 

National ICG, and State 

officials recommendation.

At-Risk 

Premises can 

only move 

within a Control 

Area; 

Monitored 

Premises can 

move within or 

out of a Control 

Area. 

Movements 

into the Control 

Area are less 

common.

Can be 

intrastate or 

interstate.

Movement of 

washed and 

sanitized 

shell eggs 

from a 

Monitored 

Premises to 

market 

outside of the 

Control Area.

3.5 TYPES OF MOVEMENTS

In an FAD outbreak, there are different types of movements—some are permitted, 

others are simply tracked by either the unified Incident Command or producers. In 

many FAD response efforts, it simply is not possible to approve a permit for each 

and every movement (including personal movements of children to school buses, 

 12 These permit types are conceptual. There is not a specific field in EMRS2 that captures 

these different permit types; however, the fields in EMRS2 allow these types to be separated and 

analyzed distinctly as required by the incident or at request of internal or external stakeholders. 13 At times, some movements—for example, rendering mortality off-site—may be postponed, 

cancelled, or be required to complete significant mitigations due to known risk of the movement 

spreading disease from an unknown Infected Premises.
 

February 2017 3-14 

visitors to the home, etc.) on to or off of a premises in the Control Area. This 

section discusses different types of movements; movements that generally do not 

relate to the animal business being conducted on the premises are outside the 

scope of this document. However, it is important that biosecurity guidance is 

clearly communicated to the producer and implemented for these movements as 

needed, such as mail delivery, a spouse driving to/from an unrelated job each day, 

children going to school, etc.

The three types of movements are as follows: permitted movements, tracked 

conveyances, and routine movements.14 Permitted movements are those 

movements associated with an approved permit; tracked conveyances are 

movements that are tracked in EMRS2 but do not require a permit. Routine 

movements are not tracked in EMRS2 and also do not require a permit, though 

the producer may be required to keep enhanced records of these movements. 

It is a State’s responsibility for ensuring producers in their State know what type 

of movements require a permit, what requires no permit but reporting to the State 

and/or the unified Incident Command, and what requires enhanced record keeping

by the producer. It is important that the State(s) communicate this information to 

producers in an accurate and timely manner.

3.5.1 Permitted Movement

After a specific or COB permit (either operational or SFS) has been approved, the 

items, animals, or products specified in the permit record can be moved from the 

specified origin to the specified destination. This is a permitted movement. Each 

permitted movement for a specific permit and a COB permit is always recorded in 

EMRS2 in an FAD outbreak, even if the State elects to issue a permit from their 

own information management system—this data is subsequently entered into 

EMRS2 by unified Incident Command or EMRS2 personnel.

Because a single permit can be used to move multiples of the same item between 

two premises, most incidents will have more “permitted movements” than 

“permits” in EMRS2; each individual permitted movement is entered in EMRS2 

when there are multiple movements against a single permit. COB permits are 

more likely to have multiple, associated permitted movements than specific

permits. 

Figure 3-2 provides an illustration of permitted movements for a COB permit(s). 

For example, if a premises has a single permit to move washed and sanitized eggs 

to a single destination facility, that premises may move 3 loads per day for 7 days 

(21 permitted movements in total), as specified by that individual permit. This is 

just an example showing the distinction between a permitted movement and a 

permit—the permit details this type of information, as discussed in a later section.

 14 There are multiple types of movements that may be captured in EMRS, including those that 

are restricted (VS 1-27 Form) or traced (as part of an epidemiological investigation), these are not 

further discussed in this document. 
 

February 2017 3-15 

Figure 3-2. Overview of Movements

3.5.1.1 CRITERIA FOR PERMITTED MOVEMENTS

Specific and COB permits may lay out criteria that is required to be met for a 

permitted movement to occur. This criteria must be met before the movement 

occurs. In general, it is the responsibility of the producer to ensure this criteria is 

met and at the discretion of the origin and destination State to validate or check 

that this criteria has been met as desired. Further information on this process is 

included in in Chapter 5. 

3.5.2 Tracked Conveyances

Tracked conveyances are negligible-risk movements that can move into, within, 

and typically out of a regulatory Control Area without a permit—in other words, 

the origin and destination State(s) do not need to permit these movements with a 

COB permit.15 Based on the experience of HPAI, these tracked conveyances are 

typically negligible risk products that are leaving a Food Safety and Inspection 

Service (FSIS)-inspected plant (e.g., FSIS-inspected pasteurized liquid egg; other 

products may also be tracked conveyances but are not defined at this time). These 

 15 Just because tracked conveyances do not require a permit does not imply that a premises 

does not need biosecurity: premises moving tracked conveyances—and all susceptible premises 

during an outbreak—should implement, monitor, and enforce their premises biosecurity plans to 

reduce the risk of disease introduction. 
 

February 2017 3-16 

tracked conveyances should be reported to the origin State and/or unified Incident 

Command as they are typically entered in EMRS2: tracking enables transparency, 

allowing both the origin and destination States to view these conveyances, even 

without a permit being issued. 

3.5.3 Routine Movements

There are many movements that continue in a Control Area during an outbreak; it 

is not possible to permit each and every movement. Routine movements are 

normal movements from At-Risk and Monitored Premises that do not pose 

beyond a negligible risk, thereby not requiring an operational permit. Routine 

movements also must not be of animals or animal products—these require an SFS 

permit. Service crews and equipment pick-ups or deliveries may be considered 

routine movements in an outbreak. Routine movements are not entered in 

EMRS2. Routine movements are for items/movements that are “proclaimed” to 

be acceptable by State(s) and the unified Incident Command to move without a 

permit during an outbreak, which may vary by outbreak as well as within an 

outbreak.

Routine movements do not require a COB permit of either type and are more 

commonly intrastate. If the movement is interstate, the unified Incident 

Command, origin/destination State, and APHIS officials determine whether or not 

it is a routine movement or requires an operational permit (under COB permit). 

For example, particularly in cases where premises are on or near State boundaries 

where business is routinely conducted, it is possible that responsible regulatory 

officials determine that the movement should be categorized as a routine 

movement, thereby not requiring an operational permit. However, it may be 

possible that the origin and destination State do not agree on what is a routine 

movement—the destination State could then require an operational permit for 

such movement. States may decide independently what they consider to be a 

routine movement—and what is not. 

3.5.3.1 CRITERIA FOR ROUTINE MOVEMENTS

Routine movements are still in the Control Area, which means there are 

heightened requirements for producers to make such movements. First, elevated 

biosecurity measures are necessary. Second, enhanced record keeping—auditable 

at any time by the unified Incident Command and/or State—is required by the 

producer. The unified Incident Command, State, and APHIS officials determine 

these specific criteria required for movement and communicate these to the 

producer. 

3.5.4 Summary of Movement Definitions

Table 3-6 summarizes the definitions that stakeholders should be aware of for 

movement.
 

February 2017 3-17 

 16 There is a specific field in EMRS2 which captures whether the movement is a permitted 

movement or a tracked conveyance.

Table 3-6. Summary of Definitions for Movement16

Term Explanation Example Requirements Approval

Permitted 

Movement

A permitted movement is the 

type of movement associated 

with a permit (specific or 

COB). One or more 

permitted movements can be 

associated with a single 

permit, but each movement 

is recorded separately. If a 

permit is issued for multiple 

movements, these 

movements must be for the 

same item and between the 

same two premises, in the 

same direction. 

Three separate 

truckloads of washed 

and sanitized eggs 

moving between the 

same two premises 

in the Control Area 

are associated as 

permitted 

movements to a 

single permit.

Tracked in 

EMRS2. The 

specific 

requirements 

associated with 

the permit must 

be met for the 

permitted 

movements that 

are associated 

with that permit. 

State of origin 

and State of 

destination must 

approve permit 

which allows the 

associated 

permitted 

movements.

Tracked 

Conveyances

A type of movement that 

does not require a permit. 

Tracked conveyances 

originate from FSISinspected establishments 

and are negligible-risk 

products. 

Pasteurized liquid 

egg loads moving 

out of a Control Area 

from a FSISinspected processing 

facility in a Control 

Area.

Typically tracked 

in EMRS2. FSISinspection.

Notification to 

State of 

destination but no 

approval required.

Routine 

Movement

Routine movements are a 

type of movement that does 

not require a permit. All 

movements must be 

negligible risk and not require 

a COB permit (either SFS or 

operational, so no animals or

animal products). Often 

intrastate, but can be 

interstate movements with 

agreement of State origin 

and State of destination.

Movement of 

washed and 

sanitized egg-crates 

from At-Risk and 

Monitored Premises; 

personal or business 

movements off of 

and on to a premises 

(e.g., to the post 

office). 

Not tracked in 

EMRS2. 

Elevated 

biosecurity, 

enhanced record 

keeping and 

other 

requirements as 

dictated by the 

State of origin/

unified Incident 

Command.

State of origin 

(and State of 

destination for 

interstate 

movement) and 

unified Incident 

provide general 

proclamation of 

what categories 

or items are 

routine and can 

move without a 

permit; this can 

change during the 

outbreak.
February 2017 4-1 

Chapter 4

Introduction to Permit Requirements & the 

EMRS2 Customer Permit Gateway

As specified, there are two primary types of permits that may be issued during an 

FAD incident: specific and COB (COB permits are broken in to two secondary 

types: operational and SFS). All permits help to ensure that movement does not 

result in further transmission of the FAD and work towards the goal of the 

outbreak response not doing more harm than the FAD itself.

All FAD PReP Disease Response Plans and multiple ready reference guides, like 

the FMD Response Plan: The Red Book and the policy guidance document HPAI: 

Movement Control provide information on movement control and broad guidance 

on what is allowed/not allowed to move from the various premises designations 

during an outbreak (into the Control Area, within the Control Area, and out of the 

Control Area). This guidance is very general and gives the unified Incident 

Command significant discretion. These documents are available 

from www.aphis.usda.gov/fadprep. 

This chapter provides introductory information on permitted movement 

requirements and the permitting process.

4.1 INFORMATION REQUIRED FOR A PERMIT1

There are seven key pieces of information that are required to obtain any type of 

permit; these data are recorded in EMRS2 in as close to real-time as possible 

during an FAD outbreak. If a State elects to use an information system other than 

EMRS2 to issue permits in an outbreak, these data must be communicated to the 

unified Incident Command for import or entry into EMRS2.2 During an outbreak, 

it is critical that data is entered into EMRS2 in a consistent, timely, and accurate 

manner. Depending on the disease outbreak, additional guidelines may be 

provided by EMRS2 personnel to the unified Incident Command and National 

Permitting Unit on the items below to ensure data is being entered consistently for 

all permits. 

 1 The different permit types are conceptual. There is not a specific field in EMRS2 that 

captures these different permit types; however, the fields in EMRS2 allow these types to be 

separated and analyzed distinctly as required by the incident or at request of internal or external 

stakeholders. 2 While tracked conveyances do not require a permit, the same information is required to track 

conveyances.
 

February 2017 4-2 

1. Permit Class. This indicates the origin/destination location with regard to 

the Control Area, e.g., into Control Area, out of Control Area, or within 

Control Area.

2. Permit Reason. This is the reason a permit is required, e.g., direct to 

farm, direct to landfill, into commerce, or direct to slaughter.

3. Origin Premises.

3 This is the premises that the movement originates 

from, including the national premises identification number (PIN) and 

physical latitude/longitude of the front gate where the animals are located.

4. Destination Premises. This is the premises where the movement ends, 

including the national PIN and physical latitude/longitude of the premises.

5. Items. This is the item that is permitted and allowed to move, e.g., 

manure/litter, feed, eggs, groups of animals; species of animals also needs 

to be defined. 

6. Item Class. This is the class of item that is permitted, based on the 

description provided in items; e.g., if the items permitted were “groups of 

animals,” the item class offers further description about the species/type of 

this animal.

7. Duration/Span of Permit. This provides information about the first 

movement date for movements associated with a permit, as well as how 

long the permit is valid for. It provides information about how long the 

movement(s) are expected to continue.4

4.1.1 Additional Requirements Prior to Movement

Permits and their associated permitted movement(s) may have additional 

requirements that must be met before the movement is made. These records and 

documentation can be uploaded in EMRS2 for review by relevant parties. For 

SFS permits in particular, the permit is likely to specify additional criteria that 

need to be met for each movement. For example, specific diagnostic testing may 

need to occur prior to initiation of the movement. Mortality reports from the

 3 A premises (origin and destination) must be established in EMRS2 prior to the issuance of 

any permits. Physical addresses must not include PO Boxes, residences, or headquarters–it must 

be the actual location of the animals. If States hold premises data in a system other than EMRS2, 

they can request these premises be validated and imported into EMRS2 prior to an incident (which 

is preferred). For more information, please contact your EMRS2 Network Associate or refer to the 

document EMRS 2.0: Premises Data Transfer to EMRS2 from External/State-Based Systems

(www.aphis.usda.gov/fadprep). 4 This is the “start date” and “end date” of the permit: for example, the end date may be the 

known date of the last movement if there are a discrete number of planned movements under the 

permit or, for example, the date the Control Area is projected to be released if movements will 

continue throughout the outbreak. The unified Incident Command or destination State(s) may provide additional guidance on the duration/span of the permit for the specific incident.
 

February 2017 4-3 

origin premises may be required to qualify for a permit. Diagnostic testing results 

can be entered into EMRS2 or automatically messaged, if the testing laboratory 

can message results (strongly preferred), and attached to the origin premises in 

EMRS2. 

4.1.2 Time Required for Permit Issuance

Requests for specific permits should typically be submitted to the unified Incident 

Command for review as soon as the need for the permit is identified. For COB 

permits (both SFS and operational), a permit request should be completed at least 

24–48 hours prior to movement; longer if it is known well in advance that 

animals/animal products need to move for an SFS permit.

Premises should keep in mind that at any time, the issuance of permits may be 

delayed due to the volume of requests, delays in diagnostic results, changes in 

response operations, location verification problems, epidemiological changes, or 

other reasons pertaining to the specific incident. The unified Incident Command 

will make every attempt to issue permits in a timely manner given the other 

competing priorities for resources in an incident. If needed, specific permits will 

have priority over COB permits because of their direct applicability to FAD 

control and containment.

4.2 INTRODUCTION TO THE EMRS2 CUSTOMER 

PERMIT GATEWAY

4.2.1 General Information and Benefits

The EMRS2 Customer Permit Gateway, also referred to as “the Gateway,” is a 

new, producer-facing portal that provides an automated linkage from a website to 

the EMRS2 system. The Gateway is an interactive, secure, web-application, 

where registered producers can create a permit request for movement. The 

producer never interacts with the EMRS2 system directly—all data is entered 

directly into the Gateway, which is simple and easy to use. Figure 4-1 shows the 

EMRS2 Customer Permit Gateway immediately after log-in.

The Gateway has important benefits and greatly streamlines the permitting 

process. First, it offers producers a way to see the real-time status of their permit 

requests. Second, it facilitates timely and accurate data entry into EMRS2, the 

USDA APHIS official system of record for FAD outbreaks. The use of the 

Gateway does not change the overall permitted movement process or permitting 

concepts. The document HPAI Ready Reference Guide—EMRS2 Customer 

Permit Gateway also offers an overview of the Gateway. Appendix A provides an 

update on the current status of the Gateway and information for producers who 

want to register and for States who already use EMRS2.
 

February 2017 4-4 

Figure 4-1. EMRS2 Customer Permit Gateway

4.2.2 Producer Responsibility

Producers, if they register to use the Gateway, are responsible for understanding 

permit requirements and conditions for movement and agree to follow criteria 

outlined in any approved permit request that occurs through the Gateway. By 

accepting an approved permit and conducting movements, the producer is 

certifying that they have met all required criteria. They also agree not to 

compromise the security or integrity of the web-based Gateway in any way. 

4.2.3 What Can Be Done in the Gateway

There are six distinct actions that an already registered producer can perform in 

the EMRS2 Customer Permit Gateway:

1. Request access to see/view known premises or accounts (e.g., premises 

that the producer owns and manages that are already established in 

EMRS2).

2. Create an address book entry for premises they own or manage (one or 

multiple).

3. Initiate a request for a permit.

4. Check the status of any producer initiated permit request.

5. Download approved permit(s) in a PDF format.

6. Enter movement(s) associated with an approved permit.

Chapter 5 provides more additional information on how the Gateway fits into the 

overall permitting process for COB permits (operational and SFS).
February 2017 5-1 

Chapter 5

Permitting Process

There are eight general steps involved in permitting. The process is broadly the 

same regardless of the type of permit—specific or COB (operational or SFS). 

However, specific differences in processes between these permit types are 

outlined below. 

Remember, a conveyance—product from a USDA Food Safety and Inspection 

Service-inspected facility that is negligible risk—does not require a permit or 

permit request for movement, but is typically entered in EMRS2 and available for 

the origin State and destination State to view in EMRS2. A routine movement is 

not permitted and does not go through this process.

5.1 STEP 1: REQUEST PERMIT

5.1.1 Specific Permit

For a specific permit, the unified Incident Command determines if a permit is 

required for movement. If the permit is required for movement, either the 

producer needing to make the movement or the unified Incident Command can 

initiate the permit request. At this time, specific permit requests are not made 

through the Gateway and should be made through normal communication 

channels between the producer (of the Infected, Suspect, or Contact Premises) and 

the unified Incident Command—which may often be an assigned Case Manager 

or dedicated e-mail address to unified Incident Command personnel. Specific 

permits may receive priority for review in the permit request queue as they relate 

directly to response operations and the containment/elimination of the FAD.1

5.1.2 Continuity of Business Permit

COB permits (operational and SFS) must be requested by the producer. It is 

preferable if these requests are made through the Gateway (Figure 5-1 and Figure 

5-2), though if a producer is not registered, all existing methods can be used to 

make a permit request (e.g., an e-mail to State and/or APHIS officials or the 

unified Incident Command). SFS permit requests, in particular, should be made 

 1 In the future, requests for these permits may be made through the Gateway. However, because these requests are typically initiated by the unified Incident Command or a producer via a 

case manager, there is not a significant advantage to make these through the Gateway as the unified Incident Command directly enter the request in EMRS2. Additionally, because these requests 

are higher risk and/or require coordinated action—possibly across States—normal communication 

channels are more appropriate to secure the coordination of resources and personnel required for 

this type of permit and permitted movement. 
 

February 2017 5-2 

through the Gateway. It is highly recommended that producers with potentially 

large volumes of SFS permitted movements register in the Gateway and request 

SFS permits through that mechanism to ease data-entry burdens on the unified 

Incident Command and help ensure the timely issuance of permits. After 

registration in the Gateway, the permit request is the first step towards an 

approved permit (Figure 5-3). If there is any doubt whether a permit is required 

for movement, a producer should request a permit. 

Figure 5-1. Initiating Permit Request through the Gateway

Figure 5-2. Entering Permit Request through the Gateway

Figure 5-3. Status: Permit Request

When submitting permit requests with the Gateway, it is easiest to work first from 

the point of concentration. In other words, if you have a single premises receiving

Permit Request Accepted Permit 

Request Pending Permit Reviewed Permit Approved Permit
 

February 2017 5-3 

the bulk of the movements, select that premises as the destination premises first, 

and then select the different origin premises from your address book. There is a 

copy button in the Gateway that can be used to expedite this process. 

All COB permit requests (operational or SFS), regardless of whether they are 

submitted through the Gateway or by a producer through traditional means (phone 

or e-mail), end up in queue in EMRS2 for review as specified in Step 2 and then 

Step 3. COB Permit requests are most typically handled in the order in which they 

are received, unless there is an exceptional situation which would dictate 

prioritizing movements for animal welfare reasons or other circumstances. 

5.2 STEP 2: ENTER/CONFIRM DATA IN EMRS2 

In the case of both primary types of permits (specific and COB), personnel in the 

origin State and/or unified Incident Command personnel review the data entered 

for the permit request. For specific permits not requested through the Gateway, 

personnel must create a new permit request (enter data in EMRS2) in the permit 

request queue and review this request for completeness. For COB permit 

(operational or SFS) requests through the Gateway, the data does not need to be 

entered in EMRS2: it appears automatically in the permit request queue once 

submitted by the producer in the Gateway. As soon as the data is complete, the 

permit request is accepted and it becomes a pending permit (Figure 5-4).

Figure 5-4. Status: Accepted Permit Request to Pending Permit

For all types of permit requests, this basic quality assurance/quality control (QA 

QC) administrative check is undertaken to ensure all information required is 

submitted; this QA QC process does not review any permit documentation and 

does not require personnel trained in permitted movement requirements. The QA 

QC process ensures the data is complete and the origin premises is in EMRS2. It 

does check the location of the origin premises with respect to the regulatory 

Control Area. If a producer is requesting a permit but actually not in the Control 

Area, they will be referred to a State official for further guidance for movement 

activities outside of the Control Area. Again, this data confirmation step leads to 

the permit request being accepted (Figure 5-4); as soon as the permit request is 

accepted, it becomes a pending permit and Step 3 begins. Permit requests can also 

be rejected at this step—for example, if it is a duplicate request or for a movement

that is a tracked conveyance and does not require a permit. If the permit is 

rejected, the requestor will receive an email notification and the status in the 

Gateway will change to rejected; if this rejection is not the result of an error or 

Permit Request Accepted Permit 

Request Pending Permit Reviewed Permit Approved Permit
 

February 2017 5-4 

duplication, the requestor is typically contacted by a member of the unified 

Incident Command regarding the reason for rejection. If a permit is rejected and 

the requestor believes that the rejection is a mistake, they can resubmit the permit 

request and contact their State representative if there are additional questions.

For permit requests entered through the Gateway (in Figure 5-5), a producer can 

modify a permit request at any time until the permit request has been submitted 

into the Gateway and accepted by the origin State. At this time, the permit request 

is locked and cannot be changed. This is the data that will appear in EMRS2. In 

the event that changes are required for an accepted permit request, State personnel 

using EMRS2 or EMRS2 personnel must be notified to make these changes 

directly in EMRS2 (they will subsequently appear in the Gateway).

Figure 5-5. Viewing Permit Requests in the Gateway

5.3 STEP 3: REVIEW PENDING PERMIT 

AND DOCUMENTATION

The review of the pending permit is substantive, and requires trained personnel 

that understand permitted movement and the permit requirements for a specific or 

COB permit (SFS or operational). For interstate movements, Step 3 (review) and 

Step 5 (approval/denial) are both required for all pending permits, regardless of 

permit type. However, for pending permits that are for intrastate movements, 

since the origin State and destination State are the same, Step 3 and Step 5 are 

inherently combined: the origin State can review and approve the pending permit/

documentation simultaneously, since there is no other State that must approve the 

pending permit. 

In an outbreak, State(s) and the unified Incident Command can become 

overwhelmed by permit requests. If necessary, the National Permitting Unit can 

be established and support the origin State to rapidly review the permits in 

EMRS2.

5.3.1 Specific Permit

For a specific permit, the unified Incident Command and/or State official review 

the pending permit. Because this permit was requested at their recommendation or 
 

February 2017 5-5 

with their knowledge for ongoing response activities, they confirm the pending 

permit is as recommended and still required. The unified Incident Command 

and/or State also review any documentation provided by the producer or 

responders for the permitted movement. Due to the disease transmission risk of 

specific permits, the unified Incident Command may prescribe and dictate 

additional biosecurity measures that must be taken for the pending permit to be 

approved and permitted movement to occur from the Infected, Suspect, or Contact 

Premises based on the current outbreak situation.

5.3.2 Continuity of Business Permit

If desired by the origin State, automated e-mails can be sent after the permit 

request is accepted in EMRS2, notifying the origin State that a pending permit is 

ready for review. 2 For COB permits (operational and SFS), it is imperative that 

the origin State reviews the pending permit and any documentation. COB permits, 

particularly SFS permits, frequently require additional criteria that must be 

completed before the permitted movement occurs, such as biosecurity measures 

and/or diagnostic testing. It is at the State’s discretion how much documentation 

to require from the producer (indicating that the requirements have been met) and 

at what intervals this documentation is required to be submitted and/or rereviewed by the State. All supplementary, required documentation for a permit 

can be uploaded directly into EMRS2 by State and/or unified Incident Command 

personnel.3

The origin State has three options at this stage for the pending permit:

1. Status the pending permit as a “Reviewed Permit;” recommend approval 

to destination State (Figure 5-6); present the Reviewed Permit to the 

destination State. 

2. Status the pending permit as a “Reviewed Permit;” do not recommend 

approval to destination State; present the Reviewed Permit with this “do 

not recommend approval” notification to the destination State.

3. Reject the pending permit (for example, if the premises has not met the 

requirements to move items out of the Control Area); do not present 

pending permit to the destination State.

 2 In all cases where automated e-mails are sent from EMRS, these e-mails can be turned on or 

off based on the States’ preferences and volume of permits. 3 In the future, it may be possible for producers to upload required documentation in the Gateway. Again, test results should be messaged directly from the laboratory to EMRS and not uploaded in the Gateway. Further guidance will be released as capabilities are developed.
 

February 2017 5-6 

Figure 5-6. Status: Reviewed Permit

5.4 STEP 4: ORIGIN STATE NOTIFIES DESTINATION 

STATE OF REVIEWED PERMIT

After the origin State reviews the pending permit, the destination State (if 

different than origin) is notified that there is a reviewed permit. Again, this 

notification or forwarding of the reviewed permit can be done automatically, via 

EMRS2, in a preset e-mail. If the origin State elects to use their own information 

management system for permitting, they must also have a mechanism to 

document the notification to the destination State that a permit has been reviewed 

by the origin State. If needed, in a large outbreak, an established National 

Permitting Unit can also streamline this process for origin State(s).

5.4.1 Specific Permit

Typically specific permits are for intrastate movements, so no additional 

notification is required. In rare cases, specific permits may be issued for interstate 

movement—for example, when a Control Area borders a neighboring State, and 

materials need to be moved for disposal. While the origin State notifies the 

destination State of the reviewed permit, this should not be the first the destination 

State is informed of the need to make this movement.

For specific permits for interstate movement, State Animal Health Officials 

and/or APHIS officials communicate as early as possible about the need for 

movement, mitigating procedures, and agreement on the movement. Because of 

the risk of disease transmission for movements from Infected, Suspect, and 

Contact Premises, the reviewed permit notification is just the formal, finalized 

request that this movement can occur—the foundation of this agreement and 

collaboration between the two States must be established well before this step in 

the process.

5.4.2 Continuity of Business Permit

COB permits (both operational and SFS) are frequently interstate, requiring the 

origin State to notify the destination State that there is a reviewed permit. 

Reviewing a pending permit for requirements (Step 3), being notified that there is 

a reviewed permit (Step 4), or accepting or acknowledging this notification 

Permit Request Accepted Permit 

Request Pending Permit Reviewed Permit Approved Permit
 

February 2017 5-7 

(Step 4) at no point means that the destination State has approved the permit. The 

permit approval comes in Step 5.

5.5 STEP 5: DESTINATION STATE APPROVES 

OR DENIES PERMIT

For any permit that is proposing interstate permitted movement—whether specific 

or COB (operational or SFS)—the destination State always has the opportunity to 

approve or deny the reviewed permit that is issued by EMRS2, after the reviewed 

permit notification is sent in Step 4. When a reviewed permit is approved by the

destination State, it becomes an “Approved Permit” (Figure 5-7). If the permit is 

denied, the permit process ends. If the destination State approves the reviewed 

permit, the destination State enters an “approved” date and an “expiration” date. 

Figure 5-7. Status: Approved Permit

When there are criteria required for the permit, like diagnostic testing results, the 

destination State can elect to review any/all documentation related to these criteria 

and, importantly, enter any conditions for the permit/permitted movement into the 

EMRS2 record. Supplementary, required documentation can be sent to the 

destination State directly by the producer or origin State; however, it is preferable 

that any such documentation is uploaded in EMRS2 for all parties to review.4 It is 

important to remember that requirements for permits may change throughout the 

outbreak. When approved, the EMRS2 permit record also lists the official that 

approves the request for the destination State.

5.5.1 Diagnostic Test Results

Diagnostic test results should be messaged from the laboratory directly to EMRS2 

for permitted movements; in addition to requiring more time and increasing the 

opportunity for error, diagnostic laboratory results that are not messaged directly 

to EMRS2 may not be received and matched to a premises in time to make a permitted movement in a timely manner. In the movement record, there is the ability 

to record and link the laboratory accession number and date to each and every 

permitted movement that occurs. In addition, there is a field in the Gateway that 

 4 In the near future, it may also be possible for the producer to upload documents into the 

Gateway, such as a list of required control measures that the premises has implemented. Please 

note: test results should be messaged from the laboratory; not uploaded as documents.

Permit Request Accepted Permit 

Request Pending Permit Reviewed Permit Approved Permit
 

February 2017 5-8 

says “negative PCR results,” where the date of the negative PCR results should be 

entered by the producer. 

5.5.2 Concurrence of Destination Premises

In addition to approving the permit from a State level, it is the responsibility of 

the destination State to confirm with the destination premises that the permitted 

movement from the origin premises and origin State is acceptable to the destination premises, and that the destination premises is willing to accept the movement. 

The destination premises, based on applicable State/Tribal/local authorities, may 

have the ability to reject a reviewed permit. At this stage, rejection by the destination premises—through communication with the destination State—results in a 

denied permit. State(s) may have specific communication procedures, processes, 

and/or a form to confirm the acceptability of the movement with destination 

premises prior to the approval of the reviewed permit.5

5.5.3 Revoking a Permit

It is important to note that if the epidemiological situation changes, or at the 

destination State’s discretion, a permit may be revoked at any time. States are 

encouraged to make their decisions based on the best science- and risk-based 

information available during an FAD outbreak. Both destination and origin States 

can revoke a permit in EMRS2, or can contact EMRS2 personnel or the unified 

Incident Command to revoke a permit. 

5.5.4 Bulk Approval

In some cases, States may need assistance to rapidly approve many permit 

requests—this occurred during the 2014–2015 HPAI outbreak. If necessary, the 

National Permitting Unit can help destination States approve large quantities of 

permit requests rapidly, acting on behalf of the State through careful 

communication and collaboration.

5.6 STEP 6: DESTINATION STATE NOTIFIES ORIGIN 

STATE OF DECISION

When a destination State approves a reviewed permit, as soon as it is approved, 

Step 6 quickly follows. For any reviewed permit that requires destination State 

approval, the destination State must notify the origin State whether they approved 

or denied the reviewed permit. This formal notification also serves as further 

documentation in EMRS2 that the destination State received notice of a reviewed 

 5 While the destination State confirms the acceptability of the movement with the destination 

premises, it is common for an origin premises and destination premises to communicate independently regarding the movement and mutual desire to make the permitted movement during an 

outbreak. 
 

February 2017 5-9 

permit and responded. This step is critically important so that States do not 

subsequently question if movements were made without prior approval.

This notification can be sent by EMRS2; as soon as the destination State approves 

the reviewed permit (creating an approved permit), the origin State receives an 

automated e-mail that there is now an approved permit. In high-volume situations, 

the origin State may elect not to receive automated e-mail messages since they 

will be checking the permit queue frequently. If the permit request was initiated in 

the Gateway, it will then appear as “approved” in the Gateway for the producer to 

see. 

5.7 STEP 7: ORIGIN STATE/UNIFIED INCIDENT 

COMMAND ISSUES PERMIT

For approved permits, Step 7 also takes place in rapid succession to Step 6: once 

the reviewed permit is granted approval and the destination State notifies the 

origin State of an approved permit, the permit can be created in EMRS2 and 

issued immediately. For specific permits, the unified Incident Command or origin 

State personnel familiar with EMRS2 typically produce the permit form in 

EMRS2. For COB permits (operational and SFS), the origin State may create the 

permit form in EMRS2. Reach-back assistance can always be requested for 

permitting support.

EMRS2 generates physical permits (electronic PDF forms that can be printed) 

through templates, which easily puts the origin and destination premises as well 

as relevant information (e.g., permit number, issuance date, conditions). There is a 

list of permit templates in EMRS2 that can be selected for use: origin States can 

supply their own permit templates to EMRS2 personnel (ideally ahead of the 

outbreak) for use. This allows the State to put their State-specific language and 

logo on the permit if desired. 

This process can be completed in bulk for approved permits so it is not time 

consuming for large permit volumes. These PDF permits can then be distributed 

quickly to the origin State, destination State, as well as the producer. If needed, 

origin States can also attach diagnostic testing information to these permits for 

distribution to the producer and/or destination State. As soon as the permits are 

issued from EMRS2, if they were requested through the Gateway, they are also 

available in the Gateway as a PDF attachment so the producer has easy access to 

their approved permits; the producer receives an e-mail as soon as the PDF is 

attached in the Gateway. 

5.8 STEP 8: PERMITTED MOVEMENT OCCURS

Once a permit is approved, specific conditions are met, and notification of the 

forthcoming permitted movement has occurred (either by the unified Incident 
 

February 2017 5-10 

Command and/or State personnel entering the movement into EMRS2, or the 

producer entering the movement into the Gateway, depending on the type of 

permit), the movement itself can occur.6 This movement may occur once 

(common for specific permits), or multiple times (common for COB permits), as 

recorded in the permit. Each permitted movement (if there is more than one for a 

given permit) should be entered in EMRS2 or the Gateway.

Please note that while the destination State must approve each permit, once the 

permit is approved, the destination State does not approve each individual 

movement if there are multiple movements associated with the permit (any type) 

unless they have specified that each movement must be approved in the 

conditions of the permit (Step 5). 

5.8.1 Specific Permit

Specific permits are more likely to be one-time permitted movements, or multiple 

permitted movements over a short time-span. Each permitted movement is 

entered into EMRS2 by the unified Incident Command and/or State personnel 

with the support of EMRS2 personnel as requested. Movements should always be 

entered before the movement actually occurs. 

5.8.2 Continuity of Business Permit

For permitted movements associated with COB permits (operational or SFS) 

entered in the Gateway, as soon as a permit is approved, movements (one or 

multiple, depending on the permit) can be added in the Gateway by the producer. 

All requirements for a permitted movement must be met prior to movement.

Again, all movement notifications should be entered prior to movement. When 

there is an approved permit and a permitted movement is added, the status of the 

permit becomes “Movements in Progress.” Figure 5-8 illustrates entering 

movements into the Gateway. 

 6 An automated email will notify the origin State and destination State that a movement has 

been entered; these emails can be disabled as desired.
 

February 2017 5-11 

Figure 5-8. Entering Movements Associated with a COB Permit in the Gateway

At any time, the destination State—and origin State—can review the 

documentation associated with the permit or with the permitted movements where 

there is defined permit/movement criteria. In addition, the destination State can 

request to receive an automated e-mail from EMRS2 that indicates when a 

permitted movement has been entered in the Gateway by a producer. However, 

producers can enter permitted movements into the Gateway and make these 

permitted movements as specified on the approved COB permit (operational or 

SFS) without further approval.

It is the responsibility of the producer to understand permit requirements and 

ensure they meet all of the permit criteria with every movement and have all 

documentation required by the COB permit criteria if it is requested. It is also the 

producer’s responsibility to ensure that all results of any required testing is 

entered prior to movement (negative test result dates are noted in the Gateway), 

along with the date of the movement and the amount of the item moved. It is the 

responsibility of the destination State to review this documentation and request 

documentation from the origin State/producer when necessary. 

In the Gateway, when all movements are completed for a given COB permit, the 

status will move to “Movements Completed” and the permit will no longer be 

visible. If a producer needs to make additional movements, they must request a 

new permit.

5.8.3 Moving Without a Permit

In an FAD outbreak, moving without a permit can cause inadvertent disease 

transmission to naïve premises and threaten the control, containment, and 

eradication efforts. Moving without a permit may be punishable by applicable and 
 

February 2017 5-12 

relevant local, county, State, Tribal, and/or Federal law. Producers and owners 

must be familiar with authorities, laws, and regulations in their jurisdictions.

5.9 SUMMARY OF PERMITTING PROCESS

5.9.1 All Permit Types

Figure 5-9 illustrates the permitting process for all types of permits in very 

general terms, not including the use of the Gateway. Figure 5-9 summarizes the 

8 steps.
 

February 2017 5-13

Figure 5-9. Overview of the Eight Steps in Permitted Movement 

5.9.2 Continuity of Business Permits in the Gateway 

Figure 5-10 provides a more specific figure that illustrates the process for COB 

permits (operational and SFS) when producers register in the Gateway, request 

permits through the Gateway, and enter movements into the Gateway. 

Destination State 

reviews and denies 

permit and notifies 

the origin State of 

their decision 

Unified Incident Command or 

Producer submits permit request

Unified Incident Command or 

origin State reviews pending permit 

and documentation 

The origin State or Unified 

Incident Command issues 

approved permit

Destination State 

reviews and 

approves permit 

and notifies the 

origin State of their 

decision 

Movement occurs

Step 1

Unified Incident Command or 

origin State enters/checks data in EMRS2 and accept 

permit request, creating a pending permit

Step 2

Step 3

Step 8

Step 7

Step 5

Origin State notifies the destination State of

reviewed permit

Step 4

Step 6
 

February 2017 5-14 

Figure 5-10. Overview of COB Permit Process Using the EMRS2 Customer Permit Gateway

Note: MV = movement

5.10 DATA ENTRY IN EMRS2 FOR PERMITTED 

MOVEMENT

There is complete documentation available on how to conduct permitting, 

including data entry and record creation, in EMRS2. This documentation includes 

information on creating a permit directly in EMRS2—as may be required, 

particularly for specific permits, by the unified Incident Command. It also 

provides guidance on entering the required fields for a permit request, such as 

Items to Permit, Item Class, Description of Items, and Units, and more detailed 

guidance on reviewing a permit in EMRS2. 

Additional documentation is also available for the Gateway, for producers that 

need further guidance on how to use the system, or how to enter large volumes of 

permit requests or movements quickly.

After quick data review, pending 

permit gets sent to the origin State 

for review in EMRS2.

 Approved permit issued; 

producers can now 

 download their permit 

from the Gateway.

The reviewed permit is then shared 

with the destination State to be 

either rejected or approved.

Producers can 

log-in at any time

to view status.

Move items

Destination 

State approves 

permit and 

notifies origin 

State.

Producers registered 

in the Gateway 

can create a 

permit request after

logging in.

Per the approved 

permit, producers

enter movement(s) 

in the Gateway.

MV1

MV2

MV3

 Movement(s) 

 Completed

 Permit 

 Completed

Destination 

State denies 

permit and 

notifies origin 

State.

Step 1

Step 2

Step 3

Step 4

Step 5

Step 8

Step 7

Step 6
 

February 2017 5-15 

For State(s) that use EMRS2 and need information for their personnel on 

reviewing and approving/denying permits in EMRS2, additional training or 

materials can be requested by contacting the EMRS2 National Coordinator or 

their EMRS2 Network Associate for their District. States should not hesitate to 

reach out if they feel as if they are unprepared to use EMRS2 in an outbreak and 

need additional assistance. In addition, at any point during an outbreak, APHIS 

VS personnel are ready to assist States as requested.
February 2017 A-1 

Appendix A

Update on the EMRS2 Customer 

Permit Gateway

At this time, the EMRS2 Customer Permit Gateway is ready to register poultry 

producers, based on the recent HPAI outbreaks. Registration for other types of 

industries will occur in the near future.

There is no charge for registering or using the Gateway.

IF YOU ARE A PRODUCER WANTING ACCESS... 

EAuthentication Level 1 credentials are required to access the EMRS2 Customer 

Permit Gateway. For more information on obtaining EAuthentication Level 1 

access, please go to www.eauth.usda.gov. You will need to select “Create an 

Account” on the left side of the page if you do not have an account already.

In particular, if you are concerned about making movements during an outbreak, 

it is an excellent idea to ensure your premises is registered in EMRS2 with a PIN. 

This helps to accelerate not only response activities but the permitting process.

As a condition of using the Gateway, you must attest that you understand the 

requirements for testing and special conditions, and enter the accession numbers 

and results of any testing required for individual movements, prior to those

movements, along with the date of the movement and amount of items moved.

At this time, requests to receive access to the Gateway will be prioritized to 

producers that have a potentially high volume of permitted movements. After 

your EAuthentication Level 1 credential has been approved, please contact 

Dr. Fred Bourgeois (Fred.G.Bourgeois@aphis.usda.gov) to request an account. In 

this e-mail, you need to include the following information:

 First name, middle initial, last name

 Title

 E-mail address you used for your EAuthentication account (this MUST be 

the same e-mail)

 Company affiliation

 Complex affiliation (e.g., for poultry premises where the complex has a 

specific affiliation in addition to a company affiliation). 
 

February 2017 A-2 

ONCE YOU GAIN ACCESS... 

Producers can click on their profile (Figure A-1) to see the premises that they are 

able to access. These are the premises for which you can request permits; it also 

allows you to see permits approved for these premises in the gateway.

Figure A-1. User Profile in the Gateway

As seen in Figure A-1, the menu on the left allows you to navigate from your 

profile, to premises access requests (for other premises you manage), to the 

address book, and to the location where permit requests can be made. 

Clicking on the premises access requests will show the status of your requests for 

accounts (corporate or network) or individual premises. You can request access 

for new premises or accounts here; when you first sign up, you will already have 

access to premises that have been created in EMRS2 that are associated with your 

account (Figure A-2). 

Figure A-2. Premises Access Requests
 

February 2017 A-3 

IF YOU ARE A STATE THAT USES EMRS2,

AND ARE WONDERING HOW THIS CHANGES YOUR 

PERMITTING PROCESSES... 

The EMRS2 Customer Permit Gateway is intended to reduce data-entry time and 

improve the efficiency of the permitting process. Encourage producers in your 

State, particularly those that may have a high volume of movements in an 

outbreak, to ensure their premises is in EMRS2 (has a national premises ID) and 

that they are registered in the Gateway.

During an outbreak, producers can submit permit requests directly through the 

Gateway instead of contacting State staff. Additionally, they can enter the 

required permit request information directly into the Gateway, so State(s) only 

have to review the data entered to (1) ensure it is complete, and (2) ensure the 

request is appropriate. This data, when entered into the Gateway, is also directly 

entered into EMRS2. 

In other words, for the State(s) that use EMRS2 to permit, the Gateway eliminates 

2 steps from the plate of State personnel and automates the process. It also helps 

with transparency—instead of producers calling and asking about the status of 

their permit, they can go into the Gateway and see the status of each permit 

request.

IF YOU HAVE FEEDBACK ON THE GATEWAY... 

Please let the EMRS2 National Coordinator or an EMRS2 Staff Specialist know! 

The Gateway has been thoroughly pilot tested with States that use EMRS2 as well 

as large poultry producers, but additional functionality may be considered and 

bugs should always be reported. The purpose of the Gateway is to make 

permitting easier, not harder, so feedback is always appreciated.
February 2017 B-1 

Appendix B

Abbreviations

APHIS Animal and Plant Health Inspection Service

CEAH Center for Epidemiology and Animal Health

COB continuity of business

EMRS2 Emergency Management Response System 2.0

FAD foreign animal disease

FAD PReP Foreign Animal Disease Preparedness and Response Plan

FMD foot-and-mouth disease

HPAI highly pathogenic avian influenza

ICG Incident Coordination Group

NAHEMS National Animal Health Emergency Management System

NIMT National Incident Management Team

NPIC National Preparedness and Incident Coordination

PIN premises identification number

QA quality assurance

QC quality control

QMC quarantine and movement control 

SFS Secure Food Supply

USDA U.S. Department of Agriculture

VS Veterinary Services