EN    EN EN 
 
EN    EN  COMMISSION OF THE E UROPEAN COMMUNITIES 
Brussels, 10.9.2008 
COM(2008) 545 final 
  
COMMUNICATION FROM THE COMMISSI ON TO THE COUNCIL, THE 
EUROPEAN PARLIAMENT, THE EU ROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMI TTEE OF THE REGIONS 
ACTION PLAN 
 
for the implementation of th e EU Animal Health Strategy 
 
EN 2   EN COMMUNICATION FROM THE COMMISSI ON TO THE COUNCIL, THE 
EUROPEAN PARLIAMENT, THE EU ROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMI TTEE OF THE REGIONS 
ACTION PLAN 
 
for the implementation of th e EU Animal Health Strategy 
Background 
In December 2004, the Commission launched an ex ternal evaluation to thoroughly review the 
outcomes of EU action on animal health and the di rection it may wish to take in the future. 
Based on the evaluation's results and a wide  stakeholder consultation, the Commission 
presented its Communication for a new anim al health strategy in September 20071. It was the 
first time that the Commission set out its stra tegic aims and objectives for animal health. 
The Council2, the European Parliament3 and the European Economic and Social Committee4 
have welcomed the development of a strategi c approach to EU animal health policy and 
support the overall aims, objectiv es and principles set out in the Animal Health Strategy, 
which covers the period 2007-2013. 
Based on the results of discussions in different  EU inter-institutional fora, the Commission is 
pleased to present its Action Plan on Animal H ealth to deliver the strategy’s vision over the 
next five years and beyond. This action plan should be read in conjunction with the EU 
Animal Health Strategy. The major items indicated  will become part of the yearly cycle of the 
Commission Legislative Working Programme (CLWP). It aims to simplify and improve the 
existing legislation, to better de sign new legislation and to reinforce the respect and the 
effectiveness of the rules, all this in line with th e EU proportionality principle and the EU's 
Better Regulation policy. Legislative proposals wi ll be systemically assessed, and a wide 
range of options - regulatory and non-regulator y – will be examined for each initiative in 
accordance with the Better Regula tion Action Plan of the Commission5. The Commission will 
involve stakeholders closely in the preparatio n and will use the impact  assessment system to 
prepare the new legislative initia tives. An indicative timeline is set out in this action plan for 
“legislative initiatives ”. The implementation of specific act ions announced in this Action Plan 
will therefore depend on the outcome  of each impact assessment.  
                                                 
1 COM 539(2007) adopted on 19 Sept 2007  
http://ec.europa.eu/food/animal/diseases/str ategy/docs/animal_hea lth_strategy_en.pdf 
2 Council Conclusions - Doc 15481/07 ADD 1  Adopted on 17 Dec 2007  
http://ec.europa.eu/food/animal/diseases/strategy/docs/council_opinion.pdf 
3 European Parliament Resolution - A6-0147/2008 adopted on 21st May 2008. 
4 Opinion of the European Economic and Social Committee NAT/376 (2008) adopted on 16 Jan 2008 
http://ec.europa.eu/food/animal/diseases/strategy/docs/EESC_opinion.pdf 
5 COM(2002)278. 
 
EN 3   EN Structure of the action plan 
The Action Plan is structured around four  main pillars or areas of activity: 
1. Prioritisation of EU intervention; 
2. The EU Animal Health framework; 3. Prevention, surveillance and preparedness; and 4. Science, Innovation and Research. General animal welfare legislati on will be revised in the context of the second pillar. Specific 
actions on animal welfare are already desc ribed in the Community Action Plan on the 
Protection and Welfare of Animals 2006-2010
6, which now forms an integral part of the EU 
Animal Health Strategy. Therefore this Acti on Plan does not provide details on particular 
actions for Animal Welfare. 
1. Prioritisation of EU intervention 
The world has changed considerably . Globalisation, climate change and the 
movement of people are factors favouring the spread of animal diseases, which 
makes controlling them more difficult. Dise ases such as BSE, which posed a great 
threat to animal and human health 10 year s ago, are now considered to be of much 
lower risk thanks to the measures subseque ntly put in place. However, there are new 
and emerging challenges to face such as di seases that have become more prevalent 
thanks to global warming. In short, there is now a need to re-evaluate priorities based on careful risk assessment and solid scientific advice. The Commission will develop a profiling and categorisation of animal di sease risks which will provide the basis to 
prioritise actions. The Commission will consider integrating this approach in the new EU Animal Health legal framework ( possibly CLWP 2010). Interventions and 
resources will be focused on diseas es with high public relevance. 
2. The EU Animal Health framework 
The main objective of the Animal Health Strategy is the development of a EU 
Animal Health Law. The Commission will prepare a legislative proposal by 2010. It will re-define inte rfaces with the acquis  on animal health, welfare, animal nutrition, 
food safety, public health, environmenta l protection, pharmaceutical products, 
common agricultural policy legislation and ru les established by relevant international 
organisations (OIE, Codex Alimentarius) as well as responsibilities – all this having 
an impact on subsequent financing rules. In the preparation of the Animal Health 
Law, the Commission will duly consider the recommendations of the European 
Parliament, the Council and the Europ ean Economic and Social Committee. In 
particular, it will analyse the recommendations concerning the obligations of animal 
owners (including animals kept for non-comm ercial purposes), disease prioritisation, 
vaccination, density of animals and farms,  the possible introduction of a system of 
audits for farms and the accreditation of veterinary schools.  
                                                
 
6 Community Action Plan on the Protection and Welfare of Animals 2006-2010  
http://ec.europa.eu/food/animal/welfare/actionplan/actionplan_en.htm 
 
EN 4   EN The Commission should also adopt by 2011  a legislative proposal introducing a 
harmonised EU framework for responsibility-  and cost-sharing to ensure that all 
players assume their responsibilities and pl ay a part in detect ing and eradicating 
disease. The Commission will consider basing the compensation system on the 
categorisation of animal diseases comb ined with risk-prevention incentives. 
Mechanisms to prevent distortions of competition between farmers in different Member States and solidarity aspects will also be considered. 
Furthermore, by the end of 2008 , the Commission will launch a consultation process 
to assess the need and opportunity fo r the development of a harmonised EU 
framework of financial guara ntees in the feed sector.   
The Commission will also strengthen its role  in negotiating EU export conditions and 
tackling export problems through the develo pment of locally based EU Market 
Access Teams drawn from Commission Dele gations, Member State Embassies and 
business organisations, where appropriate. 
Given the wide competence of the Community in OIE’s areas of act ivity, in the long 
term it is also desirable for the Community to become a member of OIE, as it has of the Codex Alimentarius. This will help reinforce coherence between standards, 
guidelines and other provisions  adopted by the OIE and ot her relevant international 
obligations of the European Community. S ubject to a consultation with the OIE on 
the possibilities to modify its legal statute,  the Commission will launch the process to 
obtain a Community membership of the OIE by 2010.  
3. Prevention, surveillance and preparedness 
Identifying problems before they emerge wh ile being ready to manage outbreaks and 
crises is a major EU objective.  
The Commission will encourage stakeholders  to develop EU biosecurity guidelines 
addressing isolation of new animals brought to  the farm, isolation of sick animals, 
regulation of the movement of people, anim als, and equipment, correct use of feed, 
and procedures for cleaning and, disinfecting facilities. It will explore the scope to 
make the fullest use possible of the curre nt "veterinary fund" and other Community 
related funds (e.g. rural development f und, structural fund, regional fund, fishery 
fund, mutual funds and research) when addres sing actions which will have a positive 
impact on animal health such as investments in farm infrastructures, training for farmers, farm advisory services, and implementation of legal standards. The 
Commission will also reflect , in the framework of the 2008/2009 budget review, on 
the role of the EU budget in promoting animal health. 
Better border biosecurity is particularly important in view of the fact that the EU is 
the world's largest importer of food, includi ng animal products. To improve the level 
of protection, import contro ls should focus on high risk imports. In 2010, the 
Commission will adopt a legislative proposal to deliver a better risk-based approach 
to border inspections and to better target illegal trade. The Commission will also, within the framework of its assistance programmes, continue efforts to help third countries  combat threats to animal health and food safety at the source and meet 
required sanitary standards.  
 
EN 5   EN Threat prevention and crisis management are aided by surveillance mechanisms such 
as the EU traceability framework. The fram ework comprises identification systems, 
labelling, and TRACES (t he Community TRAde Control and Expert System for 
traceability). The Commission will aim to create by 2011 a wider, integrated electronic system, with a unified database encompassing all elements of the current 
system under certification, animal identi fication, and animal health and welfare 
status. Based on the results of a feasibil ity study, the Commission may adopt by 2011 
a regulatory proposal for the introduction of bovine electron ic identification. 
In 2011, the Commission should have also  developed an Animal Diseases 
Information System (ADIS), compatible  with the OIE system, providing key 
information to the citizen on the animal health situation in Europe. 
When an emergency does occur, the ability of  the EU to take fast-track decisions is 
of high importance in limiting and controlli ng animal-related threats at EU level. The 
EU will continue to improve measures already in place and strengthen its rapid response network. It will also launch a refl ection on how to ensure the reinforcement 
of the EU antigen and vaccine banks.  
4. Science, Innovation and Research 
Science is at the core of the Community food safety policy. The new Animal Health 
Strategy aims at strengthening the scien tific foundation of the Community animal 
health policy. It increases the EU’s standing on the inte rnational stage and supports 
the EU in resolving differences with trading partners. It will also be the key to maintaining a high level of consumer  confidence and trust across the EU.  
The Commission will continue to use the be st available science in developing its 
animal health measures. The European F ood Safety Authority (EFSA) will continue 
to mobilise and coordinate scientific reso urces throughout the EU in order to provide 
the best scientific advice. 
Based on an external evaluation (2008- 2009), the network of Community and 
national reference laboratories will be further developed, thereby maximising the 
knowledge and expertise that  exists in Europe.  
The Commission has also welcom ed the initiative from Industry to bring together all 
partners including the agricultural sector, governments, veterinarians and 
international instituti ons with the creation of the T echnological Platform for Global 
Animal Health. The Commission is very confid ent that this industry driven platform 
will contribute to the development of be tter diagnostics, vaccines and medicines for 
the benefit of the whole animal health se ctor. The Strategic Research Agenda is a 
very valuable document as it results from a broad consensus among all stakeholders 
from academia, research institutions, indus try, producers, decision makers from the 
EU and also from relevant international organisations. It  has important consequences 
for animal health research a nd is in line with the Lisbon agenda which aims to make 
the EU an important science a nd technology driven society by 2010. 
The 7th Research Framework Programme (2007-2013) is an important tool in 
supporting this Strategic Research Agenda in to animal health i ssues. With that in 
mind, the Commission will work to stimulate scientific innovation and research, and to ensure sufficient funding in this ar ea through public-private partnerships.  
 
EN 6   EN With the support of the European Medicines Agency (EMEA), the Commission will 
ensure that a suitable framework at Comm unity level provides more incentives to 
manufacturers to develop new medicines and diagnosti c tools. It will launch a 
reflection on the policy on the use of author ised vaccines within the context of the 
Animal Health Law. It will al so facilitate the change and the addition of strains to an 
already authorised vaccine by proposi ng in 2008 a revision of the Variation 
Regulations (Regulations 1084/2003 and 1085/ 2003) and a revision of Annex 1 of 
Directive 2001/82/EC on the Community c ode relating to veterinary medicinal 
products in 2009. EMEA will also increase knowledge on the availability of EMEA 
Assistance to Small to Medium Sized En terprises and applicants for Minor Uses 
Minor Species products. 
Antimicrobial resistance remains an im portant source of concerns. EFSA will 
provide an opinion on food-borne antimicrobial  resistance as biological hazard in the 
following months. In the light of EFSA  opinion, the Commission may decide to 
strengthen its policy as re gards the surveillance and control of antimicrobial 
resistance (AMR) in zoonotic agents cau sed by the use of an tibiotics in animals.  
Finally, the Commission will provide supp ort for research in third countries 
(international cooperation), especially for e xotic diseases of high relevance or for 
neglected zoonoses which have a serious impact on those countries, within the 
framework of its research programmes. 
Partnership and communication 
Two key underlying principles apply to all th e work of the Commi ssion: partnership and 
communication.  
The action plan acknowledges the importance of  dialogue between citizens, civil society 
associations and the EC institutions (particul arly the Commission). This will facilitate the 
involvement of stakeholders, organisations an d citizens in the Eur opean decision making 
process.  
The strategy can only bring about real change if everyone involved in animal health works 
together and with all interested citizens. The EU will take advantage of existing collaborative 
efforts, encourage new initiatives and make more use of non-legisla tive alternatives to 
regulation. An "Animal Health Advisory Committ ee" is already in pl ace since February 2008. 
It includes representatives from non-governmental  organisations spanning the animal health 
sector, consumers and governments. The Committee will provide strategic guidance on the appropriate or acceptable level of animal or public health protection, and on priorities for 
action and communication. The Committ ee will also follow the strate gy's progress. It will be 
consulted on all impact assessments and advise the Commission on how best to deliver agreed 
outcomes.  
The Commission will carry out a mid-term review  and report to the Euro pean Parliament and 
the Council on the implementation of the Action Plan in 2011 which will reflect any possible changes in priorities. Stakeholders will be able to follow the progress of the different activities through a dedicated website. The Commission enc ourages all partners involved to consider 
how they may contribute to the action plan. 
 
EN 7   EN Summary of key actions and timetable  
Main actions Indicative date for 
completion 
1. Prioritisation of EU intervention  
Categorisation of animal diseases  2010 
2. The EU Animal Health framework 
EU animal Health Law (legislative proposal) 2010 
EU cost and responsibility sharing schemes (animal 
diseases) (legislative proposal) 2011 
Assessment for the need of an EU framework of 
financial guarantees in the feed sector (consultation process)  2008 - 2009 
Negotiation EU export condi tions: prioritisation and 
creation of locally based EU Market Access Teams 2008 - 2013 
Community membership of the OIE  2010 - 2011 
3. Prevention, surveillance and preparedness 
Development of EU biosecurity guidelines 2009 - 2013 
To explore possibilities of funding to finance and 
promote biosecurity measures and training for farmers 2008 - 2013 
TRACES: a wider, integrat ed electronic system 2011 
Electronic identification (bovine)  2011 
Revision of import legislation: risk-based approach to 
border inspections - targeting illegal trade 2010 
Animal Disease information System (ADIS) 2011 
Evaluation of the Community  Rapid response network 
(crisis)  2009 - 2010 
Reinforcement of the Community vaccine/antigen banks 2008 - 2009 
 
EN 8   EN 4. Science, Innovation and Research  
Mobilise and coordinate scie ntific resources with EFSA 
support 2008 - 2013 
Strategic Research Agenda (European Technology 
Platform on Animal Health) and the 7th Research Framework Programme (2007-2013)  2008 - 2013 
Evaluation of the Community re ference laboratories 2008 - 2009 
Surveillance/control of antimicrobial resistance 
(supported by an EFSA opinion)  2008 - 2010 
More incentives to develop new medicines and 
diagnostic tools with EMEA support - including a revision of the Variation Regulations (Regulations 1084/2003 and 1085/2003) 2008 - 2013 
 
2008 
Partnership and communication 
Animal Health Advisory Committee  February 2008 - 2013 
Mid term review and report  2011 
 
The implementation of legislative proposals announced in this Action Plan will depend on the 
outcome of each impact assessment.