Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions on a new Animal Health Strategy for the European Union (2007-2013) where “Prevention is better than cure” {SEC(2007) 1189} {SEC(2007) 1190}
Date: 2007-09-19
Institutions: European Commission
Subjects: animal disease, animal health, animal welfare, disease prevention, health legislation, health policy

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 19.9.2007 
COM(2007) 539 final 

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

A new Animal Health Strategy for the European Union (2007-2013) where “Prevention 
is better than cure” 

on 

{SEC(2007) 1189} 
{SEC(2007) 1190} 

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COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

on 

A new Animal Health Strategy for the European Union (2007-2013) where “Prevention 
is better than cure” 

Preamble 

In December 2004, the Commission launched an external evaluation to thoroughly review the 
outcomes of EU action on animal health and the direction we may wish to take in the future. 
A combination of circumstances made it imperative to re-evaluate our policy: 

• 

• 

• 

• 

The main elements of the existing policy were drawn up largely between 1988 and 
1995 when we were still a Community of twelve Member States; 

New  challenges  have  emerged.  Diseases  which  were  unknown  a  decade  ago  have 
appeared  -  SARS  is  an  example  -  while  others,  such  as  foot  and  mouth  disease, 
bluetongue and avian flu, have recently presented new challenges, reminding us that 
they remain very serious risks; 

Trading  conditions  have  also  changed  radically  with  the  volume  of  trade  in  animal 
products increasing greatly, both within the EU and with third countries; and  

Science, technology and our institutional framework have evolved substantially. 

A challenging EU Animal Health Strategy (2007-2013) 

Based on the evaluation results and the stakeholder consultation, the Commission is pleased 
to  present  its  proposal  for  a  new  EU  Animal  Health  Strategy  (2007-2013).  This  will  allow 
further debate in the EU inter-institutional fora, with Council and the Parliament expected to 
establish their positions by the end of this year. 

Overall,  the  strategy  encompasses  a  challenging  6  year  programme  of  work  aimed  towards 
clear outcomes:  

• 

• 

• 

• 

Prioritisation of EU intervention 

A modern and appropriate animal health framework 

Better prevention, surveillance and crisis preparedness 

Science, Innovation and Research  

The timetable for delivery of all the specific actions included in this strategy will depend on 
the position of the Council and the Parliament, and also on our human resources capacity.  

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1. 

Vision 

Our  vision  is  to  work  in  partnership  to  increase  the  prevention  of  animal  health 
related problems before they happen: “Prevention is better than cure”. 

2. 

Purpose 

The  strategy  provides  direction  for  the  development  of  animal  health  policy,  based 
on  extensive  stakeholder  consultation  and  a  firm  commitment  to  high  standards  of 
animal health. It will facilitate the establishment of priorities that are consistent with 
agreed  strategic  goals  and  the  revision  of,  and  agreement  on,  acceptable  and 
appropriate standards.  

3. 

Scope of the Strategy 

The concept of animal health covers not only the absence of disease in animals, but 
also the critical relationship between the health of animals and their welfare. It is also 
a pillar for the Commission's policy on public health and food safety. 

The strategy covers the health of all animals in the EU kept for food, farming, sport, 
companionship, entertainment and in zoos. It also covers wild animals and animals 
used in research where there is a risk of them transmitting disease to other animals or 
to  humans.  The  strategy  also  covers  the  health  of  animals  transported  to,  from  and 
within the EU. 

The  strategy  is  aimed  at  the  entire  EU,  including  animal  owners,  the  veterinary 
profession,  food  chain  businesses,  animal  health  industries,  animal  interest  groups, 
researchers  and  teachers,  governing  bodies  of  sport  and  recreational  organisations, 
educational facilities, consumers, travellers, competent authorities of Member States 
and the EU Institutions.  

The strategy builds on the current animal health legal framework1 in the EU and the 
standards  and  guidelines  of  the  World  Organisation  for  Animal  Health  (Office 
international  des  Epizooties  –  OIE).  It  will  aim  at  ensuring  consistency  with  other 
EU  policies  and  EU's  international  commitments.  It  will  guide  the  development  of 
new policies or guidelines and will enhance existing animal health arrangements in 
the Community based on scientific risk assessments and taking into account social, 
economic and ethical considerations. It will support the achievement of a high level 
of  environmental  protection  by  considering  the  impacts  on  the  environment  in  the 
development of the policy framework. 

4. 

Goals 

The  strategy  sets  out  some  challenging  aims,  not  just  for  the  EU  institutions  and 
Governments, but for all citizens, to improve animal health. 

The strategy’s goals are: 

1 

Including animal welfare measures. 

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• 

• 

• 

• 

Goal 1: to ensure a high level of public health and food safety by minimising 
the incidence of biological2 and chemical risks to humans; 

Goal  2:  to  promote  animal  health  by  preventing/reducing  the  incidence  of 
animal diseases, and in this way to support farming and the rural economy; 

Goal 3: to improve economic growth/cohesion/competitiveness assuring free 
circulation of goods and proportionate animal movements3; 

Goal  4:  to  promote  farming  practices  and  animal  welfare4  which  prevent 
animal health related threats and minimise environmental impacts in support of 
the EU Sustainable Development Strategy5. 

Simple and reliable performance indicators will help to measure progress towards 
the  strategy’s  goals,  guide  policy,  inform  priorities,  target  resources  and  focus 
discussion. They will be developed in consultation with stakeholders and improved 
over time as better veterinary and other data becomes available. They will cover both 
hard  indicators  of  animal  health  (e.g.  disease  prevalence,  number  of  animals 
eliminated)  and  softer  indicators  tracking  the  confidence,  expectations  and 
perceptions  of  European  citizens  It  must  be  recognised  that  uncertainties  and 
unforeseeable events may affect achievement of the performance indicators. 

5. 

Action Plan  

The action plan will aim to explain the significant breadth of activity which is being 
carried  out  or  will  be  carried  out  at  EU  level  through  legislative  proposal  or  other 
mechanisms in order to deliver the different strategy goals over the next six years. 

The  action  plan  to  deliver  the  strategic  goals  (section  4)  will  focus  on  four  main 
pillars, or areas of activity:  

1. 

2. 

3. 

4. 

Prioritisation of EU intervention,  

The EU animal health framework,  

Prevention, surveillance and preparedness, and  

Science, Innovation and Research.  

Two  key  underlying  principles  will  apply  to  all  the  work  of  the  Commission: 
partnership and communication: 

2 
3 

4 

5 

Referring to animal diseases, food borne diseases and biotoxins. 
The movement of animals has to reach a balance where the free movement of animals is proportionate 
to the risk of introducing and spreading of diseases and to the welfare of the animals during transport. 
In  coherence  with  the  Communication  from  the  Commission  to  the  European  Parliament  and  the 
Council  on  a  Community  Action  Plan  on  the  Protection  and  Welfare  of  Animals  2006-2010  - 
COM(2006) 13) 
The European Council adopted in June 2006 an ambitious and comprehensive renewed EU Sustainable 
Development Strategy - DOC 10917/06. 

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Working in partnership 

A partnership approach built on trust, openness and a willingness to take difficult decisions is 
essential for success. The strategy can only bring about real change if everyone involved in 
animal  health  works  together  and  with  all  interested  citizens.  There  are  many  excellent 
examples of partnership in action in the current Community Animal Health Policy. We must 
take  advantage  of  existing  collaborations,  encourage  new  initiatives  and  make  more  use  of 
non-legislative  alternatives  to  regulation.  An  "Animal  Health  Advisory  Committee"6  will 
include representatives from non governmental organisations across the animal health sector, 
consumers  and  governments.  The  "Animal  Health  Advisory  Committee"  will  provide 
strategic guidance on the appropriate/acceptable level of animal or public health protection, 
and on priorities for action and communication. It will also follow the strategy's progress: it 
will  be  consulted  on  all  impact  assessments  and  will  advise  the  Commission  on  the  best 
means of delivering agreed outcomes. 

In collaboration with the Council, the Commission will organise a conference to present the 
strategy's progress (mid term review – 2010). 

Communication 

Animal  health  is  a  concern  for  all  European  citizens.  This  concern  stems  from  the  public 
health and food safety aspects of animal health but also from the economic costs that animal 
disease  outbreaks  can  trigger  and  the  animal  welfare  considerations,  including  the 
implications  of  disease  control.  The  Commission  is  committed  to  pursue  its  objectives  of 
clarity  and  transparency  when  communicating  with  consumers  and  stakeholders  what  the 
EU is doing and why. European and national entities need to cooperate to ensure a coherent 
message and enhance public confidence. 

Communicating the strategy 

There  will  be  annual  reporting  on  the  strategy’s  progress  and  wider  communication  of 
policies and initiatives. Communication will take different forms depending on the message 
that is being delivered and the target audience. It will include participation in international or 
national events, developing relationships with the media and non governmental organisations, 
improving websites to include comprehensive relevant information for all interested parties, 
checklists, manuals and a forum for Questions & Answers.  

Communication in case of crisis 

Good communication on risk to stakeholders/consumers is also of utmost importance, as an 
incorrect  public  perception  of  risk  may  force  the  regulator  to  take  unjustified  or 
disproportionate  measures  in  the  case  of  a  crisis.  The  Animal  Health  Advisory  Committee 
will advise the Commission to further improve communication during a crisis situation. 

6 

The Animal Health Advisory Committee will be created as a working group of the Advisory Group on 
the Food Chain and Animal and Plant Health – Article 4.2 of Commission Decision 2004/613/EC of 6 
August 2004.  

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Pillar 1 

Prioritisation of EU intervention 

The  new  Animal  Health  strategy  must  be  seen  as  an  integrated  risk  assessment  and 
management strategy focusing on biological and chemical risks of EU relevance 

1.1. 

Categorisation of animal-related threats 

Profiling and categorisation of biological and chemical risks will provide the basis 
for decisions on where the responsibility for action lies.  

Identified threats to animal health must be assessed to determine: 

• 

• 

• 

their relevance to the four high level goals of the EU strategy;  

the “acceptable level of risk” for the Community;  

the relative priority for action to reduce the risk.  

For serious threats to human health and the rural economy, we must strive to reduce 
the risk to a negligible level. But zero risk cannot be achieved. So even when dealing 
with high priority threats where a negligible level of risk is sought, we must analyse 
the cost-benefit and cost-effectiveness of possible interventions to ensure best use of 
limited resources, both in terms of EU funding and cost to producers. This is critical 
to  our  food  supply  and  key  to  the  sustainability  of  the  environment  and  the  rural 
economies of Member States. 

Where  a  potentially  serious  threat  to  health  is  identified,  but  there  is  scientific 
uncertainty  about  its  likelihood  of  occurring,  proportionate  provisional  measures 
should be taken to ensure a high level of health protection pending further scientific 
information clarifying the extent of the risk (the precautionary principle). 

Profiling and categorisation of risks is an important and difficult process, which has 
already  begun  at  EU  level.  Decisions  must  be  based  on  sound  science  and 
appropriate  risk  assessment  (pillar  4).  But  science  alone  will  not  provide  all  the 
answers.  The  Commission  will  therefore  engage  representatives  of  all  interested 
parties  in  the  risk  management  process  to  gain  the  widest  possible  agreement  and 
shared responsibility for the judgements made and to deliver agreed objectives. 

Targets  will  be  set  at  community  level,  national  level  and,  where  appropriate, 
regional  level.  Suitable  performance  indicators  will  allow  the  assessment  of 
progress over the next six years. 

The  appropriate  amount  of  resources  to  be  applied  to  achieve  the  desired  level  of 
protection, and the development of a responsibility and cost sharing scheme, will be 
based on the categorisation of biological and chemical risks. 

Expected outcomes: 

• 

Categorisation  of  biological  and  chemical  risks  according  to  level  of 
relevance for the EU  

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• 

• 

• 

Agreement on the acceptable level of risk  

Setting of priorities, quantifiable targets and performance indicators 

Setting of the amount of resources to be committed to identified threats 

Pillar 2 

A modern animal health framework 

Towards  a  single  regulatory  framework,  with  a  greater  focus  on  incentives  rather  than 
penalties, consistent with other EU policies and converging to international standards 

2.1. 

A single and clearer regulatory framework 

The  impact  of  epidemic  livestock  diseases  such  as  Avian  Influenza  or  Foot  and 
Mouth  Disease  can  be  devastating  on  farmers  and  the  economy  as  a  whole  –  in  a 
specific country, a continent or even globally.  

International organisations such as OIE and the World Bank consider Animal Health 
as  a  global  public  good.  The  EU  considers  the  maintenance  of  “Animal  Health 
Services”7  in  line  with  international  standards  (in  terms  of  legislation,  structure, 
organisation, 
sector  and 
the 
paraprofessionals) as a minimum goal. This is a public investment priority. 

resources,  capacities, 

the  private 

role  of 

Constantly evolving legislation is one of the main mechanisms for EU intervention in 
animal  health,  both  in  the  pursuit  of  Community  policy  and  to  implement 
international  obligations.  Better  regulation  principles  will  be  applied  through  a 
strengthened partnership and enhanced communication.  

The future strategy will aim at replacing the existing series of linked and interrelated 
policy actions by a single policy framework. The Animal Health Strategy will strive 
for  a  single  clear  regulatory  framework  converging  as  far  as  possible  with  the 
OIE/Codex  recommendations/standards  and  guidelines.  This  regulatory  framework 
will include animal nutrition and animal welfare measures. 

is 

The  European  Commission 
that  unjustified 
responsible 
national/regional  rules  do  not  constitute  a  potential  obstacle  to  the  internal  market. 
However, the EU regulatory framework also needs to be suitably flexible to allow for 
judgements  of  equivalence,  settlements  of  dispute  and  efficient  responses  to 
changing  situations.  Specific  attention  must  be  paid  to  the  position  of  animals  kept 
on a non-commercial basis (i.e. as a hobby) and wildlife, insofar as this impinges on 
central goals8. 

for  ensuring 

Roles and responsibilities will be clearly defined. An incentive-oriented approach is 
needed at all levels. A revision of the current co-financing instrument is required. 

7 

8 

Means  the  Competent  Administration,  all  the  Competent  Authorities,  and  all  persons  authorised, 
registered or licensed by the Animal Health statutory body (as defined in the OIE code). 
e.g.  Natura  2000  which  is  established  through  Council  Directive  92/43/EEC  of  21  May  1992  on  the 
conservation  of  natural  habitats  and  of  wild  fauna  and  flora,  and  Council  Directive  79/409/EEC  of  2 
April 1979 on the conservation of wild birds. 

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More effective procedures will be used for a number of Commission Decisions. The 
SCFCAH9 will focus on Decisions in which MS and stakeholders have a key interest. 
Non-regulatory tools must be encouraged as far as possible.  

Expected outcomes: 

An EU Animal Health General Law: 

• 

• 

A  single  horizontal  legal  framework  will  define  and  integrate  common 
principles  and  requirements  of  existing  legislation  (intracommunity  trade, 
imports, animal disease control, animal nutrition and animal welfare) 

Existing legislation will be simplified and replaced by this new framework as 
appropriate,  seeking  convergence  to  international  standards  (OIE/Codex 
standards)  while  ensuring  a  firm  commitment  to  high  standards  of  animal 
health. 

2.2. 

Developing efficient cost and responsibility sharing schemes  

Animal diseases 

Existing  compensation  schemes  are  mainly  focused  on  providing  a  compensation 
mechanism for animal owners in the event of a disease outbreak. Appropriate sharing 
of  costs,  benefits  and  responsibilities  could  contribute  significantly  to  the  key 
objectives of the strategy. It could contribute to preventing major financial risks for 
Member States and the Community by providing incentives for prevention of animal 
related  threats.  It  would  also  seek  to  strengthen  Community  economic  and  social 
cohesion and specifically to reduce the gaps between levels of animal health in the 
various regions. 

On  the  one  hand,  Governments  have  an  important  role  to  play  in  securing  our 
external borders against disease incursions and leading the response to outbreaks of 
exotic  disease.  Provision  of  state  compensation  is  also  of  utmost  importance  to 
compensate for private property destroyed for the public good at least to the extent 
that  the  owner  is  not  responsible  for  the  outbreak.  In  this  the  protection  of  public 
health is a key consideration.  

On the other hand, responsibility for the health of animals lies primarily with animal 
owners  and  collectively  with  the  industry.  As  a  result,  animal  owners  and  industry 
are better placed than others to deal with many of the risks of animal diseases. 

There  is  a  clear  recognition  that  the  policy  needs  the  full  participation  and 
commitment of all parties, including the insurance sector. Ownership of risk is a key 
issue  and  new  mechanisms  must  be  introduced  to  involve  major  stakeholders  in 
decision-making on significant policy issues, in particular for emergency measures. 

A feasibility study will be necessary to reflect on concrete proposals for the gradual 
development of an EU harmonised scheme. 

9 

SCFCAH - Standing Committee on the Food Chain and Animal Health. 

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Feed sector 

In  the  feed  sector,  when  large-scale  incidents  occur,  public  authorities  tend  to  be 
heavily burdened with the costs of withdrawal, transport, storage and destruction of 
feed,  food  and  animals,  as  well  as  the  costs  of  analysis  and  other  administrative 
outlay.  Feed  business  operators  are  liable  for  any  infringements  of  the  relevant 
legislation on feed safety and for the direct consequences of the withdrawal from the 
market,  treatment  and/or  destruction  of  any  feed,  animals  and  food  produced  there 
from10. In 2007, the Commission will submit a report to the European Parliament and 
the  Council  setting  out  the  possibilities  for  an  effective  system  of  financial 
guarantees for feed business operators. 

Expected outcomes: 

• 

Animal  Diseases:  development  of  an  harmonised  EU  framework  of  the 
criteria for responsibility and cost-sharing, on the basis of:  

◦ 

◦ 

◦ 

◦ 

◦ 

◦ 

◦ 

◦ 

Categorisation  of  biological  and  chemical  risks  according  to  EU 
relevance (pillar 1). 

Incentives encouraging risk-reducing behaviour from all parties involved. 

Possibility of covering indirect losses. 

Balancing  costs  (public/private  funding)  and  responsibilities.  Solidarity 
aspects have to be considered. 

Prevention of distortion of competition. 

Compatibility with EU international commitments. 

Effectiveness  and  flexibility  of  implementation  at  national  or  regional 
level. 

Consultation mechanism between cost sharing partners, especially during 
crisis.  

2.3. 

Community influence on international standards  

is 

EU 

already 

legislation 

on  OIE/Codex 
The 
recommendations/standards  and  guidelines,  respecting  its  commitments  within  the 
framework of the WTO Agreement on the application of sanitary and phytosanitary 
measures (SPS Agreement). However, there are areas where the EU could improve 
its  convergence  with  these  standards  (e.g.  disease  status,  imports,  quality  and 
evaluation of Veterinary Services, laboratory testing, animal nutrition, vaccination).  

largely 

based 

Where  OIE/Codex  have  adopted  standards,  the  EU  will  comply  with  these  when 
applying  animal  health  measures.  However,  if  there  is  a  scientific  justification,  the 

10 

Article 8 of Regulation (EC) No 183/2005 of the European Parliament and of the Council of 12 January 
2005 laying down requirements for feed hygiene. 

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EU may introduce or maintain sanitary or phytosanitary measures which result in a 
higher level of sanitary or phytosanitary protection. The EU will continue to be very 
active in promoting its own standards in the OIE/Codex and ensure as far as possible 
that  they  are  also  adopted  accordingly  at  international  level.  It  is  necessary  to 
encourage other members of the OIE/Codex to use the international standards in the 
setting of their own standards.  

With  regard  to  imports,  the  EU  should  improve  communication  concerning  its 
requirements  vis-à-vis  its  trading  partners.  The  EU  should  also  build  up  its 
negotiating  strength  on  matters  relating  to  exports.  The  EU  should  endeavour  to 
encourage  other  members  of  the  OIE/Codex  to  improve  the  alignment  of  their 
legislation to international recommendations/standards and guidelines and to ensure 
uniform interpretation and avoid potential distortion in international competition. 

Given that the Community has exclusive competence in almost all of OIE’s areas of 
activity, 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  other 
relevant international obligations of the European Community. 

Expected outcomes: 

• 

• 

Support of EU positions on the basis of sound scientific evidence, whenever 
necessary. 

Community membership of the OIE in order to strengthen the active role of 
the Community. 

2.4. 

Towards an export strategy at community level 

The high level of animal health within the EU will make a key contribution to growth 
and  jobs  in  Europe  by  ensuring  that  farmers,  European  companies  remain 
competitive  and  that  they  have  genuine  access  to  the  export  markets11.  We  need  to 
ensure that European companies , often small and medium-sized companies (SMEs), 
are able to compete fairly in those markets. Unjustified sanitary barriers tend to be 
increasingly  important.  They  are  complicated,  technically  challenging  and  time 
consuming to detect, analyse and remove.  

Import  conditions  for  food  of  animal  origin  and  animal  products  are  largely 
harmonised. However, this is not the case for exports. 

The  Commission  has  exclusive  competence  for  negotiation  of  bilateral  agreements 
with third countries in the SPS field. For certain third countries, common EU export 
requirements  are  specifically  defined  in  bilateral  veterinary  agreements12.  Ongoing 

11 

12 

Communication  from  the  Commission  to  the  Council,  the  European  Parliament,  the  European 
Economic  and  Social  Committee  and  the  Committee  of  the  Regions  on  "global  Europe:  a  stronger 
partnership to deliver market access for European exporters" - COM(2007) 183, 18.4.2007.  
Including Chile, Mexico, USA, Canada, New Zealand and European Free Trade Association countries. 

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trade  negotiations,  in  particular  the  negotiations  for  Free  Trade  Agreements  with 
Korea, India and ASEAN13 include SPS chapters.  

The  Commission  is  in  a  discussion  with  Member  States  on  the  implications  of  the 
implementation of existing and future policy on SPS negotiations with third countries 
in  relation  to  exports.  The  aim  is  to  ensure  respect  of  the  Treaty  obligations  in 
relation  to  the  Common  Commercial  Policy  and  to  present  a  unified  Community 
approach in negotiations with third countries.  

The  new  EU  Animal  health  strategy  will  contribute  to  adapt  the  mix  of  policy 
instruments  to  deliver  on  export  market  access,  to  revive  the  partnership  with 
stakeholders, and to prioritise in order to make the best use of resources. 

Expected outcomes: 

• 

• 

• 

A  more  efficient  and  transparent  service  for  businesses,  including  SMEs, 
results-oriented  and  focussing  on  concrete  sanitary  problems  that  EU 
businesses face in third country markets.  

Better  prioritisation  of  actions  against  sanitary  barriers  in  order  to  target 
human resources and to achieve the greatest economic impact. 

A strengthened role in negotiating EU export conditions and tackling export 
problems through the development of locally based EU Market Access Teams 
drawn  from  Commission  Delegations,  Member  State  Embassies  and  business 
organisations, where appropriate. 

Pillar 3 

Animal-related 
preparedness 

threat 

prevention, 

surveillance 

and 

crisis 

Identifying problems before they take hold, and being ready to manage outbreaks and crisis 

3.1. 

Supporting on-farm biosecurity measures 

Biosecurity refers to those measures taken to keep diseases out of populations, herds, 
or  groups  of  animals  where  they  do  not  currently  exist  or  to  limit  the  spread  of 
disease within the herd. 

Successful  biosecurity  measures  must  address  isolation  of  new  animals  brought  to 
the  farm,  isolation of sick animals, regulation  of  the  movement  of  people,  animals, 
and  equipment,  correct  use  of  feed,  and  procedures  for  cleaning  and  disinfecting 
facilities.  

This responsibility lies with the animal owners, including hobby farmers. However, 
as  some  contagious  pathogens  may  easily  spread  from  one  farm  to  another  a 
collective  approach  must  be  taken  in  addressing  prevention  and  biosecurity 
measures. 

13 

Association of Southeast Asian Nations. 

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Effective  on-farm  biosecurity  measures  will  constitute  an  important  criterion  of 
zoning  and  compartmentalisation14  procedures  for  disease  control  and/or  trade 
purposes.  Disease  free  status,  biosecurity  measures,  animal  welfare  measures  and 
veterinary control will also be possible means of rating holdings and supporting the 
development of the responsibility and cost sharing scheme.  

Expected outcomes: 

• 

• 

Guidelines taking into account the level of risk associated with different types 
of  production  systems  and  species  (e.g.  intensive  production,  extensive 
production,  high  density  area,  hobby  farmers).  These  guidelines  will  be 
coherent with the EU animal health legal framework. 

Provision  of  funding  to  finance  and  promote  on-farm  bio-security  measures 
relating to infrastructures, via existing funds. 

3.2. 

Identification and Tracing 

The EU traceability framework (identification systems, labelling, and TRACES, the 
Community  TRAde  Control  and  Expert  System)  aims  to  improve  the  quality, 
accuracy,  availability  and  timeliness  of  the  provision  of  data  on  live  animals,  food 
from animal origin and feed. It allows for traceability across MS borders.  

Currently,  individual  identification,  e.g.  for  bovine  animals,  is  achieved  via 
identifiers, a paper-based system of animal passports and holding registers combined 
with national identification databases that are not connected between Member States. 
Traceability  for  live  animal  transport  is  achieved  via  a  paper-based  certification 
system in combination with TRACES. 

The gradual introduction of electronic identification raises the question of how, in the 
mid  to  long-term,  the  different  elements  of  the  traceability  system  for  live  animals 
can  be  combined  and  an  EU  integrated  electronic  system  developed.  Due  to  the 
cost/benefit  ratio,  small-scale  livestock  producers  face  specific  challenges  to 
introduce electronic identification. The future system should pay particular attention 
to the situation of SMEs, building on a thorough impact assessment. 

Increasing  the  accuracy  and  timeliness  of  this  data  should  result  in  improved 
information  for  veterinary  surveillance  and  better  ways  of  dealing  with  disease 
outbreaks, while efficiency should reduce costs both for industry and government. 

Expected outcomes: 

• 

TRACES  achieves  its  objective  of  becoming  a  single  portal  for  all 
veterinary matters. 

14 

Zoning and compartmentalisation are procedures implemented by a country under the provisions of the 
OIE Code with a view to defining subpopulations of different animal health status within its territory 
for  the  purpose  of  disease  control  and/or  international  trade.  Compartmentalisation  applies  to  a 
subpopulation when management systems related to biosecurity are applied, while zoning applies when 
a subpopulation is defined on a geographical basis. 

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• 

• 

Interoperability of national identification databases. 

Introduction of electronic procedures (longer term). 

◦ 

◦ 

◦ 

Feasibility  study  for  the  introduction  of  electronic  identification  (with 
particular focus on ruminants) on either a voluntary or compulsory basis. 

Introduction  of  electronic  certification  to  replace  paper  certification  for 
the movement of live animals (intra-community trade and imports). 

Creation of a wider, integrated electronic system, with a unified database 
encompassing  all  elements  of  the  current  system  under  certification, 
animal identification, and animal health and welfare status. 

3.3. 

Better border biosecurity 

The EU is the biggest food importer in the world. The Member States' responsibility 
in border control is to protect the community from potential animal and public health 
risks  arising  from  international  trade  of  live  animals  and  their  products.  The 
challenge is to improve border biosecurity without severely disrupting cross-border 
movement of people and agricultural goods. In fact, the main safety feature of border 
controls on declared imports for animal health purposes is the document check, and 
the  EU  is  dependent  upon  the  accuracy  and  honesty  of  the  declarations  in  these 
documents.  

Veterinarians  need  to  work  more  closely  with  customs,  both  at  border  inspection 
posts  and  at  points  of  entry  to  the  Community  where  goods  or  animals  may  enter 
illegally.  There  are  fundamental  questions  about:  the  assessment  of  risk;  trust 
between national governments; and what can and cannot be accomplished in border 
inspection facilities and other points of entry (efficiency/effectiveness). 

On the other hand, it may be difficult for certain developing countries to comply with 
EU standards and thus engage in trade. The EU should build on ongoing initiatives 
and  improve  cooperation  with  third  countries,  providing  them  with  technical 
assistance to help them to satisfy EU animal health requirements for imports and to 
fight against exotic diseases at source. 

Expected outcomes: 

• 

• 

• 

Revision of the current legislation and the development of a policy designed 
to  deliver  a  better  risk-based  approach  to  border  inspections  and  to  target 
illegal  trade.  Development  of  EU  based  risk  assessment  to  target  higher  risk 
consignments  (products/countries)  and  assist  in  selection  of  containers  to  be 
examined physically. 

To  optimise  the  coordination  of  agencies/services  regulating  imports 
(customs/veterinary services). 

To  make  travellers  aware  of  restrictions  and  of  their  responsibilities  and  to 
ensure proportionate enforcement. 

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• 

To  improve  risk  management  at  third  country  level  and  to  provide 
assistance  for  third  countries  (via  the  external  co-operation  instruments, 
training, knowledge sharing and support through regional expertise). 

3.4. 

Surveillance and crisis preparedness/management15 

Veterinary Surveillance 

Veterinary  surveillance  provides  early  warning  and  prompt  detection  of  animal-
related  threats,  together  with  tracking  and  analysis  of  the  way  diseases  occur  and 
spread. 

The information generated provides crucial scientific evidence for the EU institutions 
and governments to support decisions on prevention and control measures, as well as 
assessing  the  effectiveness  of  existing  approaches.  Surveillance  provides  the  wider 
public, farmers and pet owners with information which they and veterinary surgeons 
can use to decide how best to protect their own health and the health of their animals. 
It  is  also  essential  to  better  understand  and  assess  the  impact  of  climate  change  on 
animal health in order to enable better "adaptation" of the veterinary measures. 

Animal  keepers  and  veterinarians  also need effective training to be able to identify 
the signs of disease at an early stage. 

Emergency preparedness 

Animal-related  emergencies  must  be  dealt  with  swiftly  and  effectively  using  an 
agreed approach. The possibility for the Commission to take fast-track decisions for 
emergency action is of high value in limiting and controlling animal-related threats at 
EU level.  

In  response  to  ethical  concerns  and  the  growing  demand  for  improved  animal 
welfare,  the  EU  has  already  moved  to  a  more  flexible  approach  to  vaccination,  as 
well  as  improving  its  policy  to  control  major  animal  diseases.  To  decrease  the 
number  of  animals  eliminated  will  be  one  of  the  objectives  of  the  new  EU  animal 
health  policy  (goal  4).  However,  different  elements16  make  it  important  that  the 
decision to use vaccination is taken on a case by case basis.  

Preparation,  contingency  planning  exercises  and  implementation  of  emergency 
preparedness plans are the responsibility of the governments. These plans should be 
agreed in advance with the cost sharing scheme partners.  

A  key  factor  in  being  able  to  manage  an  outbreak  successfully  is  knowing  where 
animals and their products are, and controlling their movements. 

15 
16 

Including collaboration with third countries. 
Vaccine availability and effectiveness, demands for valid tests if possible differentiating infected from 
vaccinated  animals,  OIE  international  guidelines  and  possible  trade  implications,  cost-effectiveness 
analysis, possible risks related to the use of vaccines. 

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Expected outcomes: 

Surveillance: 

• 

• 

To  improve  surveillance  prioritisation  according  to  the  categorisation  of 
animal-related threats. Determine appropriate indicators and modalities for data 
collection.  

To  encourage  collaborative  networks  of  interested  parties,  especially  through 
the  European  Centre  for  Disease  Prevention  and  Control  and  the  European 
Food  Safety  Authority,  to  improve  data  collection,  risk  analysis  and 
information to the public, as well as training to allow early detection of animal 
health problems,  

• 

To provide funding: 

◦ 

◦ 

◦ 

to support epidemiosurveillance via existing funds, 

to  maintain  the  EU  diagnostic  capability  (e.g.  funding  of  laboratory 
networking) and, 

to  provide  appropriate  training  (e.g.  “better  training  for  safer  food"17 
initiative).  

• 

To  adapt  the  Animal  Diseases  Notification  System  (ADNS)  to  allow  better 
value  to  be  derived  from  surveillance  activities  and  information  to  be  shared 
widely18. 

Emergency preparedness: 

• 

Initiative  to  improve  EU  preparedness  against  major  threats  to  animal  health. 
These  components  may  also  be  useful  for  identifying  and  responding  to 
potential bioterrorism attacks:  

◦ 

◦ 

◦ 

◦ 

◦ 

Rapid response network, 

Supporting the diffusion of expertise and tools to allow humane killing of 
animals in emergency situations, 

Communication capacity during crisis, 

Crisis management units and community veterinary emergency team, 

Reinforcement of the necessary EU antigen/vaccine banks.  

17 

18 

Communication from the Commission to the European Parliament and the Council on better training for 
safer food - COM(2006) 519. 
And thereby to help EU Member States fulfil international requirements and avoid duplication of effort 
taking  into  account  the  need  to  report  similar  information  via  the  World  Animal  Health  Information 
System of the OIE. 

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• 

To  define  and  facilitate  fast  track  approaches  for  EU-wide  marketing 
authorisation of veterinary products (e.g. vaccines) used for the prevention 
of animal diseases subject to Community emergency measures. 

Pillar 4 

Science, Innovation, and Research 

To  stimulate  and  coordinate  risk  analysis,  science,  innovation  and  research,  hence 
contributing to a high level of public health and to the competitiveness of EU animal health 
businesses  

4.1. 

Science 

The  Community  is  committed  to  scientific  excellence,  independence,  openness  and 
transparency. 

A  network  of  Community  and  National  Reference  Laboratories  dealing  with 
animal diseases has been gradually set up. Scientifically sound and uniform testing is 
of fundamental importance for appropriate disease diagnosis and for the application 
of the necessary control and eradication measures. 

The European Food Safety Authority and the European Medicines Agency also 
mobilise and coordinate scientific resources from throughout the EU to provide high-
quality  and  independent  scientific  advice  and  risk  assessments.  This  provides  risk 
managers (the European Commission, the European Parliament and Member States) 
with a sound foundation for animal health policy.  

Expected outcomes: 

• 

• 

To  strengthen  the  collaboration  between  European  agencies  and  national 
bodies. 

Based on an evaluation, to review and where necessary extend the activities of 
the Community Reference Laboratories. 

4.2. 

Innovation and Research 

For  the  development  of  modern  research  in  a  global  environment,  it  is  vital  to 
organise  co-operation  at  different  levels,  co-ordinating  national  or  European  level 
policies,  promoting  networking  between  teams  and  increasing  the  mobility  of 
individuals and ideas. With decisive actions at European level in the area of animal 
health, the current fragmentation of Europe's efforts can be overcome.  

The new 7th framework programme (2007-2013) will be an important tool in support 
of animal health and welfare research, alongside national efforts and other European 
co-operative research activities. 

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A series of initiatives aimed at promoting animal diseases and welfare research have 
already  been  launched  -  including  the  call  for  the  creation  of  an  ERANET19  on 
animal health, an information platform on the protection and welfare of animals and 
the  launch  of  the  European  Technology  Platform  for  Global  Animal  Health 
(ETPGAH) in 2004.  

The  industry-led  Technology  Platform  should  mobilise  both  public  and  private 
sectors  in  Europe  to  commit  funds  to  carry  out  research  through  public-private 
partnerships.  It  should  facilitate  the  development  of  new  and  effective  tools  (in 
particular  vaccines  and  diagnostic  tests)  for  controlling  animal  diseases  of  major 
importance to Europe and the rest of the world. A coherent regulatory framework is a 
pre-condition for an effective Animal Health policy and the development and use of 
animal medicines and new generation of vaccines.  

Furthermore  the  Commission  has  proposed  in  its  Community  Action  Plan  on  the 
Protection  and  Welfare  of  Animals  to  establish  a  European  Centre  on  Animal 
Welfare. This would coordinate and stimulate research in order to upgrade existing 
standards. 

Expected outcomes: 

• 

• 

• 

• 

To  define  a  research  action  plan  involving  the  industry  and  other  relevant 
stakeholders. This plan will prioritise animal-related threats and will identify 
the “gaps” in existing control tools for surveillance, diagnosis, vaccination and 
treatment. 

To ensure the appropriate level of funding to implement the research action 
plan through public-private partnerships. 

To develop a suitable framework at Community level to mitigate disincentives 
the 
to  manufacturers  and  maintain  EU  capacities, 
reinforcement of the antigen/vaccine banks. 

in  particular  for 

To  provide  support  for  research  in  third  countries  through  international 
cooperation, especially for exotic diseases of high relevance or for neglected 
zoonoses which have a serious impact on those countries. 

19 

The objective of the ERA-NET scheme, in the context of the European Research Area (ERA), is to step 
up the cooperation and coordination of research activities (i.e. programmes) carried out at national or 
regional level in the Member States and Associated States through the networking of research. 

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EU ANIMAL HEALTH STRATEGY 

Scope 

Elements of the existing EU 
legal framework 

Partnership 

•  Production animals 
•  Animals used for work, 

sport, recreation or display 

•  Companion animals 
•  Wildlife, and 
•  Animals used in research 
and for teaching purposes. 

• 

• 

Intra-community 
trade/market 
Import conditions/Border 
controls  

•  Animal disease control, 

eradication and monitoring 
 Animal Welfare 
• 
•  Animal nutrition, feed 

additives  

•  Veterinary medicinal 

products 
•  Traceability 
•  Research  
•  Risk assessment and 
Scientific advice 
•  Training and skills 
•  Communication 
•  Financial aspects 

•  Animal owners 
•  Animal keepers/users 
•  Veterinary surgeons 
•  Food Chain Businesses 
•  Animal Health industries 
•  Consumers, travellers 
•  Retailers 
•  Animal interest groups and 

other NGOs 

•  Countryside interest groups 
•  Game keepers, hunters and 
landowners (wildlife) 

•  Governments and other Public 

Institutions 
•  EU Institutions 
•  EU Agencies 
• 

International Organisations 

Driving factors 

Coherence 

Public Health Policy (incl. Food Safety) 
Lisbon Agenda (Economic, growth and competitiveness) 
Sustainable Development Policy  
International commitments:  
Sanitary and Phytosanitary (SPS) Agreement/WTO  
The European consensus on development (millennium goals) 

Common Agriculture Policy 
Fishery policy 
Enlargement Policy 
Consumer Policy 
Internal Market Policy 
Trade policy 
Innovation and Research Policy 
External Relations with third countries  
Development Policy 
External Assistance to third countries 
Customs Standards 
Fight against fraud  

General principles 
Subsidiarity/Proportionality/Accountablity 
Better communication - Better regulation - Simplification - Reduction of administrative burden  

Goals and Action Plan 

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