Communication from the Commission to the Council, the European Parliament, the European Economic and Social Committee and the Committee of the Regions - Action plan for the implementation of the EU Animal Health Strategy
Date: 2008-09-10
Institutions: European Commission
Subjects: animal disease, animal health, animal welfare, disease prevention, health legislation, health policy

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COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 10.9.2008 
COM(2008) 545 final 

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

ACTION PLAN 

for the implementation of the EU Animal Health Strategy 

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

ACTION PLAN 

for the implementation of the EU Animal Health Strategy 

Background 

In December 2004, the Commission launched an external evaluation to thoroughly review the 
outcomes of EU action on animal health and the direction 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 animal health strategy in September 20071. It was the 
first time that the Commission set out its strategic aims and objectives for animal health. 
The Council2, the European Parliament3 and the European Economic and Social Committee4 
have  welcomed  the  development  of  a  strategic  approach  to  EU  animal  health  policy  and 
support  the  overall  aims,  objectives  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 Health 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  design  new  legislation  and  to  reinforce  the  respect  and  the 
effectiveness of the rules, all this in line with the EU proportionality principle and the EU's 
Better  Regulation  policy.  Legislative  proposals  will  be  systemically  assessed,  and  a  wide 
range  of  options  -  regulatory  and  non-regulatory  –  will  be  examined  for  each  initiative  in 
accordance with the Better Regulation Action Plan of the Commission5. The Commission will 
involve stakeholders closely in the preparation and will use the impact assessment system to 
prepare the new legislative initiatives. An indicative timeline is set out in this action plan for 
“legislative initiatives”. The implementation of specific actions announced in this Action Plan 
will therefore depend on the outcome of each impact assessment.  

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COM 539(2007) adopted on 19 Sept 2007 
http://ec.europa.eu/food/animal/diseases/strategy/docs/animal_health_strategy_en.pdf 
Council Conclusions - Doc 15481/07 ADD 1 Adopted on 17 Dec 2007 
http://ec.europa.eu/food/animal/diseases/strategy/docs/council_opinion.pdf 
European Parliament Resolution - A6-0147/2008 adopted on 21st May 2008. 
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 
COM(2002)278. 

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Structure of the action plan 

The Action Plan is structured around 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. 

General animal welfare legislation will be revised in the context of the second pillar. Specific 
actions  on  animal  welfare  are  already  described  in  the  Community  Action  Plan  on  the 
Protection and Welfare of Animals 2006-20106, which now forms an integral part of the EU 
Animal  Health  Strategy.  Therefore  this  Action  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.  Diseases  such  as  BSE,  which  posed  a  great 
threat to animal and human health 10 years ago, are now considered to be of much 
lower risk thanks to the measures subsequently put in place. However, there are new 
and emerging challenges to face such as diseases 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 disease 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 diseases 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 interfaces with the acquis on animal health, welfare, animal nutrition, 
food  safety,  public  health,  environmental  protection,  pharmaceutical  products, 
common agricultural policy legislation and rules 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  European  Economic  and  Social  Committee.  In 
particular, it will analyse the recommendations concerning the obligations of animal 
owners (including animals kept for non-commercial 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.  

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Community Action Plan on the Protection and Welfare of Animals 2006-2010   
http://ec.europa.eu/food/animal/welfare/actionplan/actionplan_en.htm 

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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  play  a  part  in  detecting  and  eradicating 
disease.  The  Commission  will  consider  basing  the  compensation  system  on  the 
incentives. 
categorisation  of  animal  diseases  combined  with  risk-prevention 
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  for  the  development  of  a  harmonised  EU 
framework of financial guarantees in the feed sector.  

The Commission will also strengthen its 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. 

Given the wide competence of the Community in 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. Subject 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 while 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, animals, 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 current "veterinary fund" and other Community 
related  funds  (e.g.  rural  development  fund,  structural  fund,  regional  fund,  fishery 
fund, mutual funds and research) when addressing 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, including animal products. To improve the level 
of  protection,  import  controls  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.  

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Threat prevention and crisis management are aided by surveillance mechanisms such 
as the EU traceability framework. The framework comprises identification systems, 
labelling,  and  TRACES  (the  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  identification,  and  animal  health  and  welfare 
status. Based on the results of a feasibility study, the Commission may adopt by 2011 
a regulatory proposal for the introduction of bovine electronic 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 controlling 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 reflection 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  scientific  foundation  of  the  Community  animal 
health policy. It increases the EU’s standing on the international 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  best  available  science  in  developing  its 
animal health measures. The European Food Safety Authority (EFSA) will continue 
to mobilise and coordinate scientific resources 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.  

including 

The Commission has also welcomed the initiative from Industry to bring together all 
the  agricultural  sector,  governments,  veterinarians  and 
partners 
international institutions with the creation of the Technological Platform for Global 
Animal Health. The Commission is very confident that this industry driven platform 
will contribute to the development of better diagnostics, vaccines and medicines for 
the  benefit  of  the  whole  animal  health  sector.  The  Strategic  Research  Agenda  is  a 
very valuable document as it results from a broad consensus among all stakeholders 
from academia, research institutions, industry, producers, decision makers from the 
EU and also from relevant international organisations. It has important consequences 
for animal health research and is in line with the Lisbon agenda which aims to make 
the EU an important science and technology driven society by 2010. 

The  7th  Research  Framework  Programme  (2007-2013)  is  an  important  tool  in 
supporting  this  Strategic  Research  Agenda  into  animal  health  issues.  With  that  in 
mind, the Commission will work to stimulate scientific innovation and research, and 
to ensure sufficient funding in this area through public-private partnerships.  

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With the support of the European Medicines Agency (EMEA), the Commission will 
ensure  that  a  suitable  framework  at  Community  level  provides  more  incentives  to 
manufacturers  to  develop  new  medicines  and  diagnostic  tools.  It  will  launch  a 
reflection  on  the  policy  on  the  use  of  authorised vaccines within the context of the 
Animal Health Law. It will also facilitate the change and the addition of strains to an 
already  authorised  vaccine  by  proposing  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  code  relating  to  veterinary  medicinal 
products in 2009. EMEA will also increase knowledge on the availability of EMEA 
Assistance  to  Small  to  Medium  Sized  Enterprises  and  applicants  for  Minor  Uses 
Minor Species products. 

Antimicrobial  resistance  remains  an  important  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  regards  the  surveillance  and  control  of  antimicrobial 
resistance (AMR) in zoonotic agents caused by the use of antibiotics in animals. 

Finally,  the  Commission  will  provide  support  for  research  in  third  countries 
(international  cooperation),  especially  for  exotic  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  the  work  of  the  Commission:  partnership  and 
communication.  

The  action  plan  acknowledges  the  importance  of  dialogue  between  citizens,  civil  society 
associations  and  the  EC  institutions  (particularly  the  Commission).  This  will  facilitate  the 
involvement  of  stakeholders,  organisations  and  citizens  in  the  European  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-legislative  alternatives  to 
regulation. An "Animal Health Advisory Committee" is already in place 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 Committee will also follow the strategy'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 European 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  encourages  all  partners  involved  to  consider 
how they may contribute to the action plan. 

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Summary of key actions and timetable 

Main actions 

Indicative date for 
completion 

1.  Prioritisation of EU intervention 

Categorisation of animal diseases  

2.  The EU Animal Health framework 

EU animal Health Law (legislative proposal) 

EU  cost  and  responsibility  sharing  schemes  (animal 
diseases) (legislative proposal) 

Assessment  for  the  need  of  an  EU  framework  of 
financial  guarantees  in  the  feed  sector  (consultation 
process) 

Negotiation  EU  export  conditions:  prioritisation  and 
creation of locally based EU Market Access Teams 

Community membership of the OIE  

3.  Prevention, surveillance and preparedness 

Development of EU biosecurity guidelines 

To  explore  possibilities  of  funding  to  finance  and 
promote biosecurity measures and training for farmers 

TRACES: a wider, integrated electronic system 

Electronic identification (bovine)  

Revision  of  import  legislation:  risk-based  approach  to 
border inspections - targeting illegal trade 

Animal Disease information System (ADIS) 

2010 

2010 

2011 

2008 - 2009 

2008 - 2013 

2010 - 2011 

2009 - 2013 

2008 - 2013 

2011 

2011 

2010 

2011 

Evaluation  of  the  Community  Rapid  response  network 
(crisis)  

2009 - 2010 

Reinforcement of the Community vaccine/antigen banks 

2008 - 2009 

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4.  Science, Innovation and Research 

Mobilise  and  coordinate  scientific  resources  with  EFSA 
support 

Strategic  Research  Agenda 
(European  Technology 
Platform  on  Animal  Health)  and  the  7th  Research 
Framework Programme (2007-2013) 

Evaluation of the Community reference laboratories 

Surveillance/control of antimicrobial resistance 

(supported by an EFSA opinion)  

incentives 

More 
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 - 2013 

2008 - 2009 

2008 - 2010 

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. 

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