Developing an Animal Health Strategy to Support Ontario's Agri-Food Industry

A Discussion Paper by the Ministry of Agriculture, Food and Rural Affairs on a strategy to enhance the competitiveness of the agri-food industry and further protect public health and safety.

pdf version - 136 kb

Table of Contents

1. Executive Summary
   
2. Introduction
   
3. Rationale for an animal health strategy
   
4. The current animal health system in Ontario
   
5. The framework for the strategy
   
6. Questions for discussion
   
7. How to respond to this discussion paper
   

Appendix 1 – Existing Ontario legislation related to animal health

Executive Summary

The Ontario Ministry of Agriculture, Food and Rural Affairs (OMAFRA) is leading the development of an animal health strategy for Ontario to enhance the competitiveness of the agri-food industry and further safeguard the province against the potentially negative health and economic impacts of animal health issues. A strategic, comprehensive approach for identifying and evaluating the many components of what constitutes the animal health system in Ontario will improve the day-to-day prevention, early detection, and timely response to animal health risks.

The scope of this discussion paper and the consultation covers animal health issues that potentially impact on farmed animal health, agri-food industry competitiveness, and public health.

The current animal health system in Ontario consists of provincial and federal government programs and measures, a number of private sector resources and initiatives, as well as animal health expertise and academic research to support the system. In addition, government expertise and resources in the public health system at the federal, provincial and municipal levels help protect people from the negative impacts of animal health issues.

| Top of Page |

Ideally, four key elements of an effective animal health strategy will include:

• Coordination of the system with identified leadership, roles and responsibilities;
• Effective legislative and public policy to support the system, integrated with national efforts and initiatives;
• Strong infrastructure, strategic animal health investment and flexible emergency management; and
• Research and risk assessment to prioritize resources and identify opportunities for improvement.

Making improvements to the current animal health system across these four key elements would improve Ontario’s ability to protect and improve animal and public health, and enhance the competitiveness of the agri-food industry.

The province is asking stakeholders questions under four themes to guide potential improvements under this framework. Responses to these questions will ensure the strategy addresses appropriate issues and proposes the most effective means of implementation.

Demographics and Key Issues

• To what sector(s) or group do you or the organization you represent belong? (e.g. agricultural production, agri-food industry (processing, retail, etc.) veterinary, public health, non-agricultural animal/species, government, academia)
• If you identified yourself as part of the agricultural production sector, what species are of particular interest to you? (e.g. dairy cattle, swine, chickens)
• What are the top five key animal health issues that you believe should be addressed by a provincial animal health strategy?

Coordination and Roles of the Animal Health System

• Are there suggestions for improving the coordination of the animal health system in Ontario?
• What do you think the provincial government's role should be in the animal health system?
• What role would you or the organization you represent be willing to play in a coordinated animal health system?

Potential Legislative Changes to Improve the Animal Health System

• What do you believe potential animal health legislation in Ontario would need to address or accomplish?
• Are there ways other than legislative changes that could be considered to enhance Ontario's ability to safeguard animal health?

Resources to Implement the Animal Health System

• How would you allocate resources to improve the animal health system in Ontario?
• What would you identify as the current top three priority areas for investment in animal health in Ontario?
• What types of animal health programs would address your priority areas?
• What is the best way to ensure that all who benefit from an animal health system share the costs?

| Top of Page |

If you would like to provide us with your comments, ideas and suggestions, please contact the Ontario Ministry of Agriculture, Food and Rural Affairs by:

E-mail: ahsconsult@ontario.ca

Fax: (519) 826-3254; Attention: Animal Health Strategy Consultation

Mail:

Office of the Chief Veterinarian for Ontario
Ministry of Agriculture, Food and Rural Affairs
1 Stone Road West, 3^rd Floor NE
Guelph, ON N1G 4Y2

Comments must be received by Friday, December 1, 2006.

Should you require further information, please contact us by email at ahsconsult@ontario.ca or by calling the Agricultural Information Contact Centre at 1-877-424-1300.

| Top of Page |

Introduction

The Ontario Ministry of Agriculture, Food and Rural Affairs (OMAFRA) is leading the development of an animal health strategy for Ontario. The intent of this strategy is to enhance the competitiveness of the agri-food industry and further safeguard the province against the potentially negative health and economic impacts of animal health issues.

The scope of this discussion paper and the consultation covers animal health issues that potentially impact on farmed animal health, agri-food industry competitiveness, and public health.

This discussion paper outlines a framework for a provincial animal health strategy. It includes a number of questions related to provincial animal health that are intended to solicit your feedback.

During the fall of 2006, OMAFRA will be holding meetings with stakeholders to discuss these questions, and ensure the proposed strategy addresses the appropriate issues and proposes the most effective means of implementation.

Contact information is included at the end of the paper for those who wish to comment but are not attending a meeting.

Note:

This consultation is focused on the roles and contributions of the Ontario government and provincial stakeholders with an interest in animal health. Although this discussion paper includes a description of the federal government's role in the Ontario animal health system, views and opinions on federal initiatives and activities related to animal health will not be examined or discussed.

Rationale for an Animal Health Strategy

There are a number of drivers for change in the way animal health issues are addressed in Ontario. These include:

• More than 30 per cent of Canada's people and economic activity, and nearly 25 per cent of the country's agricultural economy, are concentrated in southern Ontario. Therefore, any major disruption to animal agriculture in Ontario could have serious negative consequences on the quality of life not only in the province but also across the country.

•  Increased awareness and concern among the agriculture industry and the general public over animal diseases such as Avian Influenza (AI), Bovine Spongiform Encephalopathy (BSE), Foot and Mouth Disease (FMD) and Chronic Wasting Disease (CWD).

• Serious diseases such as BSE or AI could have a significant negative impact upon the livestock and poultry industries respectively, through production losses, restrictions on international and inter-provincial trade, and significant costs related to industry recovery. Ontario cattle producers lost an estimated $1 billion in the two years following the May 2003 case of BSE in Alberta and the resulting closure of numerous markets for Canadian beef and beef products. The impact of the lost markets stretched beyond the farm gate and had a significant impact on the entire rural infrastructure. A similar situation occurred in 2004 when an Avian Influenza outbreak in British Columbia resulted in losses of $380 million to the poultry industry in that province.

• Other current and emerging animal diseases may have serious economic and/or human health impacts. Recent examples include: Johne's Disease in cattle and small ruminants, Porcine Reproductive and Respiratory Syndrome (PRRS), porcine circovirus, multi drug-resistant Salmonella, West Nile virus, and influenza viruses that affect multiple species.

• Some risks to animal health could seriously impact human health. Approximately 60 per cent of all human infectious diseases, and 75 per cent of new human pathogens, come from organisms in animals (US Centers for Disease Control and Prevention, 2004). The rapid movement of people and animals around the world has greatly increased the risk of widespread outbreaks, epidemics or pandemics of human illness from diseases such as SARS or influenza.

Concern about a range of animal health-related issues such as medicine use, carcass and waste disposal, veterinary services for farmed animals, and traceability.

| Top of Page |

The Current Animal Health System in Ontario

The current animal health system in Ontario consists of provincial and federal government programs and activities, private sector resources and initiatives, as well as supporting animal health expertise and academic research.

In addition, people are protected from the negative impacts of animal health issues through research, surveillance and various policies and programs provided by government expertise and resources at the federal (e.g. Health Canada, Public Health Agency of Canada, and Canadian Food Inspection Agency), provincial (Ministry of Health and Long-Term Care) and municipal (Public Health Units) levels.

Although this list is not exhaustive, some examples of how the Ontario government has invested and continues to invest resources in animal health include:

• Inspection of live animals before slaughter, and carcasses after slaughter, at provincially-regulated abattoirs and livestock market auctions;
• Financial support for the Animal Health Laboratory at the University of Guelph;
• Construction of a new Animal Health Laboratory at the University of Guelph, with federal support;
• The Office of the Chief Veterinarian for Ontario which was created within OMAFRA to improve the leadership, coordination and policy related to animal health issues in Ontario;
• Canada-Ontario Foreign Animal Disease Emergency Response (FADER) Plan - an agreement between the Province and the Government of Canada that outlines roles and responsibilities in the event of a foreign animal disease outbreak in the province;
• Special projects such as the work of the Ontario Avian Influenza Working Group, led by OMAFRA, to coordinate, prepare for, and manage the risks associated with Avian Influenza, including the emerging H5N1 (Asian strain) of the virus;
• Veterinary Assistance Program that helps support veterinary services in remote areas of the province;
• Provision of government specialists in the areas of animal health, livestock and poultry production, and emergency management; and
• Participation in various national and international committees and working groups related to animal health.

| Top of Page |

At the federal government level, the Canadian Food Inspection Agency (CFIA) "delivers inspection programs related to food, plants and animals in 18 regions across Canada".^[1] The Chief Veterinary Officer for Canada is housed within the CFIA, as is the recently created Office of Biosecurity. The CFIA also administers the Health of Animals Act which is an Act respecting diseases and toxic substances that may affect animals or that may be transmitted by animals to persons, and respecting the protection of animals.

The federal Health of Animals Act designates 32 diseases as federally "reportable", including BSE, Highly Pathogenic Avian Influenza and Foot and Mouth Disease. Some specific provisions in the Act include authority to put in place control areas and quarantines; and authority to order specific animal care, testing, disposal and/or destruction where an animal or thing is, or is suspected of being, affected or contaminated by a disease or toxic substance. The Act also provides for compensation for animals ordered destroyed.

CFIA activities are largely focused on detection and response to serious issues of national importance, such as these Reportable Diseases. Industry groups and the provincial government have major roles in working with the CFIA to implement complementary preventive measures and manage the many non-reportable diseases and other emerging animal health issues.

Unlike other provinces, Ontario does not have legislation to specifically address animal health issues. There are provisions and regulations under existing Acts such as the Livestock Community Sales Act, Food Safety and Quality Act 2001, Livestock Medicines Act, Dead Animal Disposal Act and the Veterinarians' Act that are related to animal health (additional details regarding these Acts are found in Appendix 1). However, none of these existing Acts were designed to allow Ontario to take actions to prevent and control serious risks to animal health that could impact on the agri-food industry, public health and the overall provincial economy. In the unlikely event of a declared provincial emergency, recourse could also be had through the Emergency Management and Civil Protection Act.

Animal owners, along with private sector veterinarians, are engaged in the day-to-day management of animal health. Veterinarians, the University of Guelph Animal Health Laboratory and other diagnostic laboratories provide a mechanism and expertise for finding hazards, such as animal diseases, that occur in the province.

Financial support for the University of Guelph to provide laboratory support for the province's dairy, meat, horticulture, animal health and agricultural programs is provided through an Enhanced Partnership Agreement between OMAFRA and the university. Funding supports diagnostic testing services at the Animal Health and Agri-Food Laboratories. The Animal Health Laboratory provides a wide range of specialized diagnostic tests, reports and data for analysis of provincial disease trends through a passive system that relies on voluntary submissions. This information supports veterinary practitioners and clinics. Another component of the Enhanced Partnership Agreement is the Veterinary Clinical Education Program (VCEP) which assists veterinary students to acquire the skills they need to contribute significantly to the maintenance of the health of animals and people, a safe and secure food system and healthy livestock markets.

The University of Guelph also educates veterinarians through the Ontario Veterinary College and engages in animal health research.

Some private sector initiatives related to animal health include:

• On-trace, an industry initiative supported by provincial funding to develop a traceability and premises identification system;
• Creation of the Ontario Livestock and Poultry Council (OLPC), representing a broad range of industry associations. OLPC regularly engages OMAFRA and the CFIA on key issues of prevention and preparedness related to animal health;
• Voluntary biosecurity measures and other related prevention efforts; various training and education programs;
• Foreign Animal Disease simulation exercises with industry and government participation;
• Specific animal health-related research initiatives; and
• Some industry organizations have policies in place related to animal health for their respective commodities.

| Top of Page |

The Framework for the Strategy

A successful animal health strategy would enhance the protection of the public and animals against a variety of hazards, and measurably improve public health and animal health in Ontario. As a result, it would also enhance the competitiveness of the agri-food industry.

Some guiding principles to be considered in developing the strategy include:

• Integration and respect of existing initiatives and mandates;
• Involvement of key stakeholders in the process;
• Balance among biologic, societal and economic risks;
• Optimal investment of resources and use of current assets;
• Sharing of responsibilities and costs among government, industry and other partners; and
• Progressive planning, ongoing accountability and improvement.

Four key elements of an effective animal health strategy are listed below. These are also general areas where potential improvements in Ontario's current system can be identified:

• Coordination of the system with identified leadership, roles and responsibilities;
• Effective legislative and public policy to support the system, integrated with national efforts and initiatives;
• Strong infrastructure, strategic animal health investment and flexible emergency management; and
• Research and risk assessment to prioritise resources and identify opportunities for improvement.

The following section frames a number of questions to guide potential improvements under this framework.

| Top of Page |

Questions for Discussion

We would like your comments and suggestions regarding issues affecting animal health, potential changes to the current system, and what you see as the role of various partners in enhancing Ontario's ability to safeguard animal health and the agri-food industry.

We invite you to answer the questions posed below. The questions are organized around four themes to help us organize your comments and suggestions. These questions are meant to encourage discussion around these themes, but not limit it to these areas.

Demographics and Key Issues

Responses in this section will assist us in organizing the comments and suggestions that we receive.

Questions:

• To what sector(s) or group do you or the organization you represent belong? (e.g. agricultural production, agri-food industry (processing, retail, etc.) veterinary, public health, non-agricultural animal/species, government, academia)
• If you identified yourself as part of the agricultural production sector, what species are of particular interest to you? (e.g. dairy cattle, swine, chickens)
• What are the top five key animal health issues that you believe should be addressed by a provincial animal health strategy?

| Top of Page |

A successful animal health system needs to be coordinated with all key players having an understanding of their respective roles and responsibilities.

Coordination means that all related parts of a system agree to work together to achieve effective results that are beneficial to all components. An optimal animal health system would have all players working together to effectively allocate and employ resources to manage both day-to-day issues and emergencies, develop sound animal health policy, and engage stakeholders.

There are a number of models used by other jurisdictions to coordinate their animal health systems. These models approach leadership, coordination, and roles and responsibilities differently, and include establishing:

• steering boards and committees with representatives from both government and the private sector;
  
• councils consisting of representatives from industry to advise the government; and
  
• government-led centres and agencies.

For an animal health system to be effective, all players must have an understanding of their respective roles and responsibilities. Owners of animals take on much of the responsibility for managing animal health risks for their own animals. The role that stakeholders would like the provincial government to take on must be clearly defined. The willingness of other players, such as agricultural production groups, veterinary organizations, public health stakeholders, and diagnostic laboratories, to take on new or enhanced roles to safeguard animal health should be determined.

Questions:

• Are there suggestions for improving the coordination of the animal health system in Ontario?
• What do you think the provincial government's role should be in the animal health system?
• What role would you or the organization you represent be willing to play in a coordinated animal health system?

| Top of Page |

Prospective Legislative Initiatives to Enhance Ontario's Animal Health System

Provided that they do not conflict with federal laws, legislative initiatives could be considered to enhance Ontario's ability to safeguard animal health. As outlined in Section 4, Ontario does not have dedicated legislation to address animal health issues, although there are a number of current statutes that do touch upon it.

Through this consultation, the province is asking stakeholders to address the need for dedicated animal health legislation for Ontario or amendments to enhance the current Acts. Some options for consideration might include the authority to:

• Take actions related to disease control, if a particular disease/condition occurred in Ontario, (e.g. restricting the movement of animals; requiring specific animal care practices; requiring cleaning and sanitation of premises or equipment; and requiring veterinary treatment);
• Take action to prevent, and detect animal health risks (surveillance activities) - ability to investigate, look for and take action to prevent or mitigate suspected animal health risks (e.g., take samples from and test animals in abattoirs, sales barns, on farms, etc.), as well as the sharing of information as appropriate;
• Require animal owners in certain circumstances, such as increased numbers of sick or dying animals to seek veterinary care;
• Provide for compensation for a farmer in the event that animals die from, or are destroyed, as part of control measures for a disease;
• Improve safety related to the accessibility and use of livestock medicines;
• Establish minimum standards for animal biosecurity; and
• Improve other animal health factors such as premises identification, traceability, and support for farm animal veterinary services.

Questions:

• What do you believe potential animal health legislation in Ontario would need to address or accomplish?
• Are there ways other than legislative changes that could be considered to enhance Ontario's ability to safeguard animal health?

| Top of Page |

Resources to Implement the Animal Health System

Various players contribute both financial and human resources to the current animal health system in Ontario. Resources are often allocated in response to significant events such as to prepare for, or recover from, the occurrence of a specific animal disease or issue.

A sound animal health system needs to be consistently and effectively resourced to be able to address a spectrum of animal health issues including serious animal diseases, diseases not identified in the federal Health of Animals Act, preventive and biosecurity measures, surveillance, and research. An infrastructure consisting of veterinary and diagnostic laboratory capacity provides the backbone in an animal health system to address this spectrum of issues.

For an animal health system to remain relevant and effective, resource allocation must be based on the principle of continuous improvement. An ongoing mechanism is needed to ensure that resources are allocated across the four key elements of the framework outlined in Section 5.

Implementing a strategy to enhance animal health would benefit all those with an interest in provincial animal health; in particular, animal owners would directly benefit. Therefore, it is reasonable that the costs associated with measures to safeguard animal health are shared among animal owners, the government, and others who would directly benefit from the implementation of animal health measures, such as various members of the agri-food chain.

Other jurisdictions follow various models to invest in their animal health systems. These range from public funding, to funds that involve cost-sharing between governments and stakeholders, to programs that are completely funded by industry sectors. Some examples include:

Cost-shared investment programs to help offset individual costs for on-farm improvement;

• Funds that are prioritized for preparedness, outbreak investigation, disease surveillance, and research related to animal health;
• Incentives for preventive practices;
• Partnerships and agreements between the government and other players for items such as emergency response plans;
• Establishing and implementing standards for animal care and/or biosecurity.

Questions:

• How would you allocate resources to improve the animal health system in Ontario?
• What would you identify as the current top three priority areas for investment in animal health in Ontario?
• What types of animal health programs would address your priority areas?
• What is the best way to ensure that all who benefit from an animal health system share the costs?

| Top of Page |

How to Respond to this Consultation Paper

 The purpose of this stakeholder consultation is to receive feedback on a proposed animal health strategy to support the agri-food industry in Ontario. In particular, the government would like your comments and ideas on a more comprehensive approach to animal health in the province.

To provide your comments, please contact the Ontario Ministry of Agriculture, Food and Rural Affairs by:

E-mail: ahsconsult@ontario.ca

Fax: (519) 826-3254; Attention: Animal Health Strategy Consultation

Mail:

Office of the Chief Veterinarian for Ontario
Ministry of Agriculture, Food and Rural Affairs
1 Stone Road West, 3^rd Floor NE
Guelph, ON N1G 4Y2

Comments must be received by Friday, December 1, 2006.

Should you require further information, please contact us by email at ahsconsult@ontario.ca or by calling the Agricultural Information Contact Centre at 1-877-424-1300.

Thank you for taking the time to participate.

Submissions and comments provided to the Ministry of Agriculture, Food and Rural Affairs are part of a public consultation to solicit input on an animal health strategy to support Ontario's agri-food industry. This process may involve disclosing materials, comments, or summaries of them, to other interested parties during and after the public comment period. However, the Ministry will not disclose any personal information submitted to us during this consultation, such as an individual's name and contact details.

If you have any questions regarding the Freedom of Information and Protection of Privacy Act, you may contact the Information Management and Privacy Coordinator, Ministry of Agriculture, Food and Rural Affairs at 519-826-3822.

| Top of Page

Appendix 1

Existing Statutes and Regulations in Ontario that contain provisions related to animal health are listed below. These can be found at http://www.e-laws.gov.on.ca.

Livestock Community Sales Act

The Livestock Community Sales Act and Regulation 729 provide for the licensing of community sales of consigned livestock in Ontario, as well as the detention of cattle, goats, horses, sheep or swine that appear to be diseased, injured, abnormal or non-ambulatory. This legislation exists to provide confidence in an orderly market, provide a disease control effort, monitor the humane handling of livestock and ensure financial stability of the licensed operator.

Food Safety and Quality Act, 2001

The Meat Regulation registered under the Food Safety and Quality Act, 2001 requires that livestock received for slaughter in provincially registered establishments are handled and slaughtered humanely. All animals receive ante and post mortem health evaluations by trained inspectors. Appointed veterinarians are available for consultation on abnormalities. Meat can only be sold in Ontario if it has been federally inspected, provincially inspected or legally imported.

Emergency Management and Civil Protection Act

The Emergency Management and Civil Protection Act was amended in 2006 to provide new broader powers for the Lieutenant Governor in Council and the Premier to enable the government to better deal with emergencies, such as SARS and avian influenza. This Act gives the government the authority to declare an emergency exists throughout Ontario or any part of it if the Lieutenant Governor in Council or the Premier are satisfied that there is a situation that requires immediate action to prevent, reduce or mitigate a danger of major proportions that could result in serious harm to persons or substantial damage to property, and the resources normally available to the government cannot be relied upon without the risk of serious delay; are insufficiently effective to address the emergency; or it is impossible, without the risk of serious delay, to determine whether the resources can be relied upon.

Livestock Medicines Act

The Livestock Medicines Act allows licensed vendors to sell a limited number of drugs or classes of drugs designated as livestock medicines to livestock owners.

Dead Animal Disposal Act

The Act and Regulation 263 regulate the storage and handling of deadstock, as well as the licensing of deadstock collectors and receiving and rendering plants.

Veterinarians' Act

The Veterinarians' Act sets out the powers of the College of Veterinarians of Ontario to regulate the practice of veterinary medicine and to govern its members.

| Top of Page |

Health Protection and Promotion Act

Public health focuses on three areas: preventing conditions that may put health at risk (health protection); preventing disease and injuries (prevention); and changing people's and society's attitudes and practices regarding lifestyle choices (health promotion). The capacity of Ontario's public health system to address these priority areas is built upon its legislative framework; the Health Protection and Promotion Act (HPPA).

The HPPA provides the legislative framework for Ontario's public health system including:

• The organization and delivery of mandatory public health programs and services;
• Health hazard investigation;
• Communicable disease control and surveillance;
• Right of entry and powers of inspection;
• The establishment of local boards of health;
• Public health administration; and
• Enforcement of compliance with legislation.

The HPPA is relevant to the regulation of zoonotic diseases, which are those that are communicable from animals to humans under natural conditions. Section 13 of this Act allows a medical officer of health or public health inspector to make an order to protect where a health hazard exists and the requirements specified in the order are necessary in order to decrease the effect of or eliminate the health hazard. Section 22 allows a medical officer of health to make an order requiring a person to take or to refrain from taking any action in respect of a communicable disease where such a disease exists or may exist or that there is an immediate risk of an outbreak; the communicable disease presents a risk to public health; and the requirements specified in the order are necessary in order to decrease or eliminate the risk to public health.

The HPPA also includes a number of regulations regarding rabies immunization of domestic animals, reporting of potential rabies exposures, and confinement of cats and dogs that have bitten a person.

^[1] Canadian Food Inspection Agency website (www.inspection.gc.ca)

| Top of Page |