USDA’s case definition document also provides information  about the presence or suspected presence of PED and PDCoV in the  United States and other countries. USDA Did Not Take Regulatory Action During the Initial Response to the SECD Outbreak, Limiting Its Understanding of the Geographic Distribution, Spread, and Source of the Diseases

USDA did not take regulatory action during the initial response to the  SECD outbreak, beginning in May 2013 when the PED virus was first  detected, because it did not believe then that such action was necessary  to manage the outbreak. Instead, the agency initially supported swine industry-led efforts to  address SECD. Additionally,  the U.S. Department of Agriculture (USDA)  estimates that more than 600,000 pigs are  transported to slaughter on any given day in  the United States. USDA provided support  and collaborated with industry associations in the response. Further, in part because USDA did not have information about  locations of the first infected herds, it did not investigate the first outbreak  of SECD at the onset, and the source of entry of SECD into the United  States will likely never be determined. Swine Enteric Coronavirus Diseases  (SECD) Spread   GAO’s review of literature found that there are  multiple likely modes for the spread of SECD. When asked why USDA did not conduct a timely outbreak investigation at  the premises where PED was first diagnosed, senior USDA officials told  us that the agency did not have information about locations of the first  infected herds—information that would have been gained through  regulatory action to require reporting. USDA currently does not have a process in place  that would help ensure this guidance is followed. USDA Imposed Reporting and Planning Requirements and Provided Financial Assistance to Manage SECD

In June 2014, USDA issued a federal order to help manage the diseases. However, USDA has not  defined roles and responsibilities or criteria for actions that are included in  its response to emerging diseases. USDA Has Drafted Guidance and an Associated List of Reportable Diseases to Improve Its Approach for Responding to Emerging Animal Diseases

USDA has drafted new guidance for responding to emerging animal  diseases; according to a USDA summary document, the agency  developed this guidance as a result of its experience with SECD and to  improve the agency’s response to future diseases. Without a  clearly defined and documented response to emerging animal diseases,  response efforts could be slowed as agency staff and other stakeholders  may not be able to quickly identify the appropriate actions to take. Until USDA develops  such a process, it cannot have reasonable assurance that the guidance  will be followed in future outbreaks. Recommendations for Executive Action

To improve USDA’s ability to respond to and protect against future  emerging animal diseases, we recommend that the Secretary of  Agriculture direct the Administrator of the Animal and Plant Health  Inspection Service to take the following two actions:
Clarify and document how the agency will respond to emerging  diseases including defining key aspects of its response, such as roles  and responsibilities, potential response strategies, and what may  trigger different types of actions. To develop a process to help ensure that its guidance for investigation of  foreign or emerging diseases is followed, USDA stated that the intended  refinement and expansion of the guidance for responding to emerging  animal diseases will address when and how emerging diseases may be  investigated differently from the procedures in its current investigation  guidance.
Why GAO Did This Study

Pork is consumed more than any other meat worldwide, and there are numerous other products made with ingredients from pigs, including medical products, such as insulin to treat diabetes. The United States is the world's third-largest producer of pork products. USDA estimated that U.S. pork exports in 2014 were valued at over $6 billion. Two lethal, highly contagious diseases in pigs emerged in the United States in 2013 and 2014, causing the deaths of millions of pigs. The two emerging diseases are collectively known as SECD.
GAO was asked to review federal actions to address SECD outbreaks. This report examines (1) the initial response to the SECD outbreaks, (2) USDA's subsequent actions to manage SECD, and (3) steps USDA has taken to improve its future response to emerging animal diseases. GAO analyzed USDA efforts to collect data about the number and location of infected herds; reviewed federal regulations and USDA animal disease response guidance; and interviewed USDA, state, and industry stakeholders involved in the response and control efforts.

What GAO Found

The U.S. Department of Agriculture (USDA) did not take regulatory action during the initial response to the outbreaks of Swine Enteric Coronavirus Diseases (SECD) beginning in May 2013, when an outbreak was first detected, because the agency did not believe then that such action was necessary. Instead, USDA initially supported swine industry-led efforts. Without regulatory action, such as requiring reporting of infected herds, USDA had limited information about the location of the first infected herds. In addition, USDA officials acknowledged that USDA did not follow its guidance that calls for conducting epidemiological investigations at the onset of outbreaks. As a result, USDA did not conduct timely investigations of the premises with the first infected herds, and the source of disease will likely never be determined. Further, USDA does not have a process to help ensure the guidance is followed. Without such a process, USDA lacks reasonable assurance that the guidance will be followed in the future.
In June 2014, amid concerns about the spread of SECD, USDA issued a federal order requiring reporting of newly infected herds. As a result, USDA has more accurate information about the number and location of such herds, and SECD have been confirmed in 28 U.S. states, as shown below. USDA also provided funding to help manage the diseases.
To help improve its future response to SECD and other emerging animal diseases—those not known to exist in the United States or which have changed to become a threat—USDA has drafted new guidance. However, it has not defined key aspects of its response such as roles and responsibilities, which according to its strategic plan, are key components of successful collaboration to protect animal health. Without a clearly defined response to such emerging animal diseases, response efforts could be slowed.

What GAO Recommends

GAO recommends that USDA develop a process to help ensure its guidance for investigation of animal diseases is followed and clarify and document how it will respond to emerging diseases, including defining roles and responsibilities. USDA generally agreed with GAO's recommendations.