	Background

According to international animal health authorities, disease surveillance  in livestock and poultry has as its main purpose the early detection of  diseases and disease outbreaks. To manage these reportable diseases,  APHIS has worked closely with the states and industry over the past  decades to eradicate them by, for example, providing states funding and  guidance. APHIS’s New Approach Monitors Overall Health of Livestock and Poultry and Seeks to Improve Collection and Analysis of Information

As funding for disease eradication programs changes, and the global  landscape of animal and human diseases produces new threats, APHIS  has since fiscal year 2012 begun broadening its previous disease-by- disease approach to one in which the agency monitors the overall health  of certain livestock and poultry species. APHIS’s intention is to examine  the nation’s livestock herds and poultry flocks in detail, using diverse  sources of data, to better detect, monitor, and control diseases that may  be new or reemerging, including domestic diseases of economic  importance. This program—called Comprehensive and Integrated Swine  Surveillance—identifies new sources and types of data on diseases in  swine, among other things. In  planning documents, APHIS officials said that they plan to collect data  from farms where swine are raised, markets where they are sold,  slaughter facilities, and veterinary diagnostic laboratories, among other  sites (see fig. For example, APHIS has been monitoring for the presence of  pseudorabies at slaughter facilities, but it has proposed monitoring these  facilities for a range of other diseases as well, including classical swine  fever. APHIS Faces Challenges Implementing Its New Approach

APHIS faces key challenges in carrying out this new approach to disease  surveillance in livestock and poultry, in particular, gathering data from  current and additional sources, such as from industry and from state  animal health authorities, and determining how best to deploy declining  resources. According to agency documentation, the budget for APHIS  recently decreased by about 14 percent for fiscal years 2008 through  2013. According to federal and state officials, a decrease in the number of  APHIS field veterinarians has also reduced the agency’s ability to carry  out critical disease surveillance activities effectively. No Overall Strategy with Goals and Measures Guides APHIS’s New Approach to Animal Disease Surveillance

APHIS has a vision for its new approach but has not integrated that vision  into an overall strategy with associated goals and performance measures  aligned with the nation’s larger biosurveillance efforts. The Government Performance and Results Act, as amended, requires  federal agencies to develop performance plans that include measurable   We have previously reported that these requirements can also  goals.serve as leading practices for planning at lower levels within agencies,  such as individual divisions, programs, or initiatives.and performance measures helps an organization balance competing  priorities, particularly if resources are constrained, and helps an agency  assess progress toward intended results. Veterinary Services’ planning documents acknowledge that in preventing  and detecting diseases in livestock and poultry and protecting animal  health, the agency plays an important role in safeguarding public and  environmental health as well. The goals APHIS has identified in these  planning documents focus primarily on processes or activities but do not  specifically address outcomes the agency seeks to accomplish or have  associated performance measures. APHIS’s Plans Do Not Define Their Relationship with the Nation’s Biosurveillance Efforts

None of APHIS’s various plans indicate how they individually or  collectively support national homeland security efforts called for in  Homeland Security Presidential Directive 9, or additional biosurveillance  efforts that together make up a national policy to defend the nation’s food  and agricultural systems against terrorist attacks, major disasters, and  other emergencies. Even with its  efforts to date, however, without integrating the vision in its planning  documents into an overall strategy with associated goals and measures  that are aligned with broader national homeland security efforts to detect  biological threats, APHIS may not be ideally positioned to support  national efforts to address the next threat to animal and human health. Recommendation for Executive Action

As APHIS develops goals and measures for its new approach to disease  surveillance in livestock and poultry, we recommend that the Secretary of  Agriculture direct the APHIS Administrator to integrate the agency’s vision  into an overall strategy, with associated goals and measures, that guides  how APHIS’s new approach will support national homeland security  efforts to enhance the detection of biological threats.
Why GAO Did This Study

International animal health authorities have stated that disease surveillance in livestock and poultry has as its main purpose the early detection of diseases and disease outbreaks. APHIS has worked closely with states and industry over the past decades to eradicate diseases by, for example, providing states with funding and guidance. But the disease landscape has changed, with rapid global movement of humans and animals, creating new threats. GAO was asked to review federal animal disease surveillance efforts. This report examines (1) USDAs new approach to disease surveillance in light of a changing disease landscape and challenges, if any, the agency faces with this approach and (2) the extent to which this approach is guided by a strategy with measurable goals and supports broader national biosurveillance efforts. GAO reviewed relevant presidential directives, laws, regulations, guidance, policies, documents, and strategic plans related to disease surveillance in animals; visited swine facilities; and interviewed federal, state, and industry veterinarians and other officials.

What GAO Found

Under a new approach, the U.S. Department of Agriculture's (USDA) Animal and Plant Health Inspection Service (APHIS) has begun broadening its previous disease-by-disease approach to disease surveillance to one in which the agency monitors the overall health of livestock and poultry and uses additional sources and types of data to better detect and control new or reemerging diseases. APHIS's first effort under its new approach is to monitor the health of the nation's swine herds and identify new sources and types of data on diseases in swine, among other things. In planning documents, APHIS officials have proposed collecting data from farms where swine are raised, markets where they are sold, slaughter facilities, and veterinary diagnostic laboratories, among other sites. For example, APHIS has been monitoring for the presence of pseudorabies--a viral disease of swine that may cause respiratory illness and death--at slaughter facilities, but under the new approach, it has proposed monitoring these facilities for a range of other diseases as well. Key challenges to carrying out this new approach are how best to obtain data from producers, who are concerned that health information about their herds and flocks be kept confidential, and how to obtain health data in sufficient quantity from some animals like feral swine. Resource constraints also present a challenge, according to agency and state officials, given the recent decrease in APHIS's budget of about 14 percent for fiscal years 2008 through 2013.
APHIS has a vision for its new approach but has not integrated that vision into an overall strategy with associated goals and performance measures that are aligned with the nation's larger biosurveillance efforts. The Government Performance and Results Act, as amended, requires federal agencies to develop performance plans that include goals and performance measures. GAO has previously reported that these requirements can also serve as leading practices for planning at lower levels within agencies, such as individual divisions or programs. Developing goals and measures helps an organization balance competing priorities, particularly if resources are constrained, and helps an agency assess progress toward intended results. APHIS has developed a number of planning documents related to the agency's capabilities in disease surveillance in livestock and poultry, which acknowledge that the agency plays an important role in safeguarding public and environmental health. Goals APHIS has identified in these documents, however, focus primarily on processes or activities and do not specifically address outcomes the agency seeks to accomplish or have associated performance measures. Moreover, none of the planning documents indicate how they individually or collectively support national homeland security efforts called for in Homeland Security Presidential Directive 9, which assigns several federal agencies, including USDA, responsibility for establishing a comprehensive and coordinated surveillance system to support early detection of biological threats, including infectious diseases. Agency officials said they plan to develop goals and measures for the new approach. Without integrating its vision into an overall strategy with goals and measures aligned with broader national homeland security efforts to detect biological threats, APHIS may not be ideally positioned to support national efforts to address the next threat to animal and human health.

What GAO Recommends

GAO recommends that as APHIS develops goals and measures for its new approach, it integrate the agency's vision into an overall strategy guiding how this approach supports national homeland security efforts to enhance the detection of biological threats. In their comments, USDA concurred with GAO's recommendation, and the Department of Homeland Security described its commitment to disease surveillance efforts.