MEMORANDUM SUBMITTED BY THE MINISTRY OF
AGRICULTURE, FISHERIES AND FOOD (J15)
PROGRESS REPORT BY MAFF ON THE RECOMMENDATIONS
IN THE FIFTH REPORT (1998-99 SESSION—HC 233) BADGERS AND
BOVINE TUBERCULOSIS
This report outlines the Government's progress
in implementing the recommendations in the Agriculture Committee's
Fifth Report (1998-99) [1]since
the Adjournment Debate on 10 February 2000. The Government is
continuing to carry forward its five point research and control
strategy announced in August 1998 to tackle TB in cattle.
Improved liaison with the Department of Health
to monitor the incidence of M bovis infection in humans and animals
The Chief Medical Officer and Chief Veterinary
Officer met in January 2000 to review progress on the public health
aspects of Mycobacterium bovis. Last year 41 cases of M
bovis were found in humans in the UK, confirming the position
of no change in the trend of recent years.
Guidance has been issued to all Chief Environmental
Health Officers/food authorities on issuing of heat treatment
notices for milk from TB Outbreak farms.
Guidance is being issued to operators of red
meat slaughterhouses about the health and safety implications
of handling TB reactor cattle.
Continued regular testing of cattle herds for
TB and slaughter of suspect animals, and where possible strengthening
these controls
A comprehensive review of the frequency with
which cattle are tested for TB has been completed to ensure compliance
with the relevant EU legislation.
Following consultation with the TB Forum cattle
movement restrictions and reporting requirements are being strengthened.
Further measures are under discussion.
MAFF has started a pilot trial into the effectiveness
of the gamma interferon blood test as an additional way of detecting
TB in cattle.
Research to improve knowledge of the disease and
its transmission to and between cattle and other species
A further £1.2 million per annum has been
added to MAFF's research programme to fund laboratory and field
studies on cattle to cattle transmission and pathogenesis of TB.
Research projects are in place looking at TB
in wildlife other than badgers, notably deer, mink, rats and foxes
and to examine clinical samples for M bovis from live trapped
wild mammals in order to determine the risk to cattle.
The report of the Independent Husbandry Panel,
established in response to one of the Committee's recommendations
to identify how cattle husbandry practices might help control
cattle TB, was published on 16 May 2000. The Government, ISG and
the TB Forum are considering how to take forward the report recommendations.
Research to develop an M bovis vaccine
A progress report on MAFF's tuberculosis vaccines
for animals research programme was published on 14 August 2000.
Copies of the report, by Dr Jo Colston, Head of Mycobacterial
Research at the National Institute for Medical Research, have
been passed to the Committee.
The main focus of the vaccine programme involves
the development of a TB vaccine for cattle, although the option
of a vaccine for badgers is being retained.
Some possible vaccine candidates have been identified.
Work is continuing on the possibility of developing a test to
distinguish between vaccinated and unvaccinated cattle.
A vaccine steering group, chaired by the Chief
Veterinary Officer, has been set up to co-ordinate the activity
of those Government Departments with an interest in the development
and regulatory clearance of an M bovis vaccine.
A badger culling trial to be carried out to test
the effectiveness of different badger culling policies
Ten triplets have been enrolled in the badger
culling trial in line with the advice from the ISG and in accordance
with its timetable.
Initial proactive culling has been carried out
in five triplets, with two more operations planned this year and
three in 2001.
The Independent Scientific Group has advised
the Government that the trial remains on course to produce robust
results by the end of 2004, possibly earlier.
An independent auditor's report into the despatch
procedures used in the badger culling trial was published on 16
October. It concluded that the procedures followed by MAFF staff
met high welfare standards.
A detailed account of the Government's progress
on each of the Agriculture Select Committee's recommendations
is set out below.
SPECIFIC ACTION
Lessons from the previous policies on the control
of bovine TB
Recommendation a:
". . .it is essential that future policy
in this area is based on sound science and conclusive evidence
and commands the full commitment of all parties involved".
1. The Government accepted this recommendation.
Other wildlife species
Recommendation b:
"We recommend that MAFF ensure that a
thorough and well designed sampling procedure of wildlife species
other than the badger be put in place in the badger removal areas
to determine if M bovis can persist in other species when
badgers are removed . . ."
2. The two research projects in place, one
run by Oxford University and one by the Central Science Laboratory,
are continuing and will last 'till 2002-03 respectively. Results
will be published in full when they become available. The CSL
project looking at the contribution of other wildlife involves
collecting wildlife carcases. By 31 August 570 carcases from 25
species of wild mammals other than badgers had been collected
and are being analysed in the laboratory. Results are not yet
available. The Oxford University project is examining clinical
samples for M bovis from live trapped wild mammals in order
to determine the risk to cattle. Nearly 1,000 samples have been
examined so far and several mycobacterium isolates are undergoing
final confirmatory tests to establish if they are M bovis.
Research into transmission
Recommendation c:
"We recommend that further research be
undertaken into the relative importance of cattle to cattle transmission
of bovine TB and means of controlling it".
Recommendation t:
"We disagree with the suggestion that
it is unnecessary to prove how a disease is spread in order to
deal with it successfully, as it would answer much of the debate
if the transmission routes were to be identified".
Recommendation u:
"We recommend that MAFF provide more
funding for research modelling spatial distribution of transmission
patterns and routes commissioned from the best scientists in the
field".
3. During 2000, on the advice of the Independent
Scientific Group, the Government initiated a research programme
to investigate the pathogenesis and transmission of tuberculosis
in cattle. This programme includes laboratory experiments and
field studies. The aim is to obtain a clearer understanding of
how and at what stage of infection transmission of M bovis
occurs between cattle, and to improve knowledge of the immune
responses detected by diagnostic tests so that testing procedures
can be improved. In addition to the modelling studies already
in place, part of the new cattle pathogenesis work includes development
of a mathematical model for TB in cattle. This work is of fundamental
importance in advancing control of the disease. Results from this
research, which started in July 2000 and finishes in December
2003, will be published when available. MAFF has also advertised
for new approaches on molecular epidemiology to address this area,
research proposals submitted in response to the open competition
launched in May 2000 are currently undergoing appraisal by independent
expert referees.
4. The recently started projects investigating
pathogenesis and transmission of TB in cattle will help to answer
some questions on the importance of cattle to cattle spread. Molecular
epidemiology studies on the different strain types of M bovis
will help to link sources to outbreaks of infection. A study at
the University of Bristol is investigating potential routes of
infection to cattle from grass contaminated by infected badgers.
Public health implications of the rise in incidence
of bovine TB
Recommendation d:
"The public health risks of the situation
are extremely low . . . We wish to emphasise that there is no
call for the public panic on [BSE] to be re-ignited over bovine
TB".
Recommendation e:
". . .the risk. . .`is not great' and we
believe it should not be overplayed. We are concerned that the
rise in bovine TB in cattle may be misunderstood and misrepresented
in the media as being linked to the disturbing rise in the number
of human TB cases . . ."
5. The joint MAFF/DOH quarterly meetings
have continued throughout 2000. The Chief Medical Officer and
Chief Veterinary Officer reviewed progress on the public health
aspects of Mycobacterium bovis TB in January 2000. They
confirmed that the levels of infection in humans remain low (about
40 cases per year) and that the management or risk to human health
through pasteurisation of milk, meat inspection at abattoirs and
advice on occupational exposure remains appropriate. Advice has
been issued by the Food Standards Agency to Local Authorities
on heat treatment of milk from restricted herds and by the Department
of Health to Consultants in Communicable Disease Control on screening
of people in contact with infected cattle. Advice is also being
issued to owners of abattoirs which receive cattle.
Conclusions on the rise in incidence of bovine
TB
Recommendation f:
"The rising incidence of bovine TB is
a serious problem, with implications for public finances, the
farming industry and animal welfare".
Recommendation g:
"The consequences to the farming industry
if current levels of TB incidence are maintained, or worse continue
to increase, clearly warrant the attention now being paid to the
issue".
6. The Government accepted these recommendations.
Recommendation h:
". . . We believe that MAFF should pay
more attention to identifying the principal cause of [the increased
rate of herd breakdowns]. . ."
7. More than 1,200 TB 99 epidemiological
reports have been entered on the database. Data from 688 reports
of incidents which occurred during 1999 has been summarised for
the Independent Scientific Group; we are awaiting their advice
as to whether the data summary should be published at this stage.
The Krebs review
Recommendation i:
"We agree with Professor Krebs that the
terms of reference for his review were appropriate and not restrictive,
but we understand the concern of the conservationists about the
fact that the title of the review was "Bovine tuberculosis
in Cattle and Badgers".
8. The Government noted this conclusion.
Recommendation j:
"We accept Professor Krebs's conclusion
that the evidence of a link between badgers and cattle TB is compelling
but not conclusive and that a field trial is required to test
and quantify the link between badgers and cattle".
9. The Government welcomed this conclusion
and sees the field trial and related research as a vital element
of its strategy to control TB in cattle in the future. Answers
are needed on the contribution badgers make to TB in cattle and
whether culling badgers helps to control the disease in cattle.
Recommendation k:
"We conclude that, seen in context, the
number of badgers likely to be culled in the trial will not substantially
affect the overall UK badger population and is justified in pursuit
of a soundly-based policy which should save unnecessary slaughter
of both badgers and cattle in the future".
10. The Government agreed with this conclusion.
Professor Sir John Krebs estimated that around 12,500 badgers
would be culled in the trial lasting five years. As a comparison
the badger population of Great Britain is estimated to exceed
300,000 and over 50,000 badgers are believed to be killed on the
roads each year. By 1 September 2000, in the trial triplets where
culling had been carried out so far, 1,953 badgers had been culled.
This would suggest the Krebs figure is unlikely to be exceeded:
NUMBER OF BADGERS CULLED
| Triplet | Proactive Area
| Reactive Area |
| Gloucester/Hereford | 55 |
25 |
| Devon/Cornwall | 323 | 73
|
| East Cornwall | 246 | 178
|
| North Wiltshire | 602 | —
|
| West Cornwall | 451 | —
|
| Total | 1,677 | 276
|
11. In no trial area will eradication of badgers occur.
Due to the limitations of cage trapping a residual population
of around 20 per cent will be left. This will be supplemented
by immigration and breeding.
Recommendation l:
"We conclude that Krebs' approach of combining a culling
trial with other research is the correct one and we see no reason
why any of the Krebs proposals should be abandoned. We agree broadly
with Krebs' conclusions and recommendations".
12. The Government agreed with this conclusion.
Recommendation m:
"We are convinced that more attention should have
been paid by Krebs to the role played by husbandry in preventing
TB breakdowns . . ."
Recommendation ccc:
"We recommend that MAFF appoint a small panel of experts
to undertake a fast track review of the available scientific evidence
on husbandry, taking evidence from the industry and the veterinary
profession as appropriate . . ."
Recommendation eee:
"We recommend that the Government finance the cost
of accelerated research investigating the most promising husbandry
practices likely to assist in the control of bovine tuberculosis".
13. An Independent Husbandry Panel was established on
17 January 2000 chaired by Dr Clive Phillips of the University
of Cambridge Department of Veterinary Medicine, with the other
members being a dairy farmer, a zoologist and a veterinarian.
The Panel took evidence from a large number of interested parties
and reviewed the available literature on the subject. Its report
was published on 16 May 2000 and is available in the Library of
the House. The Panel's recommendations identified a number of
husbandry measures farmers might take to reduce the risk of infection
to their cattle, while making clear that the transmission routes
for bovine TB are not fully understood. The Government is examining
these recommendations in consultation with the Independent Scientific
Group and the TB Forum so as to assess which are likely to be
effective against TB and practical for farmers. Many of the findings
confirm the advice already contained in the Government's advisory
leaflets, issued in 1999, but the Government will consider what
more can be done to encourage farmers to adopt better husbandry
measures in respect of cattle TB. The Government expects to publish
its response to the report before the end of 2000.
Implementation of the Krebs report
Recommendation n:
"We regret the delay between the publication of the
Krebs report in December 1997 and the Government's announcement
of 17 August 1998, two years after the start of the Krebs inquiry,
especially given that no policy to control bovine TB was in place
at all during that period".
14. The Government accepted that an earlier announcement
would have been desirable. However, the regular testing of cattle
herds and examination of animals at slaughter for TB, which is
the principal means of controlling TB in cattle, continued uninterrupted
throughout the period in question along with controls to protect
public health.
Vaccine research
Recommendation o:
". . . It is essential therefore that a test is developed
in line with a vaccine for cattle which allows the distinction
to be made [between infected and vaccinated animals] and which
is accepted throughout the EU and by the European Commission.
The Government should keep the EC informed of developments in
this field".
Recommendation p:
"We assume that the Bourne Group's responsibility
for advising Ministers on vaccines and vaccinations includes the
monitoring of progress on vaccine development recommended by Krebs
but would welcome clarification of this point".
Recommendation q:
". . . We recommend that the Government review its
entire TB vaccination strategy to ensure that sufficient funding
is given as a priority to human vaccine development, that research
is conducted into the difference between TB in cattle and humans,
and that UK scientists have access to the latest developments
in this field".
Recommendation r:
"The difficulties with delivering a badger vaccine
persuades us that a cattle vaccine offers more potential in the
control of bovine TB, although we advocate the continuation of
research into a vaccine for badgers".
15. The major focus of the TB vaccine research programme
involves the development of a cattle vaccine, although the option
of a vaccine for badgers is being retained. The initial approach
of developing vaccine candidates is similar irrespective of the
target species. A report on the progress made in the TB vaccine
research programme in the period July 1999 to June 2000 has recently
been published and is available on the MAFF TB website (www.maff.gov.uk/animalh/tb).
16. A project on M bovis genome sequencing and
analysis is expected to provide inputs into the vaccine development
programme, for example potential subunit vaccine candidates, identification
of novel virulence factors and diagnostic reagents.
17. UK researchers working on TB vaccines are in regular
contact with leading international experts and groups on cattle
TB, notably in New Zealand and the Republic of Ireland. There
is also specific co-ordination with the WHO/NIH vaccine screening
programme for human tuberculosis. Promising candidates generated
in that programme will be forwarded for testing in the M bovis
programme.
18. At present the programme is focusing mainly on developing
new candidate vaccines, and assessing these in laboratory small
animal models and in cattle. Their performance is to be compared
with BCG vaccination. An advantage of working on cattle vaccines
is that candidates which show promise in laboratory small animals
can then be tested in the natural host species before progressing
to clinical trials. Differential diagnostic tests for cattle using
peptide antigens which can distinguish vaccinated animals are
also being developed to address the problem of induced tuberculin
test sensitivity.
19. Closely allied to the research into promising vaccine
candidates is that on developing improved diagnostic reagents
and tests for use in live badgers. Various methods of delivering
potential oral vaccines to badgers are also being investigated,
including aerosol generating capsules and baits.
Recommendation s:
"We agree with the Minister that because of uncertainties
over vaccine development it is necessary to proceed with the Krebs
programme on all fronts".
20. The Government welcomed this conclusion and is proceeding
with all the elements in its five point strategy to control TB
in cattle.
Recommendations t and u—see response for recommendation
c
Leg cuffs
Recommendation v:
"Although we have not been persuaded that leg cuffs
would injure badgers, for the sake of public perception, we urge
MAFF not to pursue this route".
21. The Government does not intend to use leg cuffs in
the badger culling trial.
Road traffic accident survey
Recommendation w:
"We recommend that the road traffic accident survey
be implemented in the counties identified by the Bourne Group
as soon as possible in order that information may be gathered
to substantiate that from the culling trial. For counties outside
the culling trial, we recommend that the Bourne Group determine
how many badgers are necessary to identify prevalence within acceptable
limits and the cost-effectiveness of such an exercise".
22. Re-introduction of a limited RTA survey in the seven
counties recommended by the Independent Scientific Group has been
delayed, initially due to upgrading of badger post mortem facilities
at the Veterinary Laboratories Agencies laboratories and more
recently by the diversion of MAFF resources to deal with the outbreak
of Classical Swine Fever in East Anglia. The Government expects
to start the survey shortly. The information from the survey may
be helpful in understanding the underlying prevalence of TB in
badgers. It will be compared with data from the badge culling
trial.
Trace elements
Recommendation x:
"The Government should investigate the potential role
of trace elements in the incidence of TB in cattle . . . we
recommend that in determining future research projects the role
of trace elements in susceptibility to bovine TB in cattle and
badgers should be specifically included . . ."
23. A conclusion of the Independent Husbandry Panel report
was that it is unlikely that the trace elements most commonly
believed to be deficient in cattle are related to M bovis
infection. Information regarding the use of mineral supplements
and any known trace element deficiency forms part of the TB99
epidemiological investigation. Information so far from the TB99
database indicates that 99 per cent of the herds give compound
mineral supplement either as free access or as a balanced feed
supplement, this suggests that primary trace element deficiency
is unlikely to be a major factor in the incidence of TB in cattle.
However, the government remains aware that trace element imbalance
can make cattle more susceptible to a range of diseases and will
take account of any epidemiological evidence in relation to TB.
Funding for research
Recommendation y:
"We recommend that MAFF ensure that funding for research
into bovine TB remain a priority and that the level of funding
is sufficient to ensure that the programme of research recommended
by Krebs be completed".
24. The Government remains committed to putting the necessary
research in place as part of the strategy to control TB in cattle.
In financial year 2000-01, in addition to the badger culling trial
and related epidemiological questionnaire, about £5 million
will be spent on research, including vaccine development and research
on pathogenesis and transmission of TB cattle.
Implementation of the research programme
Recommendation z:
". . . We believe that the lack of information on
the research programme at a time when the culling trial was underway
contributed to the impression of MAFF bias against the badger
in the eyes of many witnesses . . . it has done much to undermine
the goodwill of the animal welfare lobby and to break the perception
of the Krebs report as a package of measures, rather than as the
culling trial alone."
25. The research programme is an integral element of
the Government's TB strategy. An overview of the research in progress
is contained in the annual reports of the Independent Scientific
Group, on the MAFF TB website, to which summaries of completed
research projects will be added. The Government accept there is
a continuing need to publicise the existence of the research and
also the results as they become available and will take every
opportunity within its communication effort to emphasise the importance
of the research work. Several MAFF contractors presented interim
reports of their findings at the recent M bovis 2000 international
conference in Cambridge. The proceedings will be published in
the scientific publication Tubercle and Lung Disease in 2001.
Length of culling trial
Recommendation aa:
"The delays in implementation carry the danger that
the trial will have to continue for seven years, two years longer
than the period which was already causing such concern to farmers".
26. The badger culling trial remains on course and the
ninth and tenth triplets were enrolled into the trial in October
2000. The Government's target is to complete initial proactive
culling in seven triplets by the end of 2000 and in all 10 by
the end of 2001, in accordance with the requirements of the Independent
Scientific Group. The ISG believes results from the trial will
be available by the end of 2004, possibly earlier depending on
the strength of the association between badgers and TB in cattle.
Trial design
Recommendation bb:
". . . We are concerned about the logistical aspects
of reducing the statistical power but in no way could we discover
that the trial was scientifically flawed".
27. The Independent Scientific Group has advised the
Government that the trial is robust—see also response to
recommendation nn, on the statistical power of the trial.
Closed season
Recommendation cc:
"We recommend that the number and age of cubs and
lactating sows caught in culling operations after the closed season
be monitored to assess the efficiency of the closed season policy."
28. This aspect continues to be monitored as part of
the trial. In proactive culling operations in the first five triplets
lactating badgers were only trapped in one triplet, Wiltshire
where 51 were culled, less than 6 per cent of the number of badgers
culled in the initial cull in this triplet.
Co-operation with the trial
Recommendation dd:
". . . the wider interests of the farming community
must be to co-operate fully with the trial . . . we urge [the
Wildlife Trusts] to consider what message their non-compliance
sends to others for whom non-compliance with the trial would take
different forms such as illegal culling of badgers."
29. The Government condemns interference with badger
culling trial operations and any illegal culling of badgers. Participation
and co-operation from landowners and farmers is good generally,
in excess of 80 per cent. There has been some interference with
trial operations by protesters opposed to badger culling, mainly
in the form of damage to cage traps and other equipment. However,
action by the police and by MAFF field staff has limited the extent
of this disruption and the trial is designed to allow for such
factors.
Recommendation ee:
"We recognise the concerns expressed by one badger
group that 'unscrupulous individuals could well take advantage
of conveniently caged badgers' for use in badger-baiting . . .
we ask the Bourne Group through MAFF for reassurance that all
traps are checked sufficiently regularly to prevent this occurring."
30. As explained in the progress report of February 2000
traps are checked as early as possible the next day. Although
some badgers appear to have been released from traps by trial
protesters, there is no evidence to suggest their use in badger
baiting.
Recommendation ff:
"We agree with the recommendation of English Nature
that the Bourne Group gather what information it can about the
scale of illegal culling."
31. Regular unannounced spot checks of setts are carried
out in "Survey Only" triplet areas to monitor for signs
of illegal culling. We have no evidence to suggest this is occurring.
Recommendation gg:
". . . it is essential that the Bourne Group can satisfy
itself and hence interested observes that the trial can be completed
within a reasonable timescale and that the results will be statistically
sound."
32. The Independent Scientific Group has confirmed to
the Government that the trial remains on course to produce valid
results. The Group believes results may be available by 2004,
possibly earlier depending on the strength of the association
between badgers and TB in cattle. See also the response to recommendation
nn, on the statistical robustness of the badger culling trial.
MAFF resources
Recommendation hh:
"We recommend that MAFF publish its forward projections
of the number of staff it will need to complete the trial within
the five year period and how it proposes to meet this requirement."
33. The projected complement of staff required in the
MAFF Wildlife Unit is 202. This ceiling will be achieved through
regular internal and external recruitment exercises to fill vacancies.
There are currently 171 staff in the WLU.
Recommendation ii:
"We recommend that MAFF address the ability of its
laboratories to cope with the workload caused by the trial as
a matter of urgency and publish an analysis of the impact of the
culling trial upon the existing laboratory resources".
34. There are now five laboratories with suitable facilities
for carrying out badger post mortems and these should provide
sufficient capacity for the culling trial to be completed. Work
was carried out to forecast MAFF requirements for badger post-mortems
and VLA capacity to meet this is kept under review.
Auditing
Recommendation jj:
"We recommend that MAFF publish an account of how
and when it met the requirements of each of the three monitoring
processes recommended by the Bourne Group for the first triplet
and how these processes will be applied in the second, third and
subsequent triplets."
35. The Government expects to publish reports from independent
audits of the procedures for surveying for badger activity and
on the badger humane dispatch procedures in the Autumn of 2000,
together with its responses. The recommendations from the auditors
will be incorporated into the standard operating procedures for
the badger culling trial. A contract has been agreed with the
new humane dispatch auditor following the original auditors' decision
to stand down. A new contract is currently being negotiated with
the auditor for surveying.
Recommendation kk:
"Although existing evidence suggests that badger removal
is unlikely to have adverse ecological consequences, we support
the environmental impact study that is now underway and we recommend
that it be made public as soon as it is completed."
36. A Central Science Laboratory project to assess the
ecological consequences of badger removal is now in its second
year. Areas subject to proactive, reactive and survey-only treatments
in four triplets will be monitored for one year before and at
least three years after treatment. Surveys will assess the abundance
and performance of selected bird and mammal species in each triplet.
Results are not yet available for this research project.
Badger densities
Recommendation ll:
". . . we accept that it is not essential to know exact
densities of badgers, only that numbers have been greatly reduced
in the proactive areas."
37. Proactive culling has been carried out in five triplets.
It is estimated that about 20 per cent of the badgers, which are
available to be trapped in the "proactive" culling areas,
will be left after the initial trapping. This 80 per cent capture
efficiency takes account of the use of cage traps. Surveys carried
out after culling in four of the five areas proactively culled
so far are consistent with this estimate of 80 per cent. In one
area, Gloucester/Hereford, the number of badgers trapped was lower,
possibly due to the fact that the field operations took place
in January, when badgers are less active. There may also have
been a lower population there due to previous official culling
operations in the area concerned.
The statistical power of the trial
Recommendation mm:
". . . [The illegal culling of badgers] could result
in the trial failing to show that culling is a practical way of
reducing the incidence of TB . . . It is therefore extremely important
to encourage the co-operation of farmers in the control areas
and also to monitor the control areas periodically to assess the
incidence of killing, as we have recommended above. The use of
mortality tags to estimate the level of illegal culling should
be further investigated . . ."
38. Regular unannounced visits to survey only areas have
not revealed evidence of illegal culling of badgers. Co-operation
from farmers and landowners in these areas is very good. The importance
of not interfering with badgers in survey only areas and elsewhere
is a message the Government continue to emphasise at every suitable
opportunity.
Recommendation nn:
". . . it is necessary for the Bourne Group to undertake
[quarterly] power analyses, which should be verified independently
by an expert, and to keep the Minister informed of the relative
strengths and weaknesses of the trial . . . We also recommend
that the original data behind the power analysis conducted by
Dr Donnelly from the Bourne Group . . . be verified by an external
expert and the results of this check be made publicly available
. . ."
39. Following the Committee's recommendation the Government
has agreed a contract with an independent statistical expert.
Professor Denis Mollison of Heriot-Watt University, Edinburgh
was appointed on 22 August 2000 to independently verify the original
data behind the power analysis conducted by the ISG. The Government
will publish his reports when these are presented.
Conclusions on trial
Recommendation oo:
"We do not accept that the answers to the questions
posed by the trial are already known . . . We recommend that the
culling trial be implemented in full and strongly encourage all
interested parties to co-operate with it in order that reliable
results be attained in the minimum possible time and with the
minimum loss of life to badgers."
40. The Government agreed with this recommendation. Answers
are needed about the contribution badgers make to TB in cattle
and whether culling badgers reduces TB in cattle. The Government
believes that the badger culling trial and the associated research
programme are the best ways of finding the answers which will
help the development of a science based policy for the long term
control of TB in cattle.
Speed of implementation
Recommendation pp:
". . . a prolonged trial would mean data would be
more difficult to interpret, the problem for the cattle industry
horrendous and the credibility of Government to find a solution
lost with unknown consequences."
41. The Government agreed with this conclusion. The Independent
Scientific Group expects results from the trial by 2004, possibly
earlier depending on the strength of the association between badgers
and TB in cattle.
Recommendation qq:
"We recommend that MAFF together with the Bourne Group
examine ways in which the trial could be implemented more speedily
without impugning its scientific rigour. At very least a target
should be established for the full implementation of all 10 triplets
by the start of the closed season in February 2000 . . ."
Recommendation ss:
"The Bourne Group will need to have the strength and
authority to ensure that the schedule for implementation is met.
At the moment, it is not evident that this is the case or that
the Group have any sanctions should the timetable slip. This problem
must be addressed by the Minister as a matter of urgency."
42. The timetable for the trial, set down by the Independent
Scientific Group, envisages seven triplets being subject to initial
proactive culling by the end of 2000 and all 20 by the end of
2001. The Government expects to meet these targets.
The Bourne Group
Recommendation rr:
"We do not recommend that new members be appointed
to widen the Representation on the Group."
43. The Government agreed with this conclusion. No further
members have been appointed to the ISG.
Communication of data and information
Recommendation tt:
"We recommend that the Bourne Group prepare and release
progress reports on a quarterly basis summarising the progress
of the trial and giving qualitative indications of the preliminary
results, with a strong warning as to the reliability of conclusions
based on the data."
44. Progress on the Government's TB Strategy, including
the Badger culling trial, is summarised in quarterly reports which
are made available to Members of Parliament and the TB Forum and
placed on MAFF's TB website. The annual reports to the Independent
Scientific Group contain more detailed information on the trial
and the related scientific research. MAFF also issues news releases
to cover particular events; for example, the announcement of triplets
and publications of reports such as the external auditors, husbandry
and vaccine advisor reports.
Recommendation uu:
"We recommend that, in consultation with an independent
expert statistician, the Bourne Group carefully consider what
information can be made available, when and in what form and that
their decision be made known to the public well in advance."
45. This forms part of the contract of the independent
statistician whose reports will be published, see response to
recommendation nn.
Recommendation vv:
"We recommend that once the trial as planned is completed,
the results be published as soon as possible and all data be made
as widely available as possible for analysis by scientists or
other parties."
46. The Government is committed to completing the trial
as quickly as possible and to making the results publicly available.
Recommendation ww:
"We recommend that MAFF reassess its PR strategy in
relation to the implementation of the Krebs report, with particular
attention to improving public awareness of the purpose of the
culling trial."
Recommendation xx:
"We recommend that the communication strategy followed
by MAFF in relation to informing vets and farmers about TB incidents
be reviewed."
47. The Government recognise the importance of communications
and is constantly looking for new and better ways to explain the
progress it is making in tackling TB in cattle. At this year's
Royal Agriculture Show in July there was a dedicated TB in cattle
stand where MAFF experts and Professor John Bourne, Chairman of
the Independent Scientific Group, were available to answer questions.
This initiative is to be repeated in 2001. TB in cattle information
was also available at other agriculture shows. The MAFF TB website
has been completely overhauled and provides an informative source
of information on the disease and on the research and control
work in place. MAFF has also produced a set of factsheets that
are freely available and there are regular progress reports provided
by MAFF to the Committee, MPs and the TB Forum. However, the Government
will continue to look at new communication opportunities to explain
its position and to listen to feedback. In particular more information
will be provided in individual badger culling trial areas to explain
the need for the trial and progress on the wider research strategy.
This effort will be aimed at the general public as well as farmers,
vets, conservation and welfare groups.
The Bern Convention
Recommendation yy:
". . . We find it astonishing that MAFF placed their
Ministers in such an embarrassing position . . . we await with
interest the outcome of the Government's defence of its policy."
48. In December 1999 Bern Contracting Parties agreed
that the badger culling trial did not contravene the Convention.
The Government submitted an annual report on its TB strategy to
the Bern Convention in September 2000. Copies have been placed
in the Library of the House. The report will be considered at
the meeting of the Standing Committee to the Convention on 27
November to 1 December 2000.
Farm husbandry
Recommendation zz:
"The withdrawal of its leaflet on farm husbandry practices
in connection with badgers and bovine TB demonstrates MAFF's awareness
of its shortcomings, but to do nothing to determine what better
advice should be offered to farmers is unacceptable".
49. In considering the report from the Independent Husbandry
Panel, the MAFF TB in Cattle and Farm Bio-security guidance issued
in July 1999 will be reviewed. This is expected to identify where
further guidance material covering different husbandry practices
may be useful.
Recommendation aaa: ". . . we are not convinced that
the industry as a whole has done enough in the past to address
the multifactoral nature of the bovine TB problem and the possible
role played by husbandry practices in finding a solution".
50. The TB Forum which includes representatives from
farming, veterinary, welfare and conservation organisations is
helping find new ways to tackle the TB in cattle problem. The
Forum has considered a number of proposals for changes to present
TB in cattle controls, including:
— restrictions on cattle movements between the two
stages of the tuberculin test;
— imposition of movement restrictions if herds are
not tested by the due date;
— a requirement to report the isolation of the M
bovis organism in any mammalian tissue (other than human);
— provision of better information for cattle purchasers
about the TB status of cattle.
51. Sub-groups of the forum are looking at the recommendations
in the Husbandry Panel report and the use of the gamma-interferon
blood test to assist in the detection of TB in cattle in Great
Britain. A feasibility study on the use of gamma-interferon as
an adjunct to the tuberculin test is due to commence in October
2000.
Recommendation bbb:
"We recommend that, in consultation with the farming
industry, MAFF and the Bourne Group simplify TB99. The new questionnaire
should then be subject to a rigorous pilot exercise on farms and
assessed for ease of administrative handling before approval is
given to a final version."
52. An amended TB99 has been drafted to take into account
comments received from SVS staff who administer the questionnaire
and those at the VLA who manage the database. The revised form
will gather a similar range of information; but the order of questions
has been changed to make it easier to manage at the successive
visits and some questions have been adapted to make them clearer.
The ISG is considering the proposed revision along with comments
from TB forum members and other interested parties. The new version
should be ready for use in 2001.
Recommendation ccc—see response for recommendation m.
Recommendation ddd:
"We commend to the Ministry the proposal of the Soil
Association for a comparison of the incidence of bovine TB on
organic farms with that on conventional farms".
53. TB99 epidemiological data has shown that TB incidents
have occurred in cattle kept on organic farms. The initial analysis
of data from the investigation of 688 confirmed TB incidents in
cattle herds which occurred during 1999, shows that 25 (3.6 pr
cent) were herds on farms described as organic. A more recent
data output from the 1,195 herds entered on the database by 15
September 2000 shows that 48 (4 per cent) were herds on farms
described as organic; 29 of these being registered organic farms.
The numbers are small but tend to suggest that within the high
risk areas, cattle kept under a range of farm management systems
can become infected with bovine tuberculosis.
Recommendation eee—see response for recommendation m.
Compensation
Recommendation fff:
"We recognise that within current spending limits
set for the Ministry in the Comprehensive Spending Review, national
levels of compensation cannot be raised to reflect consequential
loss. However, we also note that the Minister left open the possibility
that the situation may be reconsidered."
54. Under the 2000 Spending Review, no extra money was
allocated to extend compensation to cover the consequential losses
arising from a TB herd incident. The TB Forum has received a report
seeking to quantify the losses experienced by farmers subject
to movement restrictions as a result of TB in the herd. The Forum
is also considering ways in which the impact of the imposition
of movement restrictions may be mitigated without increasing the
risk of increased TB spread and incidence (for example by being
more flexible in allowing movement of cattle into herds under
movement restrictions). In the context of the recent Classical
Swine Fever outbreak, a Government-Industry working party has
been established to review ways in which the farming industry
can take steps to insure itself against the commercial losses
which arise from action taken to eliminate exotic animal diseases.
Although the terms of reference for this review do not cover bovine
TB, its conclusions may have wider relevance for commercial risks
faced by the farming industry.
Short term action by Government
Recommendation ggg:
"We recommend that, at present, no additional action
should be taken outside the trial area . . . We . . . urge the
government to give serious consideration to the NFU's case, with
a view to introducing a policy for the control of localised bovine
tuberculosis outbreaks in areas outside the trial within the next
12 months."
55. A sub-group of the TB Forum, which included representatives
of farming and veterinary organisations, prepared a preliminary
discussion paper on a possible alternative strategy for the control
of bovine TB in cattle in areas away from the badger culling trials.
This paper included a suggestion for localised badger culling
under strictly defined circumstances. The paper did not represent
the official position of any of the organisations represented
on the TB Forum. The paper was discussed at a meeting of the full
TB Forum on 13 July 2000, and was strongly opposed by conservation
and animal welfare organisations. After an initial discussion
of the paper, Forum members were invited to submit written comments
on the paper ahead of the next Forum meeting on 19 October 2000.
At this time no decision has been taken to introduce badger culling
outside of the trial areas. The Government is committed to seeing
through the badger culling trials in order to assess the impact
of culling on the incidence of TB in cattle.
Cattle passports
Recommendation hhh:
"We recommend that the Minister reconsiders his decision
on including the date of the last TB test in cattle passports."
56. As explained in the Government's progress report
of February 2000 the TB Forum did not support the suggestion of
showing TB status on the cattle passport. Putting the information
on cattle passports would provide no guarantee to a buyer that
the animal was free from TB at the time of purchase. At best it
would show when the animal was last tested. It could also lead
to delays in moving cattle as passports would need to be passed
to BCMS to have the data entered. It would require passports to
be redesigned and re-issued to allow the new data to be included.
The Government is implementing procedures to provide cattle purchasers
with better information on the TB status of cattle. The procedure
takes the form of a voluntary system where copies of the last
TB test results are passed to buyers on request.
Future policy options
Recommendation iii:
"We recommend that the Government specify the criteria
on which its sustainable policy on the control of bovine TB will
be judged and publish detailed objectives for the policy in the
short and the long-term. We also recommend that MAFF undertake
a statistical risk assessment of the possible policy procedures,
in conjunction with the Bourne Group and representatives of all
interested parties."
57. The Government is making progress on all elements
of its strategy to tackle TB in cattle. The main focus remains
on the regular testing of cattle herds and the associated controls,
which together with compensation payments will account for about
£26 million of the £45 million budget this year. In
addition, there is a comprehensive research programme, overseen
by the Independent Scientific Group, which includes work on vaccines,
on epidemiology, on disease transmission, on cattle husbandry
and on other wildlife species, as well as the badger culling trial.
The Government is determined to find the scientific basis on which
to build a lasting policy to control TB in cattle. As stated in
the progress report issued in February 2000, policies will be
judged according to the impact on public health, on animal health
and welfare, on the environment and on the economy, in particular
the farming industry and public expenditure.
31 October 2000
1 Related papers: Reply by the Government to the Fifth Report by
the Agriculture Committee, session 1998-99, HC 612, published
30 June 1999; Government update, February 2000, published in the
Agriculture Committee's Fourth Special Report "The Committee's
Work, Session 1998-99", session 1999-2000, HC 480. Back
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