Select Committee on Intergovernmental Organisations Minutes of Evidence


Memorandum by World Organisation for Animal Health (OIE)

  The OIE was created in 1924 with the aim of sharing animal disease information and controlling the international spread of infectious animal diseases. Under our current strategic plan 2006-10, the OIE's primary mission now is "to improve animal health worldwide". This requires all 172 OIE Members to share the same commitment and political will. New institutional and technical mechanisms for preventing and controlling animal diseases will have to be developed at a national, regional and worldwide level.

Question 1: Opinion on the global situation with communicable diseases; and

Question 18: View on the global threat from new or previously unrecognised infectious diseases and from the transmission of infections from animals to humans.

1.  As a result of globalisation and climate change the world is currently facing an unprecedented conjunction of emerging and re-emerging animal diseases and zoonoses (animal diseases transmissible to humans). Improving the governance of animal health systems in both the public and private sector is the most effective response to this alarming situation.

  2.  As agriculture increases in complexity and sophistication, routine costs associated with production decrease. However, the potential costs of disease increase. Agriculture is increasingly using concentrated production methods and, as animal densities increase, genetic diversity is decreased. Even in vertically integrated commercial farms, animals are constantly on the move. Some modern farming practices raise the stress levels of livestock, making them more susceptible to infectious agents.

  3.  The accelerating emergence of new diseases risks threatening human and animal populations globally has been the subject of considerable discussion, with particular reference to the risks presented by globalisation and the potential use of biological agents by terrorists.

  4.  The OIE and the World Bank, in collaboration with the FAO, held an international conference "Global Animal Health Initiative: the Way Forward" in October 2007, where the risks and sources of hazards to human health, as well as the recommended measures to address these, were discussed. In a keynote presentation to the Conference, Dr Lonnie King of the United States Centres for Disease Control, highlighted the following risk factors:

    —  Climate change and extreme weather events;

    —  Genetic changes and evolution of micro-organisms, including the emergence of pathogens that are resistant to commonly used antimicrobial agents and disease vectors that are resistant to parasiticides;

    —  Global movement (ie tourism and trade) of people and goods, in some cases leading to translocation of pathogens and their hosts, including insect vectors of disease;

    —  Changing behaviour of human populations, including in the selection and preparation of food;

    —  New technologies, including in global transport and processing and preparation of foods;

    —  Changes in the health status of the human population, including demographic changes and the emergence of immunosuppression associated with other chronic conditions and/or medical treatments;

    —  Expansion of human and animal populations into new ecological settings, setting the scene for closer interactions with novel pathogens and disease vectors;

    —  Changes to global ecology due to human interventions and other causes (eg global warming);

    —  Periods of civil unrest and war, which can cause large displacements of human and animal populations into new areas and, through the breakdown of established human health and animal health programmes, provide a situation where both new and old diseases can flourish;

    —  Intent on harming (bioterrorism, agroterrorims, bioviolenec).

  5.  This list is not exhaustive. Comprehensive reviews have been published on this topic, for example:.

    —  Proceedings of the workshop on Global Climate Change and Extreme Weather Events: Understanding the Potential Contributions to the Emergence, Re-emergence and Spread of Infectious Disease. December 2007 (http://www.iom.edu/CMS/3783/3924/45653.aspx);

  6.  Improving the governance of animal health systems in both the public and private sector is the most effective response to this alarming situation.

  7.  Animal diseases have a serious economic and social impact on the rural economy of rich and poor countries alike. The animal production industries in rich countries are often free of the serious livestock diseases. In many cases, and at great expense, the serious animal diseases, such as foot and mouth disease (FMD), have been eradicated, but free countries remain at risk of disease reintroduction from still endemic countries, with resulting enormous economic losses, not only limited to the agricultural sector. For developing countries, animal production is important to the survival of poor rural communities. Disease is a constant threat to animals raised in these countries and it is a serious problem for poor communities in rural and peri-urban areas. Such communities are currently incurring severe losses due to animal diseases and these losses are on the increase.

  8.  There can be no doubt that improving animal health is a global public good. More than 120 countries need help to reach a situation that is satisfactory for them and that reduces the sanitary risk to other countries. The current situation clearly calls for the expression of international solidarity in the global interest. The Veterinary Services in developed countries also need to be re-examined and in some cases new priorities need to be established. In the past, the majority of resources were directed towards the eradication of serious livestock diseases and in some countries the Veterinary Services have suffered from their success. As a result of successful disease eradication campaigns, some Veterinary Services have been downsized to a point that is unsustainable. To be capable of early detection of and rapid response to diseases of animal and/or public health importance, a sustainable veterinary infrastructure and scientific capability must be maintained.

  9.  Investing in new animal health systems throughout the world helps to protect countries from natural or bioterrorist threats linked to the reintroduction of infectious animal diseases and zoonotic diseases that they have succeeded in eliminating. It is also important to safeguard public human health, reduce poverty and open to all countries the possibility of trading their agricultural products internationally.

Question 2:  What reliable data exist regarding the numbers of people infected globally with the four diseases on which the Committee is focusing particular attention? What trends are discernible in both the numbers infected and the patterns of infection? And what are the main underlying causes of infection and of any changes in incidence and pattern?

  The OIE comments relate to avian influenza.

  10.  As a partner with FAO and WHO the OIE has taken important steps to improve the reporting and dissemination of information relevant to cases of human infection with H5N1 HPAI (see paragraphs 11-17 for a description of relevant activities involving the OIE).

  11.  For zoonotic diseases, it is important to control them at the source, meaning in animals. It is well established that control of zoonoses in animals is cheaper and more effective than human pandemic preparedness cost. As regards HPAI, the OIE notes that all cases of human infection are directly related to infection in poultry. No human infections have been detected in regions where poultry are free of H5N1 disease and most infections are related to direct contact with infected birds. To date, more than 200 people have died, with the highest number of people in Indonesia. Human-to-human transmission is extremely rare, with only a few cases suspected to have occurred in Indonesia, Cambodia, Pakistan and Vietnam. For this reason, it is worrying to note that human cases of H5N1 infection continue to be reported in certain countries that are nonetheless silent on reports of infection in poultry. For this reason the OIE wrote to several countries in December 2007, reminding them of their official obligations as OIE Members to report all findings of highly pathogenic avian influenza in poultry and other avian species.

Question 3:  What intergovernmental surveillance systems exist to give early warning of outbreaks of infectious diseases? Are these systems adequate? What improvements might be made?

  12.  The OIE manages the World Animal Health Information System (WAHIS), which depends on the commitment, linked with their OIE membership, of OIE Members to officially notify to the OIE their important animal diseases, including zoonoses. WAHIS includes an early warning system and a disease monitoring component. All OIE Members can provide, including by electronic means, direct input to the OIE early warning system and the OIE worldwide on line database on animal diseases (WAHID). The OIE is the key global organisation committed to providing official information on animal diseases, including highly pathogenic avian influenza, and on exceptional epidemiological events. While WAHIS is adequate for the time being, the OIE has established an ongoing program of upgrading in response to the needs identified by users. The OIE is currently emphasising the identification and training of responsible national officials (172 National focal points) for disease notification to maximise the value of information provided by OIE Members.

Question 4:  Given the continuance of current or planned intergovernmental programmes to prevent or control the four diseases, what predictions can be made of their likely spread and pattern over the next 10 years? and

Question 11:  What intergovernmental action is planned or in hand for early detection of the transmission of avian flu from birds to humans and of human to human transmission in potential source countries? Is this proving sufficiently effective to prevent an influenza pandemic? What more could be done?

  The OIE comments relate to highly pathogenic avian influenza and other major epizootic diseases of animals, including zoonotic diseases such as bovine spongiform encephalopathy (BSE) and bovine tuberculosis (TB).

  13.  Collaboration between the OIE, FAO and WHO is ongoing with regard to the prevention and control of major epizootic diseases of animals, including zoonotic diseases. With specific reference to avian influenza, over the next 10 years, the OIE will work towards significantly reducing H5N1 virus infection, based on:

    —  reducing the risk of human exposure to H5N1, thereby diminishing the threat of pandemic human influenza;

    —  mitigating the negative impact of the disease and its control on production, markets and trade in poultry products;

    —  supporting the livelihoods of poor communities that depend on poultry for income and food security.

  14.  The global strategy adopted by OIE and FAO sets out three concurrent priorities:

    1.  In endemically infected countries, the incidence of HPAI must be controlled to reduce the risk of human exposure to H5N1 infection and to limit the threat of virus dissemination to other countries.

    2.  In countries experiencing sporadic outbreaks, intensive efforts to eradicate the disease must be supported. Results will depend on progress made in reducing HPAI in endemically infected countries.

    3.  All countries are "at risk" of HPAI incursion. However, some countries, by virtue of geographic location, poultry production systems and level of economic development are at particularly high risk and would suffer particularly serious consequences. In these countries, surveillance, preparedness and response capacity must be improved.

  15.  OIE is also pursuing the goal of strengthening States' capacities to rapidly detect the presence of HPAI and other emerging diseases and take appropriate emergency actions, thereby minimizing pathogen load and economic impact. It is important to ensure the efficacy of public services responsible for formulating the relevant legislation and effectively controlling its application. Efficient veterinary services, based on good cooperation between livestock owners and private veterinarians, are key to the early detection of animal diseases.

  16.  In 2005 the OIE and FAO established a joint network of expertise on avian influenza (OFFLU) which has as its most important objective improved sharing of virus isolates and their sequence data. Continuous analysis of strains is important to get a better understanding of AI epidemiology and to track possible mutations that may change the biological behaviour of the viruses. OFFLU also helps laboratories in infected and at risk countries and functions as the veterinary counterpart of the WHO influenza working group. By sharing strains and sequences with the WHO network, OFFLU supports the development of a human vaccine in case of a pandemic.

  17.  OFFLU is also a precious source of scientific expertise. It maintains a database of experts recognised for their excellence, who may be available for missions, under the overall management of the FAO/OIE Crisis Management Centre. Additionally, some specific missions requiring laboratory and scientific expertise may be carried out directly by the Network.

Question 4 (end of sentence):  What predictions can be made of (the four diseases) likely spread and pattern in the next 10 years?

  The OIE comments relate to highly pathogenic avian influenza.

  18.  Since outbreaks of H5N1 highly pathogenic avian influenza (HPAI) started in Asia in late 2003, the disease distribution and dynamics have evolved significantly. In Asia, some countries that suffered extensive dissemination of infection, including Vietnam, China and Thailand, have had great success in bringing the disease under control. Indonesia and Bangladesh still need to establish good control. Other countries in South East Asia have suffered outbreaks but have achieved control and in some cases eradication. Following spread of the disease to Europe and northern and western Africa late in 2005, many countries were able to eliminate the disease. Notable exceptions are Egypt and Nigeria where the disease is still endemic, and some other African countries, which are experiencing sporadic outbreaks. Some countries detected their first outbreaks in 2007, eg Togo, Benin and Poland.

  19.  The OIE sees a positive trend overall, in terms of States' performance in early warning, detection and response, as well as an improvement of the quality of veterinary services and a reduction in the number of outbreaks per country. However, more needs to be done to ensure that positive trends are maintained.

Question 5:  What do you consider to be the principal blockages to achieving progress in the prevention or control of the four diseases? How might these blockages be removed by more, or better-targeted of better-coordinated intergovernmental action?

  20.  The OIE comments relate to the main international blockages to achieving progress in the prevention and control of highly pathogenic avian influenza. The intergovernmental actions under way are described in paragraphs 13-17.

  21.  Highly pathogenic avian influenza remains largely a disease of poultry that occasionally spreads to humans and other mammals and the viruses that cause this disease have not yet developed the capacity for sustained human-to-human transmission. The risk of a human influenza pandemic will persist while influenza A viruses continue to circulate in animal populations unchecked. Therefore, control of this disease at source in poultry remains the priority intervention. It is well established that the control of zoonotic diseases in animals is both more effective and more cost effective than managing the effects of these diseases in humans. Better tools need to be developed to support diagnosis, early detection and effective management of avian influenza in poultry, through applied scientific research and collaboration.

  22.  Although humans appear to be exposed to avian H5N1 viruses primarily through contact with infected poultry, specific risk factors and alternative sources of human exposure remain undetermined and scientific research is needed to elucidate these factors and provide solutions.

  23.  Uninfected countries are also important participants in the global struggle against avian influenza. They must strengthen their preparations to deal with virus incursions into poultry. In the case of developing and in-transition countries, planning and preparedness must be supported by the international community.

  24.  Many countries do not have adequate preparedness plans to deal with pandemic influenza in the human population. All countries need to improve their capacity to deal with the emergence of a novel pandemic strain of influenza virus.

Question 6:  What role does the organisation play in combating the four diseases? Do you believe that it is correctly configured and adequately resourced to do the job? With which other organisations do you collaborate? How would you assess the degree of synergy?

  The OIE comments relate to avian influenza and other epizootic animal diseases, including zoonotic diseases.

  25.  The prevention and control of zoonotic diseases by implementing OIE standards and guidelines within the framework of the World Trade Organisation Agreement on the Application of Sanitary and Phytosanitary Measures (the SPS Agreement) are an essential component of public health policies. The current H5N1 avian influenza crisis is a perfect example of this, but there have been many other crises involving zoonotic diseases (such as severe acute respiratory syndrome [SARS], Nipah virus, bovine spongiform encephalopathy [BSE], Rift Valley fever and rabies). OIE standards cover disease control, diagnosis, surveillance and trade. They are science based standards that have been adopted by the OIE's 172 Members following well established democratic and transparent procedures.

  26.  In addition to elaborating standards, the OIE is responsible for compiling a list of Member Countries and Zones that are officially recognised as being free from certain animal diseases, comprising foot and mouth disease (FMD), rinderpest, contagious bovine pleuropneumonia and BSE. It has been suggested that this list should be expanded, to include, for example, highly pathogenic avian influenza. The International Committee (the General Assembly of National Delegates) is empowered to take such decision. It is clear that the OIE would need significant additional resources, both financial and staff, to respond to such a decision.

  27.  The OIE is responsible for the global provision of official information on animal diseases including zoonoses, based on the obligations of its Members to notify diseases and significant epidemiological events. These obligations are set out in Chapter 1.1.2 of the OIE Terrestrial Animal Health Code and Chapter 1.2.1 of the OIE Aquatic Animal Health Code.

  28.  One of the most important roles played by the OIE is in advocacy for the world's Veterinary Services. As mentioned above, a collective political commitment is needed if the world is to deal with serious animal diseases and zoonotic diseases more effectively. To secure this commitment, intergovernmental organizations, regional organizations and individual countries must be prepared to provide policy makers with the right information, arguments and tools. The OIE is a key player in this process. Convincing arguments must be based on a qualitative and quantitative evaluation of the political, social and economic benefits to be gained by investing more in new national, regional and worldwide animal health systems. Recent studies conducted by the OIE in conjunction with the World Bank and the FAO clearly demonstrate the significant economic advantage of investing in disease prevention rather than simply responding to disease incursions. Disease prevention, in turn, depends upon field networks for surveillance and for the administration of vaccines, where this is judged to be appropriate.

  29.  An important blockage to the effective control of serious animal diseases, including highly pathogenic avian influenza, is the lack of governance and limited effectiveness of national veterinary services, particularly in some developing countries where multiple government priorities (eg health, education, physical security) compete for scarce resources. Veterinary Services, including both public and private sector components, are in the front line when it comes to improving animal health and welfare. Increasing their effectiveness depends on the mobilisation of adequate human and financial resources. Good governance of Veterinary Services is a key element for success. Appropriate standards for good governance are described in the OIE Terrestrial Animal Health Code. Good governance requires both appropriate legislation and the necessary human and financial resources to apply it. Effective collaboration with other government sectors (human health and environmental management) and with stakeholders (livestock producers and community representatives) are important elements of good governance.

  30.  By evaluating VS compliance with the quality standards set out in the Terrestrial Animal Health Standards Code, the OIE can also identify priority areas for investment to obtain the needed improvements. The OIE aims to ensure that effective veterinary surveillance networks are in place everywhere, since early detection of diseases and quick, effective response are the keys to effective prevention and control of natural and deliberately introduced animal health disasters and this is accepted by all OIE Members.

  31.  In partnership with the World Bank and other major donors, the OIE is undertaking evaluations of the Performance of Veterinary Services (OIE-PVS) in more than one hundred countries, using experts trained and certified by the OIE. The World Animal Health and Welfare Fund, which was established by the OIE in 2004, is dedicated to this work of evaluation and analysis. The Fund is currently supported by Australia, Canada, the European Commission, France, Japan, Switzerland, the United Kingdom, the United States (US Department of Agriculture) and the World Bank. The importance of the complementary role that stakeholders (private sector and NGOs) play in carrying out animal disease surveillance is recognised in the OIE PVS process. The Fund also provides continuing education for national officials in charge of modernising the VS and maintaining relations with the OIE and for relevant private sector representatives.

Question 7:  What are the main non-health causes of the spread of the four diseases? To what extent can intergovernmental action in non-health fields contribute to alleviation of their spread? What action is taking place or planned in these areas and what more needs to be done? Do you consider that there is sufficient "joined-up" thinking in approaching the problem?

  32.  As mentioned in paragraph 4, many non-health factors are contributing to the spread of infectious diseases, including zoonoses, globally and the actions of governments and intergovernmental organisations must address these underlying factors to the maximum extent possible. It is the view of the OIE that maintaining and in some cases strengthening the following activities will help to address some of the non-health factors listed in paragraph 4:

    —  Elaboration of standards for international trade in animals and animal products and helping all countries to implement the standards.

    —  Supporting countries in the diagnosis, early detection and reporting of diseases and unusual epidemiological events, including providing guidelines on disease surveillance in wildlife.

    —  Development and approval of new technologies to detect and control animal diseases and to protect the public from zoonotic diseases.

    —  Strengthening the legislative base and governance of Veterinary Services, including communications networks with Human Health Services at national, regional and global levels.

    —  Establishing standards for prudent antimicrobial usage in animals, respecting human health and animal production needs, and supporting countries' implementation of these standards.

Questions 8, 9 and 10:  No OIE comment.

Questions 12, 13 and 14:  No OIE comment.

Question 15:  What interchange exists between States in regard to knowledge of and training in the diagnosis and treatment of the four diseases or regarding preparations for dealing with outbreaks? What improvements might be made through intergovernmental action?

  The OIE comments relate to the control of avian influenza and other serious animal diseases, including zoonotic diseases.

  33.  Before the extensive spread of H5N1 HPAI in late 2003, FAO and OIE had already developed a Global Framework for the progressive control of Transboundary Animal Disease (GF-TADs), including a critical role for the WHO in relation to zoonotic diseases. It is the view of the OIE that the GF-TADs and other current activities described in paragraphs 34—38 needs to be maintained and supported by the international community.

  34.  The GF-TADs was developed with a strong emphasis on partnership with key regional organisations, including ASEAN and AU-IBAR. The GF-TADs has already shown itself to be an effective platform for global and regional coordination and collaboration of international and regional bodies in support of States engaged in the prevention and control of HPAI (and other serious animal diseases). The tools that have been developed and applied include:

    —  The Global Early Warning System (GLEWS), which provides disease intelligence and modelling for disease outbreak early warning;.

    —  A Crisis Management Centre, for provision of a rapid response to disease events, for countries requesting support;

    —  A network of expertise on avian influenza including the OIE and FAO Influenza Reference Laboratories, and groups with HPAI epidemiological expertise, comprising OFFLU, to provide technical advice and training to national laboratories, to undertake research and to assist in the development of human vaccines; and

    —  The OIE World Trust Fund for Animal Health and Animal Welfare for supporting projects of international public good.

  35.  In addition, FAO and the OIE, together with regional agencies including AU-IBAR in Africa, are collaborating in the development of Regional Animal Health Centres to ensure that technical and operational personnel are accessible to national authorities to provide support in disease prevention and control programmes. Centres have been established in Nairobi, Bamako, Tunis, Gaborone and Beirut and more are planned.

  36.  Regional and sub-regional veterinary networks are being established and extended, engaging national laboratory and epidemiology personnel and those with expertise in socio-economic analysis, farming systems and biodiversity, in forums for the exchange of ideas and information with the goal of strengthening the quality and transparency of disease surveillance, detection and reporting. These networks need to be strengthened and sustained.

  37.  An effective laboratory infrastructure is critical in responding to serious disease threats because laboratory confirmation is generally required to confirm a diagnosis of a serious disease. Ideally, each country should have its own laboratory facilities but this is far from being the case. Some three quarters of the 172 OIE Members are developing countries and most of the OIE Reference Laboratories and Collaborating Centres, and associated scientific expertise, are found in the remaining one quarter of the OIE Membership.

  38.  All OIE Members are obliged to comply or at least move towards compliance with the international guidelines, recommendations and standards prescribed in the OIE Codes and Manuals for both terrestrial and aquatic animals. It is therefore very important to establish the necessary scientific expertise in these countries. The OIE has undertaken an important initiative to improve the geographical balance of scientific expertise to support the veterinary services in developing countries, thereby enabling them to fulfil their obligations as OIE Members. The main objective of twinning is to strengthen laboratory capacity in poorer countries with the aim that some could eventually have OIE Reference Laboratories established. In practice the program aims to link an existing OIE Reference Laboratory or Collaborating Centre with a laboratory in a developing or in- transition country with a view to exchanging scientific expertise and building capacity. The twinning concept could apply to a "north-south" or to a "south-south" relationship.

Question 16:  The International Health Regulations 2005 are intended to provide a global framework for the rapid identification and containment of public health emergencies. How effective do you consider this response system to be? Do improvements need to be made?

  39.  The OIE is collaborating with the WHO in regard to disseminating reports received under the amended International Health Regulations 2005 (IHR). In 2007 the OIE informed all National Delegates that WHO notifications relevant to national Veterinary Services would be disseminated by the OIE on behalf of the WHO (see Annexes). The IHR are intended to improve the provision of official information on human diseases for the rapid identification and containment of public health emergencies. The OIE has much experience in this field. While the containment of animal health emergencies is a national responsibility, at a country's request the OIE assists by providing experts from its Reference Laboratories and Collaborating Centres to participate in field missions and provide advice and technical support. It is the OIE's view that the implementation of the IHR will help to strengthen transparency and to improve preparedness through dissemination of relevant information. However, States may still require assistance with response and containment activities, which may be provided by WHO or other international and regional organisations, as well as by developed countries working with donor organisations.

Question 17:  What intergovernmental planning has been undertaken to cope with the impact of an outbreak of infectious disease caused by deliberate release of micro-organisms into the environment? Is there adequate liaison between the various agencies involved, including intelligence, law enforcement and health care professionals? How could action by intergovernmental bodies help further?

  40.  Preventing the spread of disease through international movements, accidental or intentional, is one of the OIE's key objectives. One of the OIE's most important activities relevant to this objective is the publication of international standards and guidelines aimed at, inter alia, preventing the importation of pathogens that are dangerous for animals and humans.

  41.  The OIE and FAO Global Framework for the Progressive Control of Transboundary Animal Diseases (GF-TADs) provides a framework for Members of these organisations to increase their capacity to manage disease occurrences, whether natural or deliberately introduced. However, compliance with OIE standards depends on the political will of national policy-makers, including the transfer of resources to developing countries to support good governance and appropriate policy implementation.

  42.  The OIE, FAO and WHO collectively provide advice to the United Nations on preparedness for the use of biological and toxin weapons, through participation in meetings of the Biological Weapons Convention and associated bodies, including the Expert Working Group set up to review the existing technical guidelines and procedures to investigate the alleged use of such weapons. The OIE has offered to provide experts to assist in investigations and to provide information to the UN in the event that it becomes aware of a suspected event of this nature.

  43.  The OIE has recommended that the United Nations consider passing a Resolution obliging Members to implement OIE standards. This would prove invaluable in strengthening disease prevention and response mechanisms and would provide the best safeguard against bioterrorism.

Question 18 is addressed with Question 1.

Question 19:  No OIE comment.

  Other relevant information:

    Annex 1—"The Role of International Organisations in the Surveillance and Control of Epizootics" presented by the OIE Director general at the French Veterinary Academy of 5th October 2006 (English translation of an article originally published in French in Bull. Acad. Vet. France—2006—Tome 159—No.5 www.academie-veterinaire-france.fr.);

    Annex 2—"International organisations and their role in helping to protect the worldwide community against natural and intentional biological disasters"; B. Vallat, J. Pinto & A. Schudel, in Rev. Sci. Tech., OIE, 2006, 25 (1), 163-172;

    Annex 3—Letter of 22nd June 2007 to all OIE Delegates on OIE-WAHIS and WHO-IHR: "Note on international disease information mechanisms";

    Annex 4—DVD overview of the OIE.

February 2008



 
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