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LESSONS AND STRATEGIES TO
ERADICATE FMD: THE PHILIPPINE EXPERIENCE
By Carolyn Benigno1 and Reildrin Morales2
1 Former Head of the BAI National FMD Task Force, 1994 – 2003
and currently Regional Project Coordinator, FAO Emergency Center for
Transboundary Animal Diseases, Bangkok, Thailand
2 Former Deputy Head of the BAI National FMD Task Force, 2004 – 2011,
Former FAO EU-HPED RSU Animal Health Officer and currently
Livestock Consultant to the Department of Agriculture
Manila, Philippines
ABSTRACT
The FMD epidemic in 1994 prompted the government of the Philippines to prioritize FMD control and
eradication program. A strategy was developed anchored on four technical components, namely:
surveillance, public awareness, animal movement management and vaccination. The National FMD Task
Force, established by the Bureau of Animal Industry of the Philippine Department of Agriculture was
designated to oversee the FMD control and eradication program. It was the responsibility of the
NFMDTF to implement the program in a cohesive manner given that there were several stakeholders and
offices that belonged to different departments and levels. Prior to the whole country recognition, the
Philippines applied and got approvalfor FMD free recognition by zones hence getting the recognition for
the zone of Mindanao in 2001, zone of Visayas, Palawan and Masbate in 2002, North Luzon and South
Luzon in 2010 and Central Luzon in 2011. The whole Philippines was then recognized as an FMD free
country without vaccination by the OIE in May 2015. Today, efforts to strengthen emergency
preparedness and response are the main focus of the government today and with the eradication of FMD,
the country especially the veterinary services staff has gained confidence that disease eradication is
possible provided that a structural implementation mechanism is in place and that there are champions
that would promote stakeholder participation. The NFMDTF was able to lay the foundation on how
disease control efforts should be implemented hence the task force model has been applied to other
disease control programs in the country.
Keywords: foot and mouth disease (FMD), Progressive Zoning Approach,surveillance,public awareness,animal
movementmanagement,critical control pathway
INTRODUCTION
The first case of Foot and Mouth Disease (FMD) was documented in 1902 in cattle imported from Hong
Kong. The first epidemic did not occur until 1908 with a shipment of infected cattle arriving in Manila
from Hong Kong, spreading the disease to 25 provinces (BAI, 2009). The disease had impacted the
livestock industry since its first detection, up to the time of its eradication in the last zone in Luzon in
2011. The highest level of disease incidence, possibly, was in 1995, which recorded 1,553 outbreaks
affecting a total of 98,604 animals in 22 provinces, with estimated losses at US$ 43 million (Php 2
billion). This led to the issuance of an Executive Order by then President of the Republic, declaring the
island of Luzon as a calamity area, appropriating funds for the control of FMD and providing guidelines
for similar appropriations at the local government units. It is at this juncture that the support of Australian
2
Agency for International Development (AusAID) to control and eradicate FMD in the country through the
Food and Agriculture Organization of the United Nations (FAO) came and commenced in 1996 as part of
the national plan of the government (Benigno et al, 2002). The control and eradication program would
last until the last remaining zone in Luzon was recognized by the World Health Organization (OIE) as
free without vaccination in May 2011.
There were three Serotypes of FMD virus that was detected in the Philippines then. Type O1, which
had a leniency to affect only pigs was first detected in 1952 and was the last type to have been detected in
2005. Type A24 was confirmed in the country during the last part of 1975 and last detected in 1983. Type
C3, on the other hand, was first diagnosed in the third quarter of 1976 and was last isolated in 1995 (BAI,
2009). The four components of the strategy to control FMD, were: Disease Monitoring and Surveillance,
Public Awareness, Animal Movement Management and Vaccination. To date, while there are limited
activities on movement management, and vaccination has ceased since 2009; Disease Monitoring and
Surveillance, and Public Awareness remain an integral part in maintaining the free status of the country.
FMD ERADICATION IN THE PHILIPPINES
The Philippine livestock industry
As one of the major sources of livelihood in the rural areas that provide income, food and draught power
to the farming communities, the livestock sub-sector forms a strategic part of the agriculture economy
fuelling economic development. It has always contributed significantly on the total agricultural
production of the country, which made for a strong justification on the cost of eradication. In 2007, the
time when the Philippines is on the verge of eradicating FMD, the livestock sector accounted for 29% of
the total agricultural production (Morales 2009). At present, the livestock and poultry sector contributes to
about 31.5% of the total production in agriculture, which is about US$ 9.7 billion (Php 446.2 billion) at
current prices, with the hog production ranking second after rice, in the list of top commodities in the
agriculture sector. The exponentially growing population of the country translates to an increase in
demand for food of animal origin, as a cheap source of protein. Coupled with progressive urbanization
and rising income, due to improving economy, these factors produces a significant impact on the
production landscape, as farmers try to cope with the increased demand.
The livestock industry is composed of different stakeholders, namely: the cattle and hog farmers, the
allied industry that include traders, drug manufacturers and distributors, the slaughterhouse operators, and
veterinary practitioners, both in government service and private practice. In 2008, when the country has
been applying for international recognition of freedom from FMD, the total livestock inventory was about
23.8 million FMD-susceptible animals comprising of 3.3 million carabao, 2.6 million cattle, 4.2 million
goats, and 13.7 million pigs, majority of which are in the hands of small hold farmers. At this point,
Luzon accounts for 43% of the total susceptible animals (BAI 2009). Visayas and Mindanao have been a
surplus producer of pigs even during this time and ships live pigs to markets in Luzon, which had
significant implication on the number of outbreaks in Luzon, as these naïve animals were mixed with
exposed and vaccinated animals in holding yards and slaughterhouses. This trade scenario accounted for
the continued occurrence of the disease in livestock establishments such as weighing stations, auction
markets and stockyards in Luzon, even with the drastic reduction in the number of outbreaks in both
commercial and backyard farms.
The FMD control and eradication program
3
The epidemic of 1995 triggered the government to implement a national control and eradication plan for
FMD, giving BAI the mandate to serve as the main coordinating and supervisory body of the FMD
Control and Eradication Program. Thus, the National Foot and Mouth Disease Task Force (NFMDTF) or
simply “the Task Force”, was established in 1996. As the first organization of its kind in the Department
of Agriculture (DA), the Task Force coordinated with other relevant offices and units in the Department,
as well as other government agencies such as the Department of Interior and Local Government (DILG),
the Philippine National Police (PNP), and the Philippine Information Agency (PIA) for the proper
execution of its strategies (BAI 2009). The control and eradication program has been fought mainly in
Luzon, as FMD was last detected in Mindanao during 1987 and 1988 with the last sporadic cases seen in
General Santos City. And the last outbreak in Visayas was recorded in Iloilo on September 1999. The
country applied to OIE for Mindanao and Visayas, Palawan and Masbate to be recognized as FMD free
without vaccination, where Mindanao was recognized in 2001 while Zone Visayas, Palawan, and Masbate
in 2002. North Luzon and South Luzon were similarly recognized in 2010, and Central Luzon in 2011.
Strategies
The national plan to control and eradicate FMD was anchored on four (4) component strategies namely;
Disease Monitoring and Surveillance; Public Awareness, Animal Movement Management; and
Vaccination. These four general components guided the FMD control and eradication program and were
implemented not as separate components but as complementing strategies.
The strategy on disease monitoring and surveillance include the active surveillance of disease on
existing livestock establishments and continued assessment of the FMD free areas. Serological
surveillance was conducted at the national level twice a year. A passive surveillance system, through the
negative monitoring report, was also required, particularly in the free areas.
Public Awareness on the other hand focused on calling all stakeholders to action by actively
participating in the FMD Control Program. It also meant launching education campaigns on the disease
and its control, on the premise that an informed public is an empowered public. Towards the last phase of
the program, Super Pig, a mascot was used by the Task Force to intensify public education on FMD. The
“trip in Super Pig” became a household event where the Super Pig visited public markets, and made
appearances on different local and regional festivities, including guesting on national television. It
strongly directed to the consuming public, who were made aware on the need to ensure that meat they
serve on their tables are those which came from healthy animals and were duly inspected by bona fide
authorities.
Animal Movement Management meant managing the flow of livestock and livestock products which
could mean prohibition of movement to free areas or restriction of movement to areas following certain
conditions for transport. The focus was on trade patterns that would allow the strategic establishment of
checkpoints. Results from the surveillance work also complemented animal movement management
activities.
Lastly, vaccination in the endemic areas in Luzon was aimed at establishing a significant immune
population that would decrease the virus load in the environment thereby protecting the free zones. As
FMD vaccines are expensive, the “strategic mass vaccination” policy was implemented, that targeted
areas which have historical propensity on FMD outbreak, due mainly on large susceptible population and
“heavy traffic” brought by intensive trading.
4
Towards the early part of 2000, an analysis conducted on the epidemiology of outbreaks in
slaughterhouses and holding yards in the cities and municipalities in Metropolitan Manila and nearby
provinces, suggested the possibility of heavy viral contamination of these establishments as a possible
cause for immediate development of lesion for stressed and unexposed pigs from the free areas.
Accordingly, this brought to the attention the possible role of animal traders as possible carriers of the
disease in the farms where they have been sourcing their animals (Morales and Umandal 2006). This
made the Task Force to shift the focus to slaughterhouses and other similar establishments as possible
sources of infection, with the traders as suspect carriers. Metropolitan Manila, which has the biggest
volume of animals slaughtered and considered an end point in the virus circulation, is now, being treated
as possible source.
As a result of this shift, the Compliance Monitoring Teams (CMT) were created to intensify
monitoring and surveillance, particularly on shipments of susceptible animals in slaughterhouses,
weighing stations and stockyards in Metropolitan Manila. The CMT operations were later expanded to
nearby provinces in 2004. In this span of time, the CMT were able to visit a total of 24 slaughterhouses
and 3 stockyards in Metropolitan Manila for 513 times destroying 1,014 infected animals in the process.
In addition, 168 slaughterhouses and auction markets in 289 cities/municipalities in 9 nearby provinces
were also visited. During these visits, the physical status and operations of the above mentioned
establishments were documented, and appropriate reports were prepared for action of relevant authorities
(CMT report, 2005).
The basis of CMT operations were actually linked with the permitting system designed to manage
movement of FMD susceptible animals, particularly swine. This system was anchored on a scheme of
accreditation of commercial or breeder farms, and licensing of traders, to ensure that only healthy animals
are shipped out to the market. Deputation of licensed farm veterinarians were also instituted to
accommodate the humongous tasks that the system entailed, and to ensure that the regulation will not be
counter productive and restrictive. This also incentivized the system for complying farms and private
veterinarians.
Along this line, close collaboration with the veterinary offices of the local government units (LGU)
were undertaken to enjoin all local chief executives in the campaign, as local government units (LGUs)
have a relative degree of administrative autonomy under the Local Government Code. Equally important
to sustain the activities of the program at the LGUs level, was the advocacy for the passage of local
ordinances or laws enforcing the national guidelines for the control and eradication of FMD. This was the
area that the public awareness team of the Task Force has been very strong and successful. Constant
dialogue with the LGUs and other stakeholders were undertaken to ensure that FMD remains a priority
with substantive attention that translates to tangible support, such as funding and local orders pertinent to
the program.
The critical control pathway
As the program was anchored on four component strategies that complement each other, the respective
activities of these strategies are likewise implemented alongside each other. And there can be no better
illustration to describe the harmony of these activities than the Critical Control Pathway. The pathway
simply identified the critical nodes from production to market, where necessary interventions were
designed to address the risks posed along these nodes. And these interventions were similarly
complementary to support each other (Morales 2009).
5
In the farm, vaccination of susceptible animals was considered necessary to reduce clinical
manifestation of the disease, and therefore prevent its spread. This particular activity was encouraged and
made as one of the requirements in farm accreditation. Farm accreditation in return was a requirement for
deputation of farm veterinarians, which allows ease of issuance of shipping documents for the concerned
farms. There has been locally declared regions, as either free with or without vaccination, as well as
protected areas, or those which have sporadic outbreaks due to sourcing of infected animals from the
endemic areas. And there have been appropriate policies that regulate the movement or trade of
susceptible animals between these areas.
The trade of susceptible animals were also regulated with the licensing of traders and their respective
carriers. A “no- document-no slaughter” and “all-in-all-out policies in slaughterhouses; and a “no-
document-return-to-origin” policy on quarantine checkpoints were also issued to enjoin compliance to the
documentation system. Enforcing compliance on these policies were the CMT, which visits stockyard and
slaughter houses, and the animal health monitoring checkpoints, operating 24 hours in key areas going to
Metropolitan Manila.
At the end points, “selective stamping-out” or destruction of infected animals were carried out,
without any form or amount of compensation provided to traders. This was implemented to discourage
movement of infected animals, as some farmers have shown strong tendency to sell infected or diseased
animals in last ditch efforts to recoup losses. Similarly, the same is true for unscrupulous traders that
usually buy cheap,sick animals and slaughter them for bigger profit.
Progressive zoning approach
The net outcome or result of complementary strategies instituted to control and eradicate FMD has been
secured and expanded, from smaller to bigger areas, through the adoption of a final strategy called
Progressive Zoning Approach. This approach used compartmentalization of the different regions in the
country based on their FMD status. The approach was aimed at arresting the disease situation of a given
area and protect the gains in this area by upgrading its status from infected to protected, and later on, as
free areas (with or without vaccination). The differences in disease status were then used as the basis of
movement management of susceptible animals, as measures to prevent re-infection. As a matter of policy,
animals from areas considered endemic or infected are not allowed for shipment in areas considered free,
this has also been used as a form of incentive to free areas which can ship animals to endemic or infected
areas. This approach also made use of the archipelagic nature of the country’s geography to provide a
natural barrier to the spread of the disease from one region to another.
In 1993, the Secretary of the Department of Agriculture issued Administrative Order No. 8 declaring
Mindanao as an FMD Free zone after scientific validation, providing a restrictive policy on the movement
of susceptible animals going to the island. In 1999, a similar declaration was made for Eastern (Region
VI) and Central (VII) Visayas through Department Memorandum No. 7. These local declarations paved
the way for the international application of freedom in 2001 for Mindanao and 2002 for Visayas, Palawan
and Masbate. In June 2004, Administrative Order No.15 was signed declaring Regions II (Cagayan
Valley) in the north, IVB (island provinces of Southern Tagalog) and V (Bicol) as FMD Free zones
without vaccination, leaving 13 provinces in 5 regions as affected by FMD (Morales and Umandal 2006).
This then paved the way for the OIE recognition of North Luzon and South Luzon in 2010 and Central
Luzon in 2011.
CONCLUSIONS
6
The FMD control and eradication in the Philippines has been successful because of several factors which
include; presence of political support that translated to funding and implementation of appropriate,
science-based policies. These would include the executive order that initiated the development of a
national plan to control and eradicate FMD, and succeeding administrative orders that provided strict
guidance on surveillance, animal movement management, and vaccination of susceptible animals.
The benefits of controlling and eradicating the disease are not immediately appreciated by the
farmers, particularly small holders. Impacts of eradication such as lower production cost, absence of
direct losses attributed to the disease (value of animal), increased productivity (absence of disease), and
export potential, will not necessarily translate to cooperation. Macro level outcome simply does not
appeal to farmers whose immediate concern is food on the table. Thus, a strong advocacy front is needed
to bring the stakeholders on a common ground; to assume ownership of the program and implement given
measures, as its intended beneficiaries. As science-based strategies are important; involvement and
ownership by the stakeholders in its implementation are necessary for these strategies to succeed and
deliver the intended results. The Philippine experience has also demonstrated the importance of networks
and collaborations among stakeholders. This is essential in implementing guidelines that maybe
restrictive or prohibitive in some extent. The presence of a functional coordination platform that provides
an avenue for the meeting of the minds of relevant stakeholders present a dichotomy of interests, which
properly resolved, postulates an inclusive agenda for success.
The capacity built in the veterinary services during the eradication of FMD is also a good model for
other disease control programs to follow. The presence of a dedicated team- FMD Task Force to work in
carrying out the activities in the national plan, allowed simultaneous implementation of complementary
activities to deliver desired results. In addition, the structure allowed constant, and closely coordinated
activities among the national, regional and local counterparts, including the private sector , and other
stakeholders.
REFERENCES
Benigno, C., Santos, I. and Umandal, C., 2002. The Program Management Approach to FMD Control in
the Philippines. The FMD Monitor, Special Research Journal Edition, pp 1-5.
Bureau of Animal Industry, 2009, Dossier on OIE Application of Freedom for Luzon, 28 January.
Official Report, Compliance Monitoring Team,2005.
Morales, R. 2006, Philippines FMD Country Report, paper presented to the 12th
OIE SEAFMD
Subcommission Meeting, Thailand, 27 February.
Morales, R. 2009. Economic Impact of Foot and Mouth Disease (FMD)Eradication in the Philippines.
(http://www.standardsfacility.org/sites/default/files/STDF_Coord_291_No04ReildrinMORALESfmd
_stdf_wto_30Oct09.pdf)
Morales, R and Umandal, AC, 2006. Progressive Zoning Approach In The Final Phase Of FMD Control
And Eradication In The Philippines, Proceedings of the 11th
Symposium of ISVEE, Cairns, Australia,
Theme 6-Global response & emerging diseases: Foot and Mouth Disease Session, pp 948.

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08 Reildrin Morales (Phils)

  • 1. 1 LESSONS AND STRATEGIES TO ERADICATE FMD: THE PHILIPPINE EXPERIENCE By Carolyn Benigno1 and Reildrin Morales2 1 Former Head of the BAI National FMD Task Force, 1994 – 2003 and currently Regional Project Coordinator, FAO Emergency Center for Transboundary Animal Diseases, Bangkok, Thailand 2 Former Deputy Head of the BAI National FMD Task Force, 2004 – 2011, Former FAO EU-HPED RSU Animal Health Officer and currently Livestock Consultant to the Department of Agriculture Manila, Philippines ABSTRACT The FMD epidemic in 1994 prompted the government of the Philippines to prioritize FMD control and eradication program. A strategy was developed anchored on four technical components, namely: surveillance, public awareness, animal movement management and vaccination. The National FMD Task Force, established by the Bureau of Animal Industry of the Philippine Department of Agriculture was designated to oversee the FMD control and eradication program. It was the responsibility of the NFMDTF to implement the program in a cohesive manner given that there were several stakeholders and offices that belonged to different departments and levels. Prior to the whole country recognition, the Philippines applied and got approvalfor FMD free recognition by zones hence getting the recognition for the zone of Mindanao in 2001, zone of Visayas, Palawan and Masbate in 2002, North Luzon and South Luzon in 2010 and Central Luzon in 2011. The whole Philippines was then recognized as an FMD free country without vaccination by the OIE in May 2015. Today, efforts to strengthen emergency preparedness and response are the main focus of the government today and with the eradication of FMD, the country especially the veterinary services staff has gained confidence that disease eradication is possible provided that a structural implementation mechanism is in place and that there are champions that would promote stakeholder participation. The NFMDTF was able to lay the foundation on how disease control efforts should be implemented hence the task force model has been applied to other disease control programs in the country. Keywords: foot and mouth disease (FMD), Progressive Zoning Approach,surveillance,public awareness,animal movementmanagement,critical control pathway INTRODUCTION The first case of Foot and Mouth Disease (FMD) was documented in 1902 in cattle imported from Hong Kong. The first epidemic did not occur until 1908 with a shipment of infected cattle arriving in Manila from Hong Kong, spreading the disease to 25 provinces (BAI, 2009). The disease had impacted the livestock industry since its first detection, up to the time of its eradication in the last zone in Luzon in 2011. The highest level of disease incidence, possibly, was in 1995, which recorded 1,553 outbreaks affecting a total of 98,604 animals in 22 provinces, with estimated losses at US$ 43 million (Php 2 billion). This led to the issuance of an Executive Order by then President of the Republic, declaring the island of Luzon as a calamity area, appropriating funds for the control of FMD and providing guidelines for similar appropriations at the local government units. It is at this juncture that the support of Australian
  • 2. 2 Agency for International Development (AusAID) to control and eradicate FMD in the country through the Food and Agriculture Organization of the United Nations (FAO) came and commenced in 1996 as part of the national plan of the government (Benigno et al, 2002). The control and eradication program would last until the last remaining zone in Luzon was recognized by the World Health Organization (OIE) as free without vaccination in May 2011. There were three Serotypes of FMD virus that was detected in the Philippines then. Type O1, which had a leniency to affect only pigs was first detected in 1952 and was the last type to have been detected in 2005. Type A24 was confirmed in the country during the last part of 1975 and last detected in 1983. Type C3, on the other hand, was first diagnosed in the third quarter of 1976 and was last isolated in 1995 (BAI, 2009). The four components of the strategy to control FMD, were: Disease Monitoring and Surveillance, Public Awareness, Animal Movement Management and Vaccination. To date, while there are limited activities on movement management, and vaccination has ceased since 2009; Disease Monitoring and Surveillance, and Public Awareness remain an integral part in maintaining the free status of the country. FMD ERADICATION IN THE PHILIPPINES The Philippine livestock industry As one of the major sources of livelihood in the rural areas that provide income, food and draught power to the farming communities, the livestock sub-sector forms a strategic part of the agriculture economy fuelling economic development. It has always contributed significantly on the total agricultural production of the country, which made for a strong justification on the cost of eradication. In 2007, the time when the Philippines is on the verge of eradicating FMD, the livestock sector accounted for 29% of the total agricultural production (Morales 2009). At present, the livestock and poultry sector contributes to about 31.5% of the total production in agriculture, which is about US$ 9.7 billion (Php 446.2 billion) at current prices, with the hog production ranking second after rice, in the list of top commodities in the agriculture sector. The exponentially growing population of the country translates to an increase in demand for food of animal origin, as a cheap source of protein. Coupled with progressive urbanization and rising income, due to improving economy, these factors produces a significant impact on the production landscape, as farmers try to cope with the increased demand. The livestock industry is composed of different stakeholders, namely: the cattle and hog farmers, the allied industry that include traders, drug manufacturers and distributors, the slaughterhouse operators, and veterinary practitioners, both in government service and private practice. In 2008, when the country has been applying for international recognition of freedom from FMD, the total livestock inventory was about 23.8 million FMD-susceptible animals comprising of 3.3 million carabao, 2.6 million cattle, 4.2 million goats, and 13.7 million pigs, majority of which are in the hands of small hold farmers. At this point, Luzon accounts for 43% of the total susceptible animals (BAI 2009). Visayas and Mindanao have been a surplus producer of pigs even during this time and ships live pigs to markets in Luzon, which had significant implication on the number of outbreaks in Luzon, as these naïve animals were mixed with exposed and vaccinated animals in holding yards and slaughterhouses. This trade scenario accounted for the continued occurrence of the disease in livestock establishments such as weighing stations, auction markets and stockyards in Luzon, even with the drastic reduction in the number of outbreaks in both commercial and backyard farms. The FMD control and eradication program
  • 3. 3 The epidemic of 1995 triggered the government to implement a national control and eradication plan for FMD, giving BAI the mandate to serve as the main coordinating and supervisory body of the FMD Control and Eradication Program. Thus, the National Foot and Mouth Disease Task Force (NFMDTF) or simply “the Task Force”, was established in 1996. As the first organization of its kind in the Department of Agriculture (DA), the Task Force coordinated with other relevant offices and units in the Department, as well as other government agencies such as the Department of Interior and Local Government (DILG), the Philippine National Police (PNP), and the Philippine Information Agency (PIA) for the proper execution of its strategies (BAI 2009). The control and eradication program has been fought mainly in Luzon, as FMD was last detected in Mindanao during 1987 and 1988 with the last sporadic cases seen in General Santos City. And the last outbreak in Visayas was recorded in Iloilo on September 1999. The country applied to OIE for Mindanao and Visayas, Palawan and Masbate to be recognized as FMD free without vaccination, where Mindanao was recognized in 2001 while Zone Visayas, Palawan, and Masbate in 2002. North Luzon and South Luzon were similarly recognized in 2010, and Central Luzon in 2011. Strategies The national plan to control and eradicate FMD was anchored on four (4) component strategies namely; Disease Monitoring and Surveillance; Public Awareness, Animal Movement Management; and Vaccination. These four general components guided the FMD control and eradication program and were implemented not as separate components but as complementing strategies. The strategy on disease monitoring and surveillance include the active surveillance of disease on existing livestock establishments and continued assessment of the FMD free areas. Serological surveillance was conducted at the national level twice a year. A passive surveillance system, through the negative monitoring report, was also required, particularly in the free areas. Public Awareness on the other hand focused on calling all stakeholders to action by actively participating in the FMD Control Program. It also meant launching education campaigns on the disease and its control, on the premise that an informed public is an empowered public. Towards the last phase of the program, Super Pig, a mascot was used by the Task Force to intensify public education on FMD. The “trip in Super Pig” became a household event where the Super Pig visited public markets, and made appearances on different local and regional festivities, including guesting on national television. It strongly directed to the consuming public, who were made aware on the need to ensure that meat they serve on their tables are those which came from healthy animals and were duly inspected by bona fide authorities. Animal Movement Management meant managing the flow of livestock and livestock products which could mean prohibition of movement to free areas or restriction of movement to areas following certain conditions for transport. The focus was on trade patterns that would allow the strategic establishment of checkpoints. Results from the surveillance work also complemented animal movement management activities. Lastly, vaccination in the endemic areas in Luzon was aimed at establishing a significant immune population that would decrease the virus load in the environment thereby protecting the free zones. As FMD vaccines are expensive, the “strategic mass vaccination” policy was implemented, that targeted areas which have historical propensity on FMD outbreak, due mainly on large susceptible population and “heavy traffic” brought by intensive trading.
  • 4. 4 Towards the early part of 2000, an analysis conducted on the epidemiology of outbreaks in slaughterhouses and holding yards in the cities and municipalities in Metropolitan Manila and nearby provinces, suggested the possibility of heavy viral contamination of these establishments as a possible cause for immediate development of lesion for stressed and unexposed pigs from the free areas. Accordingly, this brought to the attention the possible role of animal traders as possible carriers of the disease in the farms where they have been sourcing their animals (Morales and Umandal 2006). This made the Task Force to shift the focus to slaughterhouses and other similar establishments as possible sources of infection, with the traders as suspect carriers. Metropolitan Manila, which has the biggest volume of animals slaughtered and considered an end point in the virus circulation, is now, being treated as possible source. As a result of this shift, the Compliance Monitoring Teams (CMT) were created to intensify monitoring and surveillance, particularly on shipments of susceptible animals in slaughterhouses, weighing stations and stockyards in Metropolitan Manila. The CMT operations were later expanded to nearby provinces in 2004. In this span of time, the CMT were able to visit a total of 24 slaughterhouses and 3 stockyards in Metropolitan Manila for 513 times destroying 1,014 infected animals in the process. In addition, 168 slaughterhouses and auction markets in 289 cities/municipalities in 9 nearby provinces were also visited. During these visits, the physical status and operations of the above mentioned establishments were documented, and appropriate reports were prepared for action of relevant authorities (CMT report, 2005). The basis of CMT operations were actually linked with the permitting system designed to manage movement of FMD susceptible animals, particularly swine. This system was anchored on a scheme of accreditation of commercial or breeder farms, and licensing of traders, to ensure that only healthy animals are shipped out to the market. Deputation of licensed farm veterinarians were also instituted to accommodate the humongous tasks that the system entailed, and to ensure that the regulation will not be counter productive and restrictive. This also incentivized the system for complying farms and private veterinarians. Along this line, close collaboration with the veterinary offices of the local government units (LGU) were undertaken to enjoin all local chief executives in the campaign, as local government units (LGUs) have a relative degree of administrative autonomy under the Local Government Code. Equally important to sustain the activities of the program at the LGUs level, was the advocacy for the passage of local ordinances or laws enforcing the national guidelines for the control and eradication of FMD. This was the area that the public awareness team of the Task Force has been very strong and successful. Constant dialogue with the LGUs and other stakeholders were undertaken to ensure that FMD remains a priority with substantive attention that translates to tangible support, such as funding and local orders pertinent to the program. The critical control pathway As the program was anchored on four component strategies that complement each other, the respective activities of these strategies are likewise implemented alongside each other. And there can be no better illustration to describe the harmony of these activities than the Critical Control Pathway. The pathway simply identified the critical nodes from production to market, where necessary interventions were designed to address the risks posed along these nodes. And these interventions were similarly complementary to support each other (Morales 2009).
  • 5. 5 In the farm, vaccination of susceptible animals was considered necessary to reduce clinical manifestation of the disease, and therefore prevent its spread. This particular activity was encouraged and made as one of the requirements in farm accreditation. Farm accreditation in return was a requirement for deputation of farm veterinarians, which allows ease of issuance of shipping documents for the concerned farms. There has been locally declared regions, as either free with or without vaccination, as well as protected areas, or those which have sporadic outbreaks due to sourcing of infected animals from the endemic areas. And there have been appropriate policies that regulate the movement or trade of susceptible animals between these areas. The trade of susceptible animals were also regulated with the licensing of traders and their respective carriers. A “no- document-no slaughter” and “all-in-all-out policies in slaughterhouses; and a “no- document-return-to-origin” policy on quarantine checkpoints were also issued to enjoin compliance to the documentation system. Enforcing compliance on these policies were the CMT, which visits stockyard and slaughter houses, and the animal health monitoring checkpoints, operating 24 hours in key areas going to Metropolitan Manila. At the end points, “selective stamping-out” or destruction of infected animals were carried out, without any form or amount of compensation provided to traders. This was implemented to discourage movement of infected animals, as some farmers have shown strong tendency to sell infected or diseased animals in last ditch efforts to recoup losses. Similarly, the same is true for unscrupulous traders that usually buy cheap,sick animals and slaughter them for bigger profit. Progressive zoning approach The net outcome or result of complementary strategies instituted to control and eradicate FMD has been secured and expanded, from smaller to bigger areas, through the adoption of a final strategy called Progressive Zoning Approach. This approach used compartmentalization of the different regions in the country based on their FMD status. The approach was aimed at arresting the disease situation of a given area and protect the gains in this area by upgrading its status from infected to protected, and later on, as free areas (with or without vaccination). The differences in disease status were then used as the basis of movement management of susceptible animals, as measures to prevent re-infection. As a matter of policy, animals from areas considered endemic or infected are not allowed for shipment in areas considered free, this has also been used as a form of incentive to free areas which can ship animals to endemic or infected areas. This approach also made use of the archipelagic nature of the country’s geography to provide a natural barrier to the spread of the disease from one region to another. In 1993, the Secretary of the Department of Agriculture issued Administrative Order No. 8 declaring Mindanao as an FMD Free zone after scientific validation, providing a restrictive policy on the movement of susceptible animals going to the island. In 1999, a similar declaration was made for Eastern (Region VI) and Central (VII) Visayas through Department Memorandum No. 7. These local declarations paved the way for the international application of freedom in 2001 for Mindanao and 2002 for Visayas, Palawan and Masbate. In June 2004, Administrative Order No.15 was signed declaring Regions II (Cagayan Valley) in the north, IVB (island provinces of Southern Tagalog) and V (Bicol) as FMD Free zones without vaccination, leaving 13 provinces in 5 regions as affected by FMD (Morales and Umandal 2006). This then paved the way for the OIE recognition of North Luzon and South Luzon in 2010 and Central Luzon in 2011. CONCLUSIONS
  • 6. 6 The FMD control and eradication in the Philippines has been successful because of several factors which include; presence of political support that translated to funding and implementation of appropriate, science-based policies. These would include the executive order that initiated the development of a national plan to control and eradicate FMD, and succeeding administrative orders that provided strict guidance on surveillance, animal movement management, and vaccination of susceptible animals. The benefits of controlling and eradicating the disease are not immediately appreciated by the farmers, particularly small holders. Impacts of eradication such as lower production cost, absence of direct losses attributed to the disease (value of animal), increased productivity (absence of disease), and export potential, will not necessarily translate to cooperation. Macro level outcome simply does not appeal to farmers whose immediate concern is food on the table. Thus, a strong advocacy front is needed to bring the stakeholders on a common ground; to assume ownership of the program and implement given measures, as its intended beneficiaries. As science-based strategies are important; involvement and ownership by the stakeholders in its implementation are necessary for these strategies to succeed and deliver the intended results. The Philippine experience has also demonstrated the importance of networks and collaborations among stakeholders. This is essential in implementing guidelines that maybe restrictive or prohibitive in some extent. The presence of a functional coordination platform that provides an avenue for the meeting of the minds of relevant stakeholders present a dichotomy of interests, which properly resolved, postulates an inclusive agenda for success. The capacity built in the veterinary services during the eradication of FMD is also a good model for other disease control programs to follow. The presence of a dedicated team- FMD Task Force to work in carrying out the activities in the national plan, allowed simultaneous implementation of complementary activities to deliver desired results. In addition, the structure allowed constant, and closely coordinated activities among the national, regional and local counterparts, including the private sector , and other stakeholders. REFERENCES Benigno, C., Santos, I. and Umandal, C., 2002. The Program Management Approach to FMD Control in the Philippines. The FMD Monitor, Special Research Journal Edition, pp 1-5. Bureau of Animal Industry, 2009, Dossier on OIE Application of Freedom for Luzon, 28 January. Official Report, Compliance Monitoring Team,2005. Morales, R. 2006, Philippines FMD Country Report, paper presented to the 12th OIE SEAFMD Subcommission Meeting, Thailand, 27 February. Morales, R. 2009. Economic Impact of Foot and Mouth Disease (FMD)Eradication in the Philippines. (http://www.standardsfacility.org/sites/default/files/STDF_Coord_291_No04ReildrinMORALESfmd _stdf_wto_30Oct09.pdf) Morales, R and Umandal, AC, 2006. Progressive Zoning Approach In The Final Phase Of FMD Control And Eradication In The Philippines, Proceedings of the 11th Symposium of ISVEE, Cairns, Australia, Theme 6-Global response & emerging diseases: Foot and Mouth Disease Session, pp 948.