Animal Health Functional Plan

1. About this Document

1.1 Introduction

The Canadian Food Inspection Agency (CFIA or "Agency") is mandated by the Minister of Agriculture and Agri-Food to respond to incursions of foreign animal disease (FAD) into Canada. Outbreaks of the most serious of these diseases could cost Canada's livestock industry billions of dollars in lost production, the loss of international markets through export embargoes, collateral damage, and the costs of control and response activities. As well, there could be a potential threat to the safe supply of certain food commodities.

Being prepared for animal health incidents is one of the most important aspects of the CFIA's emergency response program. Therefore, all participants in any emergency response team (ERT) should be aware of and carry out their preparedness and contingency planning well in advance of a possible event. This planning may take different forms, from establishing and updating contacts with outside participating agencies to the mobilization of the ERT(s), in a simulation exercise.

To be truly effective, emergency response involves collaboration with other federal and provincial departments, municipalities, stakeholders, and public and international agencies. These collaborations are described in the CFIA Emergency Response Plan and, in the case of an animal health incident, in the Foreign Animal Disease Emergency Support (FADES) Plans that were drafted in conjunction with each province.

This Animal Health Functional Plan (AHFP) describes the division of labour and responsibilities between the Field (District), Region, Area, and National levels to prepare for and respond to animal health incidents.

1.2 Purpose

The objectives of the AHFP are to outline the national FAD emergency response program and describe the process for all phases of the incident. This includes defining the responsibilities for preparedness for managers and responders, and defining the structure and responsibilities of the various units within the CFIA during a FAD incident.

1.3 Applicability and Scope

The AHFP is intended for CFIA staff who are responsible for responding to FAD incidents. This includes CFIA inspectors, field staff, and managers.

For planning purposes, the AHFP is a guide-the recommendations may be used and adapted as appropriate. At the time of an outbreak, this document supports the appropriate hazard specific plan (HSP), and will be considered policy to be followed by responders. This document is not the sole authority for a FAD incident response: it is part of an integrated emergency planning approach used in the Agency. Therefore, it should be used in conjunction with a HSP, if applicable, and other manuals, plans, and procedures.

CFIA staff must carry out contingency planning in their own areas of accountability and must be aware of existing operating procedures.

1.4 Amendments and Revisions

The Animal Health and Production Division (AHPD) of the CFIA is the custodian of this document. To ensure the information remains current, the AHPD, related program divisions, and the Science Branch will review the AHFP annually or following a major incident. The annual review is to be completed by the end of the first quarter (March 31).

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2. Legislative Authority

The CFIA response to animal health incidents is mandated under a number of pieces of legislation, principally the Health of Animals Act and Meat Inspection Act, administered by the Agency. For a more detailed description of other supporting acts and regulations, refer to the CFIA Emergency Response Plan.

2.1 Health of Animals Act

The Health of Animals Act ("Act") addresses diseases and toxic substances that may affect animals or be transmitted by animals to persons, and the protection of animals. The purpose of the Act and the Health of Animal Regulations is to prevent the introduction and spread of communicable diseases in Canada. The Act provides, among other things, for the importation and exportation of animals, the control of infected places, and the regulation of animal transportation.

CFIA inspectors and enforcement officers designated under the Health of Animals Act may:

• Enter premises;
• Open receptacles or things;
• Require presentation of animals for inspection;
• Examine any animal or thing;
• Require production of documents;
• Conduct tests or analyses;
• Seize and detain animals; and
• Enter a dwelling place with a warrant.

The Act allows for compensation for animals seized and ordered destroyed. The regulations deal with importation and exportation of animals, destruction of diseased animals, humane treatment of animals, control of veterinary biologics, and so on.

2.2 Meat Inspection Act

The Meat Inspection Act is designed to protect Canadians from health hazards that may be present in meat and meat products. It deals with: the import, export, and interprovincial trade in meat products; the registration of establishments; the inspection of animals and meat products in registered establishments, and the standards for animals slaughtered and for meat products prepared in these establishments

The regulations deal with standards for: meat; the design, construction, maintenance, and operation of registered establishments; the inspection and disposal of meat products; transportation and storage; and packing and labelling of meat products

Inspectors designated under the Meat Inspection Act have the authority to:

• Enter premises or vehicles;
• Open packages;
• Inspect and take samples;
• Request the production of documents;
• Seize and detain meat and meat products; and
• With a warrant, enter a dwelling.

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3. Partners

Partners at all levels of government, as well as industry and public and international agencies, play important roles in FAD incident response activities.

3.1 Federal Partners

Various federal agencies and departments may provide support to the CFIA in undertaking FAD incident response activities. Each federal authority should identify the resources and specific skills they will provide in advance of emergency situations.

3.1.1 Public Health Agency of Canada/Health Canada

FAD outbreaks may involve partnerships with Health Canada and/or the Public Health Agency of Canada (PHAC).

PHAC is responsible for:

• Decreasing transmission of infectious diseases through surveillance and epidemiology, risk management, research including laboratory science; and
• Monitoring outbreaks and global disease events, assessing public health risks during emergencies, keeping Canada's health and emergency policies in line with threats to public health security, and general security.

Health Canada is responsible for:

• Setting standards and policies governing the safety and nutritional quality of all food sold in Canada, as well as providing health risk assessments to the CFIA;
• Engaging in research, risk assessment, pre-market review and evaluation, as well as the regulation and registration of pest control products;

3.1.2 Canadian Border Services Agency

The Canadian Border Services Agency (CBSA) administers laws that govern international trade, travel, and management of Canada's borders. The CBSA protects Canadians from threats to health, safety, and security while maintaining the flow of legitimate goods and travellers across the border.

The CBSA is responsible for:

• Processing commercial goods, travellers, and conveyances, and identifying and interdicting high-risk individuals and goods;
• Working with law enforcement agencies to maintain border integrity and ensure national security;
• Engaging in enforcement activities, including investigations and detentions; and
• Conducting compliance audit reviews and dumping and subsidy investigations.

3.1.3 Environment Canada

In an environmental incident, Environment Canada provides timely scientific advice and technical support to the lead agency and other support agencies engaged in an incident response. This advice is provided in an effort to limit the effects on wildlife, ecosystems, and water quality, and determine expedient methods of environmental cleanup.

Environment Canada's Wildlife Services Branch is responsible for the health of wildlife in national parks and migratory species. They are also the coordinators of Canada's National Wildlife Disease Strategy.

To address various matters related to environmental incidents, Environment Canada also plays a lead role in promoting and maintaining multi-stakeholder voluntary groups and organizations that include other federal government departments, provincial, territorial, and local governments, industry, and non-governmental organizations (NGOs).

3.1.4 Health Canada

Health Canada has the responsibility for responding to human health incidents. As a result, Health Canada would have a major involvement in animal health issues in cases of zoonotic disease outbreak.

3.1.5 Public Safety Canada

Part of the National Command Group, Public Safety Canada (PSC) is responsible for:

• Safeguarding lives and assuring the health, safety, and security of Canadians;
• Supporting economic well-being of Canadians, including minimization of damage to property;
• Contributing to effective functioning of governments, including protecting critical infrastructure; and
• Coordinating the contribution of law enforcement agencies such as the RCMP in areas requiring assistance such as traffic control.

3.1.6 Agriculture and Agri-Food Canada

The CFIA and Agriculture and Agri-Food Canada (AAFC), in collaboration with provincial departments of agriculture and other agri-food sector stakeholders, have established the Food and Agriculture Emergency Response System (FAERS). FAERS provides a policy and emergency planning framework for managing incidents. It is designed to link the federal, provincial, and private sectors in incident response.

AAFC is responsible for maintaining FAERS and the AAFC part of the National Support Plan (see Appendix B of the CFIA Emergency Response Plan for a more detailed description).

3.2 Provinces, Territories, and Municipalities

Provincial, territorial, and municipal governments take lead roles in supporting the CFIA investigation of FAD outbreaks within their boundaries.

Many provinces have signed a FADES Plan with the CFIA that sets out the roles and responsibilities of provincial and local agencies during a FAD outbreak. Provincial veterinarians, in their respective ministries of agriculture, generally coordinate the activities of their animal health network at the provincial level in close cooperation with the CFIA and industry associations.

There are also provincial emergency measures organizations that are responsible for incident response within their provincial jurisdictions for a broad range of natural, man-made, and epidemiological disasters. They work closely with provincial ministries and industries in planning for and responding to incidents.

3.3 Stakeholders

The CFIA works with all stakeholders (e.g., livestock industry, veterinary associations, academia) involved in a FAD outbreak. The CFIA will look to industry for technical assistance, cooperation in response measures, advice, and support during an incident response.

The Agency closely monitors the status of security measures at border points of entry and shares new information with stakeholders as it becomes available. The AHPD Director communicates with national industries through the Canadian Animal Health Consultative Committee (CAHCC).

3.4 International Agencies

Depending on the incident, international agreements with the CFIA may need to be considered, including the exchange of information related to FAD emergencies with the World Organisation for Animal Health (OIE) and mobilization of the International Animal Health Emergency Management Reserve.

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4. Emergency Preparedness

This chapter identifies some of the preparedness planning required prior to incident response activities. To be successful, a FAD incident response requires speed and effective organization. Preparing in advance of any incident mitigates delays and confusion that can occur during the actual emergency operation. This contingency planning must be done at every level (i.e., Field (District), Regional, and Area offices, National Headquarters, and at registered establishments).

Effective contingency planning requires:

• Each responder having a 48- to 72-hour plan in order to function without support in the initial phase of the incident;
• Knowing the time required to gather all relevant equipment, supplies, forms, and so on;
• Having a plan that identifies locations to set up one or more Emergency Operations Centres (EOCs);
• Designating responsibilities and training team members in incident procedures;
• Having a register of specialized staff, together with their qualifications and expertise or experience with key emergency diseases;
• Having a resource plan containing an inventory (e.g., equipment and other physical resources) of existing resources and a list of all the resources that will be needed to respond to a moderate-sized outbreak of each of the high-priority diseases;
• Having contingency plans that, once prepared, are recognized as living, rather than static, documents that are regularly reviewed and updated as warranted by changing circumstances.

Note: More detailed information on emergency preparedness and the Incident Command System (ICS) can also be found in the CFIA Emergency Response Plan.

4.1 Field (District) Office

The District Veterinarian (DV) is responsible for maintaining detailed knowledge of the resources available in the Field or District. The DV will establish local contacts to obtain collaboration from stakeholders for control and response activities.

4.1.1 District Office Contingency Plan

Each District is responsible for developing and maintaining a District contingency plan, which includes a written record of logistical information, and is updated at least annually. A copy of each document is kept at the Regional Office. The format of the District plan should conform to instructions provided by the Area FAD Program Officer. The plan must be distributed to the appropriate Area and Regional staff or common drive as instructed by the Area FAD Program Officer. National or Area operational staff, in cooperation with the Area FAD Program Officer, will audit the District contingency plan on a regular basis. The audit will evaluate the content of the plan and identify areas for improvement.

The record should list the following:

• Local resources that can provide logistical support during the first few days of the response including:
  • Motel-type accommodation in the district that can accommodate 25 persons or more;
  • Public buildings with suitable space; and
  • Public Works contact.
• Disposal sites (e.g., landfills, dumps, incinerators)-consult with the local environmental officer for suitability;
• Supplies and equipment-specify suppliers' name, address, telephone number (plus off-hours contact), type of equipment, and quantity available (or time needed to obtain) for the following:
  • Work clothes and safety equipment;
  • Contractors for equipment and operators for handling carcasses;
  • Cremation material (e.g., heavy timbers, straw);
  • Commercial laundry facilities;
  • Cleaning and decontamination (C&D) equipment and services contractors;
  • Approved disinfectants;
  • Portable generators;
  • Commercial pest control firms; and
  • Access to 1:50,000 scale maps for the territory.

Note: The contents of the emergency specimen submission kit (Go Kit) should be checked twice a year. The kit is required by all districts, as designated by the Regional Director (see Appendix E).

The contingency planning tasks for the District include

• Maintaining District expertise by updating and developing knowledge about FADs using available audiovisual material, books, periodicals, seminars, web-based, and formal training as proposed by the Area FAD Program Officer in conjunction with the National training specialists;
• Establishing public education and maintain public awareness of emergency disease response through periodic contacts with individuals and agricultural organizations at the District level; and
• Maintaining a separate file on FAD that includes:
  • CFIA procedures including the AHFP, HSPs, and Common Procedures Manual;
  • Regional Emergency Response Team (RERT) organization chart, with addresses and phone numbers provided by the Regional Office; and
  • District Office contingency plan.

4.1.2 District Special Premises

The District Office is responsible for ensuring that planning is done for handling special premises (e.g., abattoirs that may become contaminated) during an outbreak. This should include discussions with management and the Veterinarian in Charge (VIC) or Regional Veterinarian Officer (RVO) on detailed plans to minimize spread through animals, products, people, vehicles, or disposal, and consultations with local police regarding their ability to assist. Plans should include a schematic diagram of the facility, noting how to control access in and out.

In each case, the District Office should list the owner's name, address, telephone numbers, location of business, and approximate size of operation, and have a copy of the special premises FAD response plan as part of the District contingency plan file.

Special premises include:

• Abattoirs (specify daily capacity, species slaughtered, name of veterinarian in charge, Provincial or Federal inspection, see Section 4.5);
• Artificial insemination and embryo transfer units;
• Dairies and cheese factories;
• Feed companies;
• Feedlots;
• Livestock dealers;
• Livestock trucking companies;
• Public sales yards (specify days of operation, approximate area served);
• Rendering plants, deadstock operators and incinerators;
• Zoos and game farms; and
• Livestock exhibitions (specify species and dates).

Special Premises: Animal Sales Yards

The DV should meet with the manager of the sales yard to review contingency planning requirements and discuss the possibility and short- and long-term consequences of an outbreak at the premises with the yard's management.

At a minimum, an animal sales yard's contingency plan must specify days of operation, species of animals sold at the sale, and the approximate geographic area served. The yard's manager should include a schematic diagram of the facility, noting how to control access in and out, and consult with local police regarding their ability to assist.

4.1.3 District Lists of Other Local Agencies

Each District Office should have the name, address, and telephone number of a local contact for the following agencies and organizations.

Federal Government Agencies:

• AAFC (i.e., research stations, R.O.P. stations)
• CBSA
• PSEPC
• Environment Canada
• PHAC
• Health Canada
• Citizenship and Immigration Canada (CIC)
• Royal Canadian Mounted Police (RCMP)
• Federal elected representatives for the District

Provincial Government Agencies:

• Emergency measures organizations
• Agriculture (i.e., veterinary service, provincial veterinary labs)
• Environment
• Health
• Transport
• Wildlife
• Police
• Provincial elected representatives for the district

Municipal Governments:

• Representatives for all municipalities, townships, parishes, and so on

Non-governmental Organizations:

• Livestock industry
• Transportation and humane societies
• Veterinary associations
• Schools of veterinary medicine
• Media
• Professional evaluators (include info on species and breed specialties)
• Veterinarians (all veterinary practitioners, provincial veterinarian)

4.2 Regional Office

Contingency planning for each Region is the responsibility of the Regional Director.

Each Region is responsible for being prepared to form a RERT according to ICS in the event that this level of response is necessary.

Regional Offices are the liaison between the District Offices, slaughter establishments, and other special premises in the Area and may be assigned preparedness duties by Area Management.

The Regional Operations Coordinator is designated as the person responsible for ensuring that contingency planning is completed for the Region.

The RERT manages the resolution of an incident at the Regional level. Mobilization of the team and utilization of a Regional Emergency Operations Centre (REOC) is based on the assessment of the Regional Incident Commander (RIC). The RIC can ask for assistance from the Area Executive Director including the deployment of some or all of the Animal Health Response Team (AHRT) members.

The Region is also responsible for developing and implementing an Incident Action Plan (IAP), which contains objectives reflecting the overall incident strategy, and specific coordinating actions and supporting information for the next operational period (generally 24 hours).

The IAP may consist of some or all of the following:

• Incident policies and priorities;
• Operational objectives;
• Task assignment lists;
• Resources needed;
• References (e.g., communications plan, HSP, epidemiology report, organization chart, map); and
• Distribution list.

At a minimum, each Region should be able to staff at least one First Assessment and Sampling Team (FAST) that can quickly respond to a request from the Regional Director or Inspection Manager in order to assist a DV or VIC, in the Suspect Phase of disease.

Contingency planning tasks for the RERT include:

• Identifying and training members of the RERT and other potential regional responders;
• Maintaining up-to-date contact information for RERT members and other potential regional responders;
• Creating and updating the Regional incident response plan;
• Developing and carrying out simulation exercises;
• Maintaining up-to-date copies of all District and abattoir contingency plans for incidents for all work sites and program areas located in the Region;
• Reviewing audit reports completed by the Area FAD Program Officer on District and abattoir contingency plans in the Region;
• Ensuring that shortcomings of District and abattoir plans identified in audits are addressed and adequate resources are available to carry out planned activities; and
• Creating a plan that identifies suitable locations to set up EOCs at the Field and Regional levels throughout the Region.

Note: Several Area preparedness functions will be assumed by Regions that comprise a province (e.g., western and Atlantic regions).

4.3 Area Office

The Area Executive Director should designate the Operations Coordinator to be responsible for ensuring that contingency planning is completed for the Area.

FAD contingency planning at this level involves the following tasks:

• Staffing and training technical specialists, forming an AHRT that is capable of immediate mobilization to an EOC: these specialists are considered to be an Area resource and can be deployed to an EOC at the discretion of the Area Incident Commander (AIC), or the Area Executive Director if the ICS has not yet been implemented;
• Determining the activation levels of EOCs, which is done by the Area Executive Director, who may consult with the Regional Director, the Area FAD Program Officer, and the Field Incident Commander (FIC) or RIC if that structure has been established;
• Maintaining 24-hour contact numbers for Area ERT (AERT) and AHRT team members;
• Producing and updating the AERT and AHRT organization charts as required and at least once annually;
• Ensuring that scientific and technical information on FADs is available and distributed to the Districts with the assistance of the Area FAD Program Officer and the Area Training Officer;
• Producing, distributing, and updating detailed local procedures that are adapted from the AHFP and Common Procedures Manual as required;
• Establishing and executing an Area training plan for AERT and AHRT staff, with at least one exercise held annually;
• Directing that District Office FAD contingency plans are audited on a regular basis, in consultation with Area FAD Program Officer;
• Directing that RERT plans are regularly updated and audited;
• Ensuring that equipment and supplies are available for immediate mobilization to an EOC so that it can function for a 48- to 72-hour period with limited assistance;
• Maintaining a master list of District Office contingency logistics information;
• Maintaining District Office FAD contingency plans on the Area common drive;
• Maintaining a list of volume suppliers (work clothes and safety equipment, equipment for C&D, approved disinfectants, portable generators, maps [1:50,000 and 1:250,000 resolution], emergency communication systems, and so on as outlined in the CFIA document, Surge Capacity);
• Meeting with PSEPC, provincial emergency measures organizations officials, provincial ministries of agriculture, and other provincial government departments to draft FADES plans and maintain agreements for mutual cooperation in the event of an outbreak;
• Establishing and maintaining incident response awareness through periodic contact with external stakeholders, including industry, provinces, and universities;
• Ensuring staff are trained in animal health incident response procedures and that response procedures are tested by regular exercises; and
• Maintaining a list of external contacts at the District level including the address and telephone number of the person responsible at the provincial level. As well, note any association with emergency measures organizations or PSEPC Regional Directors.

4.4 National Headquarters

At CFIA's National Headquarters, FAD contingency planning is shared between the AHPD Director and the National Operations Directorate Executive Director.

The AHPD Director is responsible for ensuring that the following tasks are completed in advance of an incident:

• Staffing, training, and maintaining the Planning Section (see subsection 5.4.5) of the National Emergency Response Team (NERT);
• Ensuring that regular updating of the AHFP is completed at least annually;
• Ensuring that up-to-date FAD HSPs are available in order to become the guiding policy document at the time of an outbreak;
• Collaborating with the National Operations Directorate Executive Director to verify that procedures for the declaration of an emergency and Ministerial declaration are in place;
• Ensuring international surveillance of FADs that threaten Canada and a domestic surveillance program are in place;
• Developing agreements with foreign countries for cooperation and exchange of personnel;
• Making world and national summaries, statistical data, and scientific and technical information on FADs available to all areas;
• Establishing and maintaining awareness of incident response through periodic contacts with allied individuals and organizations;
• Developing computerized FAD data capture (i.e., Canadian Emergency Management Response System [CEMRS] or the Foreign Animal Disease Emergency Response System [FADERS], which is under development); and
• Maintaining a list of stakeholders, including international and national governments and NGOs, national industry associations, veterinary colleges, provincial veterinarians, and individuals who must be informed when outbreaks occur.

The National Operations Directorate Executive Director, is responsible for ensuring that the following tasks are completed in advance of an incident:

• Staffing, training, and maintaining the Operations Section of the NERT (see subsection 5.3.3 for organizational structure);
• Collaborating with the AHPD Director to verify that procedures for the declaration of an emergency and Ministerial declaration are in place;
• Implementing agreements with foreign countries for cooperation and exchange of personnel;
• Ensuring appropriate resources are available (e.g., people, supplies, and equipment);
• Liaising with Finance and Administration in the Human Resources (HR) Branch;
• Ensuring consistency between FADES plans;
• Establishing and maintaining awareness of incident response through periodic contacts with allied individuals and organizations; and
• Conducting regular audits of FAD preparedness at the AERT level, in cooperation with the Area FAD Program Officers.

Note: The Chief Veterinary Officer (CVO) for Canada should ensure that partners' response is harmonized in advance of an incident.

4.5 Registered Establishment

National Training Specialists for Meat Hygiene and Animal Health in the Professional and Technical Development section of the CFIA are responsible for updating and developing knowledge about FADs (e.g., audiovisual material, books, periodicals, seminars, and formal training) for team staff who are working in registered establishments.

The veterinary inspectors in abattoirs may be the first professionals to suspect a FAD, based on post-mortem inspections. To be prepared to respond to a FAD diagnosis in an abattoir, the VIC of the establishment must ensure that the following tasks are completed:

• having ongoing access to records of animals received and meat products shipped;
• in discussion with management, making detailed plans to minimize spread through animals, products, people, and vehicles, determine disposal site, and so on;
• establishing and developing advance plans to contain and control a FAD in the plant, and develop procedures to decontaminate the facility and equipment; and
• establishing a working relationship with the local DV.

Federally inspected abattoirs are required to have a FAD contingency plan for their facility that is updated on a regular basis. Contingency planning is covered in Emergency Situations (Chapter 9) of the Meat Hygiene Manual of Procedures. The DV should meet with all VICs of Registered Establishments in the District annually to review the Establishment Contingency Plan and confirm roles and responsibilities of local Animal Health and Meat Hygiene CFIA staff.

Abattoirs that are not inspected by CFIA Meat Hygiene staff should be visited by the Animal Health DV. Contingency planning by the abattoir management and inspection staff should be encouraged. Once the plan is created, a copy should be kept at the District Office and provided to the Area and Regional offices, if requested.

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