Strengthening of Veterinary Services in Vietnam [ALA/96/20]

STRENGTHENING OF VETERINARY SERVICES IN VIETNAM (SVSV) ALA/96/20 Supported by the European Community PROPOSAL FOR AN ANIMAL HEALTH MASTER PLAN FOR THE VIETNAMESE VETERINARY SERVICES (2001 2010) October 2000 Strengthening of Veterinary Services in Vietnam [ALA/96/20] Ministry of Agriculture & Rural Development and the European Community Project Management Unit Cuc Thu Y, Phuong Mai, Dong Da District, Hanoi, Vietnam. Tel: +84.4.8685954/8686030/8686032: Fax: +84.4.8685960: E-Mail: svsv@hn.vnn.vn

TABLE OF CONTENTS TABLE OF CONTENTS i LIST OF ACRONYMS AND ABBREVIATIONS... iii EXECUTIVE SUMMARY...... v 1 GENERAL REMARKS...1 2 BACKGROUND...2 3 PURPOSES AND OBJECTIVES OF THE PRESENT VETERINARY SERVICES...3 3.1 Overview...3 3.2 Purpose A: Improvement and Maintenance of Animal Health...5 3.2.1 Wider Objectives...5 3.2.2 Functions...5 3.2.3 Tasks...5 3.3 Purpose B: Protection of Human Health from Animals and Animal Products (Veterinary Public Health)...6 3.3.1 Wider Objectives...6 3.3.2 Functions...6 3.3.3 Tasks...6 4 FUNCTION 1: CONTROL OF ECONOMICALLY IMPORTANT DISEASES OF PUBLIC GOOD CATEGORY...8 4.1 Description of Present Situation vis-à-vis the Tasks...8 4.2 Additional Issues to be addressed in Future...10 4.3 Plan...12 4.3.1 Rationale...12 4.3.2 Outputs...12 4.3.3 Activities...12 5 FUNCTION 2: TREATMENT AND PROPHYLAXIS OF ANIMAL DISEASES AND CONDITIONS SUPPRESSING PRODUCTION (PRIVATE GOOD CATEGORY)...18 5.1 Description of Present Situation vis-à-vis the Tasks...18 5.2 Additional Issues to be addressed in Future...20 i

5.3 Plan...22 5.3.1 Rationale...22 5.3.2 Outputs...22 5.3.3 Activities...23 6 FUNCTION 3: CONTROL OF VETERINARY MEDICINAL PRODUCTS...26 6.1 Description of Present Situation vis-à-vis the Tasks...26 6.2 Additional Issues to be addressed in Future...28 6.3 Plan...28 6.3.1 Rationale...28 6.3.2 Outputs...29 6.3.3 Activities...29 7 FUNCTION 4: PREVENTION OF CONTAMINATION AND ADULTERATION OF FOOD OF ANIMAL ORIGIN THROUGHOUT THE PRODUCTION CYCLE, DURING SLAUGHTER,TRANSPORT, PROCESSING ETC, UP TO THE POINT OF SALE (MEAT, MILK, EGGS, HONEY)...33 7.1 Description of Present Situation vis-à-vis the Tasks...33 7.2 Additional Issues to be addressed in Future...37 7.3 Plan...39 7.3.1 Rationale...39 7.3.2 Outputs...39 7.3.3 Activities...39 8 FUNCTION 5: PREVENTION OF HUMAN INFECTION FROM ZOONOTIC DISEASE AGENTS...45 8.1 Description of Present Situation vis-à-vis the Tasks...45 8.2 Additional Issues to be addressed in Future...45 8.3 Plan...45 8.3.1 Rationale...45 8.3.2 Outputs...46 8.3.3 Activities...46 ANNEX 1: ANNEX 2: List of related SVSV Consultant Reports Proposed Format for detailed Planning ii

LIST OF ACRONYMS AND ABBREVIATIONS ACIAR - Australian Centre for International Agricultural Research AHMP - Animal Health Master Plan AHW - Animal Health Worker AHPISA - Animal Health and Production Information System for ASEAN A.I. - Artificial Insemination ANMV - French Agency for Veterinary Medicinal Products APHCA - Animal Production and Health Commission for Asia (FAO) ASEAN - Association of South-East Asian Nations ASEM - Asia-Europe Meeting CPDT - Continuous professional and technical development CSF - Classical Swine Fever DAH - Department of Animal Health DAH HQ - DAH Headquarters in Hanoi DVS - District Veterinary Station EC - European Commission EU - European Union FA - Farmers s Association FAO - Food and Agriculture Organisation of the United Nations FMD - Foot and Mouth Disease FSV - Food Safety Verification FSVS - Food Safety Verification Services GDP - Gross Domestic Product GSO - General Statistical Office HACCP - Hazard Assessment Critical Control Point HAS - Hazard Assessment System HCMC - Ho Chi Minh City HS - Haemorrhagic Septicaemia IFPRI - International Food Policy Research Institute JICA - Japanese International Co-operation Agency MARD - Ministry of Agriculture and Rural Development MoET - Ministry of Education and Training MoH - Ministry of Health MSc - Master of Science ND - Newcastle Disease NGO - Non-governmental Organisation NCVDBC - National Centre for Veterinary Drug and Bio-product Control NIVR - National Institute of Veterinary Research iii

LIST OF ACRONYMS AND ABBREVIATIONS (continued) OIE - Office International des Epizooties PC - People s Committee PhD - Doctor of Philosophy RVC - Regional Veterinary Centre SPS - Sanitary and Phyto-sanitary Agreement (of the WTO) SDAH - Sub-Department of Animal Health SVSV - Strengthening of Veterinary Services in Vietnam Project TADinfo - Trans-border diseases information software (FAO) TOR - Terms of Reference ToT - Training of Trainers UNDP - United Nations Development Programme VDMD - Veterinary Drug Management Division (DAH) VEAC - Veterinary Education Advisory Council VMD - Veterinary Medicines Directorate (UK) VPMU - Veterinary Planning and Monitoring Unit WHO - World Health Organisation WTO - World Trade Organisation WU - Women s Union YA - Youth Association iv

EXECUTIVE SUMMARY As is typical for most veterinary services in the world, the Vietnamese Veterinary Services have two main purposes: A B Improvement and maintenance of animal health, and Protection of human health from animals and animal products (also known as veterinary public health). The respective major present and future wider objectives are A B the improvement of the livelihood of the farming community and the increase of national income through improvements in livestock productivity, production and marketability, and the reduction of risk to humans of contracting disease through food of animal origin or through disease agents transmissible from animals to humans, and of human suffering as well as cost in terms of lost labour and medical treatment. In order to alleviate the observed shortcomings in pursuing the present Veterinary Services, proposals have been made by the Strengthening of Veterinary Services in Vietnam (SVSV) Project for the Animal Health Master Plan (AHMP) for about the next decade. This proposal is based on numerous investigations and subsequent recommendations of EU consultants during 1999/2000 (see Annex 1). They have been developed down to the level of activities. A more detailed breakdown, specifying precise indicators, means of verification, sub-activities, qualification and quantification of required means (manpower, material, financial) would justify the volume of work entailed only if the scale of budget and the political determination are realistically known. With regard to the Veterinary Services purpose of improving and maintaining animal health and their three related functions, the rationale of the plans as well as the expected outputs and proposed main activities are compiled below: Function 1: Control of economically important diseases of public good category Rationale: The DAH increases its knowledge of prevailing diseases and their behaviour and is able to assess their epidemiological and economic significance. Through a temporary concentration on only a few important diseases (e.g. CSF, FMD, ND, Duck plague) resources are better focussed and the necessary improvements in the control of emergencies and preventive programmes can be better planned, implemented, supervised, monitored and evaluated. Outputs: a. Animal disease problems of public concern are better qualified, quantified and monitored. b. National control measures are effective, based on sound epidemiological concepts, are economically viable and socio-politically acceptable. c. Outbreaks of scheduled diseases are more effectively contained and reduced through preventive measures preparing for long-term eradication. d. Up-to-date laboratory diagnostic services for investigations of animal diseases are accessible and affordable. e. Legal and regulatory requirements to arrive at the mentioned outputs are in place. v

f. Organisation and administration is appropriate to render effective services. g. A sound concept for training focussing on different target groups within the government veterinary services (DAH, SDAH/DVS) is established and pursued. h. Resources deployed within Vietnam on improved control of diseases of public concern are harmonised and complementary. i. Regional and international efforts on combating transboundary animal diseases are supported. Main Activities: 1 Improve passive surveillance and disease investigation, and introduce active surveying of disease problems in order to better monitor, specify and quantify disease problems. 2 Increase competence in data analysis, planning, monitoring and evaluation of animal health interventions to render national control measures that are effective, based on sound epidemiological concepts, economically viable and socio-politically acceptable. 3 Improve upon the planning, supervision, implementation and evaluation of control measures for containing and eliminating outbreaks of scheduled diseases. 4 Improve upon the planning, supervision, implementation and evaluation of preventive mass vaccination campaigns. 5 Develop national strategy plans for combating animal diseases of priority public importance. 6 Improve animal disease diagnostic services throughout the country. 7 Assist in drawing up legal and regulatory requirements for creating a legal and administrative basis, and assist in enforcing legislation. 8 Create a suitable organisational and administrative framework. 9 Improve the quality of veterinary officers to enable them to carry out their specific duties satisfactorily. 10 Improve co-operation with related research and training institutions. 11 Continue co-operation with Regional and International Programmes for improved safety and marketability of animal products and contribute to the implementation of recommendations and agreements. Function 2: Treatment and prophylaxis of animal diseases and conditions suppressing (private good category) Rationale: The already de facto private animal health services (curative practice and prevention of production losses of private good nature) are defined with regard to training, tasks, rules of conduct, organisation and supervision. For veterinarians this is achieved by founding a Veterinary Chamber as a self-ruling body supervised by DAH. A similar body can be considered for the technician level. The Government Veterinary Services concentrate on improving upon their genuine tasks, particularly the control of animal diseases of public concern. They engage in curative practice and prevention of production losses of a private good nature only as far as is necessary to ensure a reasonable income. This involvement in private good service delivery is only for a transitional period of time. In order to increase productivity, and thus production, the private self-help capacity of livestock farmers and related service providers is initiated and supported by Government and Communist Party institutions. To improve the quality of private animal health services an institutional framework is created and appropriate training is offered. Extension messages appropriate for the agro-ecological, economic and social conditions of the livestock farming community (gender-sensitive emphasis on smallholders that constitute by far vi

the majority) are available, and extension agents are sufficiently trained and motivated to render services that increase family income and stimulate the farmers self-help capacity. Animal health extension combines extension on nutrition, housing, breeding, marketing etc. through co-operation with government institutions (DAH, Department of Extension, universities, NGOs etc.). Ideally, the foundation of a General Directorate of Livestock Development and Animal Health could be instrumental in focussing Government and private efforts in this agricultural sub-sector. The formation of private interest groups (associations) for the procurement of farm-inputs and services, production standards and marketing is encouraged and supported. Outputs: a. Conditions are in place to allow private animal health services to improve (see d, e and f). b. Farmer oriented extension services embracing animal health, nutrition, housing, breeding and marketing are improved in co-operation with the Department of Extension. c. Appropriate diagnostic laboratory services for practitioners and farmers are accessible and affordable. d. Legal and regulatory requirements to arrive at the mentioned results are in place. e. Organisation and administration are appropriate to render effective services. f. A sound concept of training, focussing on different target groups (AHW, extension agents, livestock farmers) is established and pursued. g. Government and non-government resources deployed within Vietnam on developing appropriate livestock extension services and related training are harmonised and complementary. Main Activities: 1 Organise private animal health professions and increase quality of services. 2 Reorganise animal health and production extension services. 3 Improve animal disease diagnostic services throughout the country. 4 Assist in drawing up legal and regulatory requirements for creating a sound legal and administrative basis for animal health service delivery, and assist in enforcing legislation. 5 Improve the quality of personnel providing animal health and production services to farmers enabling them to carry out their special duties satisfactorily. 6 Create a suitable organisational and administrative framework for professions providing animal health services. 7 Encourage the development of the self-help capacity of farmers. 8 Improve co-operation with related research and training institutions. Function 3: Control of Veterinary Medicinal Products Rationale: In order to minimise, monitor and document hazards for animals and humans from drugs, vaccines and other bioproducts produced and marketed for use in animals, and to provide access to quality veterinary medicinal products for the farming community throughout Vietnam, the Government Veterinary Services must provide: - Good management of veterinary drugs and vaccines through a new autonomous body for veterinary pharmaceutical administration funded largely by fees paid by the veterinary pharmaceutical industry. - Safety and efficacy of veterinary drugs and vaccines through a modern understanding of quality control, such as Good Manufacturing Practices etc. - Guidance and control for the veterinary profession to ensure proper handling of veterinary pharmaceutical products in the market chain and their prudent use. vii

Outputs: a. The Government Veterinary Services concentrate on the elaboration of a new autonomous body of veterinary pharmaceutical regulation, which will provide the appropriate framework for good management of veterinary drugs and vaccines. b. The veterinary pharmaceutical legislation is re-written in order to be up-to-date and enforceable. c. The registration procedure is clearly described and properly implemented. d. A strategy is established to monitor whether the production of veterinary drugs and vaccines complies with good manufacturing practices. e. A realistic quality control programme of veterinary medicinal products in the market chain is carried out. f. Good Laboratory Practices for the control of veterinary medicinal products are introduced, systematically monitored and documented. g. The distribution of veterinary drugs is carried out by veterinary drug shops the management of which meets the regulatory requirements assisted by Veterinary Services inspection. h. Prudent use of veterinary drugs and vaccines is developed under the supervision of veterinarians properly trained in this respect. Main Activities: 1 Improve the efficiency of the registration procedure. 2 Improve laboratory services for the control of veterinary medicinal products. 3 Assist in drawing up legal and regulatory requirements for creating a legal and administrative basis, and assist in enforcing legislation. 4 Improve the quality of personnel at management level and in the laboratory services. 5 Create a suitable organisational and administrative framework for the efficient management of veterinary medicinal products. 6 Improve co-operation with Regional and International Programmes. With regard to the second main purpose of the Veterinary Services, namely protecting human health from animals and animal products (veterinary public health) and its two related functions, the plan should embrace the following rationale and include the following expected outputs and main activities: Function 4: Prevention of contamination of food of animal origin throughout the production cycle, during slaughter, transport, processing etc., up to the point of sale (meat, milk, eggs, honey) Rationale: The public administration responsible for overseeing safety of food of animal origin is capable of planning and executing sound national programmes. This would preferably be part of a wider independent and largely self-financing Government Agency providing Food Safety Verification Services. Outputs: a. A Government Agency providing Food Safety Verification Services is created in which safety of food of animal origin is effectively controlled or, alternatively, a Food Safety Verification Project is set up in DAH with identical tasks. b. Modules are planned and tested in pilot areas, adjusted and re-tested if necessary, and modules satisfactorily tested are replicated in the whole country. They include risk reduction of food hazards from meat, milk, eggs and other fresh food of animal origin during the viii

production process on-farm including transport, control of food safety at processing, packaging, distribution and retailing. c. Functioning laboratory services, to verify reliably bacteriological, parasitic and chemical contamination, and to support systematic surveillance programmes, are available and financially sustainable. d. Legal and regulatory requirements for the operation of effective food safety verification services are in place and are enforced. e. A sound concept of specialised training for all relevant target groups involved in safety of food of animal origin is established and operating. f. An institution is set up to initiate and to co-ordinate research relevant and necessary for the food safety verification services. g. Vietnam plays an active role in Regional and International food safety co-operation programmes. h. A considerable proportion of the population is aware of animal welfare matters, and humane handling of animals, particularly at slaughter, is an increasingly acknowledged practice. Main Activities: 1 Assist in drawing up legal and regulatory requirements for creating a legal and administrative basis, and assist in enforcing legislation. 2 Reduce risk of food hazard during animal production at farm level. 3 Implement food safety controls during movement from farm to food processing plants. 4 Implement food safety controls at slaughter of meat animals. 5 Implement appropriate inspection of carcass meat, offal and by-products. 6 Implement food safety controls in the processing, packaging, distribution and retailing of fresh meat, milk and other fresh food of animal origin. 7 Promote safe handling of such food at all outlets. 8 Provide relevant up-to-date laboratory facilities for surveillance/monitoring of residues and pathogens. 9 Ensure sufficient subject matter personnel. 10 Co-operate with related research institutions. 11 Co-operate with Regional and International Programmes for improved safety and marketability of animal products. 12 Create awareness of animal welfare. Function 5: Prevention of human infection from zoonotic disease agents Rationale: The DAH and the MoH increase their knowledge on prevailing zoonoses and their behaviour in animal and human populations and are able to assess their epidemiological and economic significance. Through a temporary concentration on combating only a few important zoonoses (e.g. rabies and anthrax) resources are better focussed and the necessary improvements in the control and preventive programmes can be better co-ordinated between MoH and DAH, as well as better implemented, supervised, monitored and evaluated. Outputs: a. Zoonoses in animals and humans are better specified, quantified and monitored. b. National control measures against zoonotic agents in animals are effective, based on sound epidemiological concepts, are economically viable and socio-politically acceptable, and well co-ordinated between DAH and MoH. c. Zoonotic diseases in animals are more effectively combated and reduced through preventive measures preparing for long-term eradication. ix

d. Up-to-date laboratory diagnostic services for investigations of zoonoses are accessible and affordable. e. Legal and regulatory requirements to combat zoonoses effectively are in place and enforced. f. Organisation and administration is appropriate to render effective services. g. A sound concept for training, focussing on different target groups within the government veterinary services (DAH, SDAH/DVS), is established and pursued. h. Resources deployed within Vietnam for the control of zoonotic diseases are harmonised and complementary. i. Regional and international efforts on combating zoonotic diseases are supported. Main Activities: 1 Improve passive surveillance and disease investigation, and introduce active surveying of disease problems in order to better monitor, specify and quantify disease problems. 2 Increase competence in data analysis, planning, monitoring and evaluation of national interventions against zoonotic diseases in animals to render them effective, based on sound epidemiological concepts, economically viable and socio-politically acceptable. 3 Improve upon the planning, supervision, implementation and evaluation of control measures for reducing and eliminating zoonotic diseases. 4 Develop national strategy plans for combating zoonotic diseases in animals. 5 Improve zoonotic disease diagnostic services throughout the country. 6 Assist in drawing up legal and regulatory requirements for creating a legal and administrative basis for the control of zoonotic diseases, and assist in enforcing legislation. 7 Create a suitable organisational and administrative framework. 8 Improve the quality of veterinary officers engaged in the combat of zoonotic diseases in animals, to enable them to carry out their duties satisfactorily. 9 Improve co-operation with related research and training institutions. 10 Step up co-operation with Regional and International Programmes on reducing and eliminating zoonotic diseases, and contribute to the implementation of recommendations and agreements. x

PROPOSAL FOR AN ANIMAL HEALTH MASTER PLAN FOR THE VIETNAMESE VETERINARY SERVICES (2001-2010) 1 GENERAL REMARKS One of the planned outputs of the SVSV Project is the formulation by October 2000, of an Animal Health Master Plan (AHMP) for the Vietnamese Veterinary Services for the next decade. Due to delays in Project implementation and in deployment of EU subject matter consultants the original plan to have a draft proposal ready by April 2000 was overoptimistic. However, as the final proposal is being submitted in October 2000, it should be possible for DAH to utilise the proposal for drawing up the 5-year Plan from 2001 2005, which MARD expects DAH to finalise by October 2000. This proposal is based on observations and recommendations of several EU subject matter consultants made in close co-operation with local specialists. The related Reports are listed in Annex 1. It is important to note that this AHMP is a proposal. The EU consultants have made every effort to analyse the situation of the different veterinary services as objectively as possible and in the context of the present historical, political, economic and social environment. Likewise, they were trying to integrate their subject matter knowledge accrued in countries with a development level that Vietnam is striving to reach, and in comparison with achievements in other developing countries, and with the perceived potential in Vietnam. However, this proposal is by no means a complete and final blueprint. The role of EU consultants is advisory, and the principles of independence and ownership assume that the Vietnamese authorities will formulate their own and final AHMP. They may base it on this proposal, adopting or rejecting recommended activities or supplementing the plan if they feel it is necessary. Finally, implementation would have to be preceded by detailed planning, taking full account of the actual political and financial situation currently in Vietnam. The time scale used by the EU consultants within which their recommendations were thought to be implemented was about 10 years. It is fully acknowledged that a plan prepared in accordance with the logical framework technique should contain all the means by which the activities can be carried out to arrive at the expected results, i.e. human resources, material input, financial resources and responsibilities. In addition, the expected results would have to be qualitatively and quantitatively described to serve as verifiable indicators for measuring progress. At the same time, the feasibility of most activities will depend upon certain political decisions, and on the government budget allocated to the development of animal production in general, and on veterinary services in particular. Consequently, if much of what is being proposed is dependent on the available budget, there is not much justification to work out all necessary means in detail. Nevertheless, this proposal for an AHMP provides a structure and tool to be used by MARD/DAH. A format which may be used for more detailed planning is provided in Annex 2. For further technical details reference is also made to the related EU consultants Mission Reports listed in Annex 1. 1

2 BACKGROUND In 1999 agriculture contributed about 23% of GDP and generated 40% of exports. The share of livestock in total agricultural GDP is about 13% and has changed little over the past decade. This reflects the fact that the livestock and crop sectors have grown at a similar annual rate (4.4%) during that period. Most of the growth of the livestock sector, however, has been due to increasing livestock numbers rather than increasing productivity. Despite the share of the livestock sector of 13% of agricultural GDP and the fact that the Government is aware of its importance and growth potential, the sector received in 1997-98 only 4% of the total state budget in agriculture 1. At the end of 1999, the Vietnamese livestock herd included 2.95 million buffalo, 4.06 million cattle, 18.89 million pigs and 179 million poultry (chicken, ducks, geese) (source: Vietnam Statistical Yearbook 1999, GSO). Higher levels of livestock productivity and production are necessary to meet the predictable demand for animal products of the rapidly increasing population (2.3% p.a.), particularly in the urban centres, and to create employment and income opportunities in the production and processing enterprises. A simulation model (UNDP, Rural Development Strategy Study, March 1998) concluded that promotion of the livestock industry, in particular pig and poultry production and meat processing, is the key policy for accelerated rural growth, poverty alleviation and increased higher value exports. However, this could only be achieved with improved standards of animal health. Vietnam has, because of its wealth in rice production, a comparative advantage in the production of monogastric food animals, pigs and poultry. But government emphasis is still firmly directed to crop production while livestock production occupies a neglected niche within the Department of Extension. Private and joint venture initiatives, particularly in the south of Vietnam, have brought about livestock economies of considerable scale, often supported by competent private veterinary services that emerged without Government support. However, factors such as internationally uncompetitive production costs, the presence of certain livestock diseases, and the characteristics of unregulated industrial animal production (e.g. risks in food safety from residues of antibiotics, growth promoters, etc.), are increasingly limiting the external market potential. Domestic markets, particularly in the rapidly growing urban centres, are gradually expanding but only to the extent of the purchasing power of the population. These are limitations of the national livestock sector that leave veterinary services, as a service provider for animal production and food safety, not unaffected and vice versa. Only recently, the Government has begun reviewing its agricultural policies and seems to be determined to reform their related legal, organisational and administrative system leaving apparently much more to private initiative and responsibility. 1 see Preliminary Findings and Recommendations of the MARD and Royal Embassy of Denmark Project on Policy options for using livestock to promote rural income diversification and growth in Vietnam, IFPRI, July 2000. 2

It should be noted that the aspirations of the Vietnamese Government to modernise and to industrialise its agricultural production, and consequently its service providers, not least with a view to access Regional and global markets, and their simultaneous commitment to poverty alleviation and equal development of the population, is not without contradiction. Finally, it should be pointed out that, if the Government will not attach more importance to livestock production, the importance of Veterinary Services will remain insignificant and thus investment in its desperately needed improvement will remain unattractive for national and donor financiers. 3 PURPOSES AND OBJECTIVES OF THE PRESENT VETERINARY SERVICES 3.1 Overview As is typical for most veterinary services in the world, the Vietnamese Veterinary Services have two main purposes: A B Improvement and maintenance of animal health, and Protection of human health from animals and animal products (also known as veterinary public health). Table 1 provides an overview on the purposes and wider objectives of the National Veterinary Services, and their functions and tasks. 3

Table 1: Purpose and Wider Objectives of Vietnamese Veterinary Services and their Functions and Tasks I. Purpose A. Improvement and maintenance of animal health B. Protection of human health from animals and animal products (vet. public health) II. Wider Objectives Livelihood of the farming community improved and national income increased through improvements in livestock productivity, production and marketability. Risk to humans of contracting disease through food of animal origin or through disease agents transmissible from animals to humans reduced, and human suffering as well as cost in terms of III. Functions IV. Tasks a) Main Tasks 1. Control of economically important diseases of public good category 1.1 Surveillance of economically important diseases in animals (except aquatic and wild animals) via disease reports from 61 Provinces in order to specify and quantify disease problems for policy formulation 1.2 Plan and supervise implementation of effective control measures at national level in order to reduce or eliminate certain diseases (emergency and preventive measures) b) Supporting Tasks 1.3 Provision of relevant up-to-date laboratory facilities 1.4 Assist in drawing up legal and regulatory requirements for creating a legal and administrative basis, and assist in enforcing legislation 1.5 Ensuring quantity and quality of animal health personnel within the animal disease control services 1.6 Co-operation with related research and training institutions 1.7 Co-operation with Regional and International Programmes for more effective disease control 2. Treatment and 3. Control of veterinary prophylaxis of animal medicinal products diseases and conditions suppressing production (private good category) 2.1 Delivery of good, farmer-oriented services to prevent losses and increase productivity 2.2 Extension to farmers of animal health and husbandry management issues 2.3 Provision of relevant up-to-date laboratory facilities 2.4 Assist in drawing up legal and regulatory requirements for creating a legal and administrative basis to govern the animal health profession 2.5 Ensuring quality of animal health personnel 2.6 Co-operation with related research and training institutions 4 3.1 Ensuring the availability of safe, effective and affordable drugs and vaccines 3.2 Control of quality, effectiveness and safety from production to end use 3.3 Provision of relevant up-to-date laboratory facilities 3.4 Assist in drawing up legal and regulatory requirements for creating a legal and administrative basis, and assist in enforcing legislation 3.5 Ensuring quantity and quality of subject matter personnel 3.6 Co-operation with related research and training institutions 3.7 Co-operation with Regional and International Programmes for effective control of veterinary medicinal products lost labour and medical treatment reduced. 4. Prevention of contamination and adulteration of food of animal origin throughout the production cycle, during slaughter, transport, processing, etc., up to the point of sale (meat, milk, eggs, honey) 4.1 Risk reduction of food hazard during animal production at farm level and implementation of food safety controls during movement from farm to food processing plants 4.2 Implementation of food safety controls at slaughter of meat animals and of inspection of carcass meat, offal and byproducts 4.3 Implementation of food safety controls in the processing, packaging, distribution and retailing of fresh meat, milk and other fresh food of animal origin, and promotion of safe handling of such food at all outlets 4.4 Provision of relevant up-to-date laboratory facilities for surveillance of residues and pathogens 4.5 Assist in drawing up legal and regulatory requirements for creating a legal and administrative basis, and assist in enforcing legislation 4.6 Ensuring quantity and quality of subject matter personnel 4.7 Co-operation with related research and training institutions 4.8 Co-operation with Regional and International Programmes for improved safety and marketability of animal products 5. Prevention of human infection from zoonotic disease agents See Function 1 Control of economically important diseases of public good category

3.2 Purpose A: Improvement and Maintenance of Animal Health 3.2.1 Wider Objectives The objectives of this part of the Veterinary Services is the improvement of the livelihood of the farming community and the increase of national income through improvements in livestock productivity, production and marketability. 3.2.2 Functions With regard to improvement and maintenance of animal health, the Veterinary Services have three distinct functions: 1. Control of economically important diseases of public good category. 2. Treatment and prophylaxis of animal diseases and conditions suppressing production (private good category). 3. Control of veterinary medicinal products. 3.2.3 Tasks The tasks under each of the three functions are as follows: 1 Control of economically important diseases of public good category Main Tasks: 1.1 Surveillance of economically important diseases in animals, except aquatic and wild animals, via disease reports from 61 Provinces in order to specify and quantify disease problems for policy formulation. 1.2 Plan and supervise implementation of effective control measures at national level in order to reduce or eliminate certain diseases (emergency and preventive measures). Supporting Tasks: 1.3 Provision of relevant up-to-date laboratory facilities. 1.4 Assist in drawing up legal and regulatory requirements for creating a legal and administrative basis, and assist in enforcing legislation. 1.5 Ensuring quantity and quality of animal health personnel within the animal disease control services. 1.6 Co-operation with related research and training institutions. 1.7 Co-operation with Regional and International Programmes for more effective disease control. 2 Treatment and prophylaxis of animal diseases and conditions suppressing production (private good category) Main Tasks: 2.1 Delivery of good, farmer-oriented services to prevent losses and increase productivity. 2.2 Extension to farmers of animal health and husbandry management issues. Supporting Tasks: 2.3 Provision of relevant up-to-date laboratory facilities. 2.4 Assist in drawing up legal and regulatory requirements for creating a legal and administrative basis to govern the animal health profession. 2.5 Ensuring quality of animal health personnel within the animal disease control services. 2.6 Co-operation with related research and training institutions. 5

3 Control of veterinary medicinal products Main Tasks: 3.1 Ensuring the availability of safe, effective and affordable drugs and vaccines 3.2 Control of quality, effectiveness and safety from production to end use Supporting Tasks: 3.3 Provision of relevant up-to-date laboratory facilities 3.4 Assist in drawing up legal and regulatory requirements for creating a legal and administrative basis, and assist in enforcing legislation 3.5 Ensuring quantity and quality of subject matter personnel 3.6 Co-operation with related research and training institutions 3.7 Co-operation with Regional and International Programmes for more safety and marketability of animal products 3.3 Purpose B: Protection of Human Health from Animals and Animal Products (Veterinary Public Health) 3.3.1 Wider Objectives The objectives of this second part of the Veterinary Services are the reduction of risk to humans of contracting disease through food of animal origin or through disease agents transmissible from animals to humans, and of human suffering as well as cost in terms of lost labour and medical treatment. 3.3.2 Functions There are two functions related to veterinary public health: 1. Prevention of contamination and adulteration of food of animal origin throughout the production cycle, during slaughter, transport, processing etc., up to the point of sale (meat, milk, eggs, honey). 2. Prevention of human infection from zoonotic disease agents. 3.3.3 Tasks The tasks of the two functions are as follows: 1 Prevention of contamination and adulteration of food from animal origin throughout the production cycle during slaughter, transport, processing etc., up to the point of sale (meat, milk, eggs, honey) Main Tasks: 1.1 Risk reduction of food hazard during animal production at farm level and implementation of food safety controls during movement from farm to food processing plants. 1.2 Implementation of food safety controls at slaughter of meat animals and of inspection of carcass meat, offal and by-products. 1.3 Implementation of food safety controls in the processing, packaging, distribution and retailing of fresh meat, milk and other fresh food of animal origin, and promotion of safe handling of such food at all outlets. Supporting Tasks: 1.4 Provision of relevant up-to-date laboratory facilities. 1.5 Assist in drawing up legal and regulatory requirements for creating a legal and administrative basis, and assist in enforcing legislation. 1.6 Ensuring quantity and quality of subject matter personnel. 6

1.7 Co-operation with related research and training institutions. 1.8 Co-operation with Regional and International Programmes for more safety and marketability of animal products. 2 Prevention of human infection from zoonotic disease agents The control of zoonotic disease is analogous to the control of economically important diseases of public good category. Therefore, reference is made to Paragraph 3.2.3. The following chapters give a description of the present situation regarding the main functions with indications of additional issues to be addressed in future, overlapping or superfluous functions, followed by describing the situation expected to prevail in about 10 years time. This is expressed by postulating the rationale of the plan as well as the related outputs or results. A range of activities necessary to arrive at the expected output, and in some cases even sub-activities, are listed under each output. 7

4 FUNCTION 1: CONTROL OF ECONOMICALLY IMPORTANT DISEASES OF PUBLIC GOOD CATEGORY 4.1 Description of Present Situation vis-à-vis the Tasks 4.1.1 Surveillance of economically important diseases in animals (except aquatic and wild animals) via disease reports from 61 Provinces in order to specify and quantify disease problems for policy formulation The present surveillance system is based mainly on the passive reporting of 16 scheduled diseases from 61 Provinces, the data sources being sketchy reports from AHWs at commune level. This purely passive system can be described as inaccurate, incomplete and biased due to inadequate skills in clinical diagnosis that are rarely supported by laboratory confirmation. The lack of transport and the deliberate suppression of disease reporting, to avoid repercussions to the farmer client through disease control measures, are additional constraints. The knowledge of livestock diseases often concentrates on those against which compulsory vaccination campaigns are carried out, and there is no true picture of the prevalence, incidence, significance or behaviour of animal diseases in Vietnam. Reports are difficult to interpret since a universal reporting format and terminology are not utilised. In addition, over-aggregation results in the loss of detail at every level. DAH has made great progress in computerising data input and storage, and the SVSV Project has helped to identify shortcomings in the reporting protocol at all levels including data collection, transportation, input, processing and presentation. The FAO-developed TADinfo disease control software has been acquired and customised for Vietnam, introduced as part of the Vietnamese Information System for Animal Health, and partly tested. However, much is still to be accomplished at the DAH HQ, and in the Provinces, in order to facilitate useful analysis of the data for the development of appropriate intervention measures. Retrospective questionnaire surveys have been carried out but are of very limited value. An active programme of representative surveys, in particular sero-surveys, does not exist. The transformation of data into useful information for users at ministerial and provincial level is grossly deficient. The existing lack of transparency with regard to publicising the true animal disease situation is not helpful and will have to change if Vietnam wants to fulfil WTO s SPS Agreement which stipulates that an effective and transparent information system is a quality criterion of veterinary services. 4.1.2 Plan and supervise implementation of effective control measures at national level in order to reduce or eliminate certain diseases (emergency and preventive measures) For planning disease control interventions which are both scientifically sound and economically feasible, a reasonably reliable and up-to-date information system is essential (see Paragraph 4.1.1 above). So far the capacity to analyse data with recognised epidemiological and economic methods has not been established and as yet only two officers are undertaking a related MSc course. Reasonably accurate cost benefit analyses for all veterinary intervention programmes are the only way to convince the responsible authorities at central and provincial level of their ultimate benefit. The capacity for developing sound plans, monitoring implementation and evaluating the results is not well developed. 8

Timely and adequate responses to control dangerous disease outbreaks and the elimination of the disease focus is hampered by many difficulties. These are consequences of legal, organisational and administrative deficiencies and the lack of awareness of the economic relevance of animal diseases on the part of politicians and the farming community. This results in a lack of proper support for any control measure, e.g. strict quarantine of outbreak areas, emergency slaughter, safe disposal of carcasses etc. Lack of funds is a particular problem. Even though there is a limited emergency fund at central level available to assist the provinces, it is largely insufficient for compensating farmers for losses due to official disease control measures. These shortcomings have left the veterinary services largely unprepared and ineffective in dealing with outbreak emergencies. Neither at central nor at provincial level are there adequate contingency plans to cope with outbreaks promptly and thoroughly. Fixed posts for routine inspection of animals in transport have proven ineffective. The main strategy adopted by the veterinary services to combat important diseases is large vaccination campaigns. Budgetary constraints, exacerbated by the large number of diseases that would, according to existing regulations, require compulsory vaccination, render the campaigns' coverage patchy. Farmers' experiences of ineffective and even contaminated vaccines have contributed to a widely held scepticism towards vaccination, in addition to which there is a reluctance on the part of many farmers to pay for their animals to be vaccinated. Negligence on the part of many involved in the production, trade and handling of vaccines jeopardises good immunisation. The likelihood of the cold chain being broken, between production and injection, is very high. There is a gross insufficiency of functional cooling facilities and reliable and sterile injection equipment etc. In addition, the vaccine strain used may not protect against the prevailing field strain, e.g. in FMD. Systematic outbreak investigation, sero-typing and sero-sub-typing, would be essential first steps but are hardly ever carried out. 4.1.3 Provision of relevant up-to-date laboratory facilities See 5.1.3. 4.1.4 Assist in drawing up legal and regulatory requirements for creating a legal and administrative basis, and assist in enforcing legislation The current legislation on the control of animal diseases that are of economic importance or that are a threat to public health is inadequate in terms of precision, scope and the powers of enforcement available to the authorities. The list of diseases for which control measures are required includes several that are of only minor importance economically or as zoonoses; a number of important OIE List A diseases are omitted from the list. Specific legislation to cover the control and eradication of the more important livestock diseases is deficient or completely lacking. 4.1.5 Ensuring quantity and quality of animal health personnel within the animal disease control services Because training at the universities is deficient, graduates are often not well prepared for the tasks required of their jobs. There is no formal training for veterinarians or agricultural engineers, in the control of scheduled diseases, prior to their employment as government veterinary officers. Moreover, previous field experience is not required for those entering the government service. At all levels of the veterinary services shortcomings have been identified, particularly in disease 9

diagnosis, the handling of outbreak situations, preventative control measures, economics, and communication skills. A programme of continuous professional and technical development does not exist. Further in-service training is rare, and literature to keep up-to-date with modern techniques and approaches does not exist in the Vietnamese language. 4.1.6 Co-operation with related research and training institutions Though quite a lot of research is conducted in Vietnam, it is not generally field-oriented, with little direct benefit to the farming community or consumers of animal products. Co-ordination is limited between research institutes, e.g. the National Institute for Veterinary Research, the National Institute for Animal Husbandry, and the university veterinary faculties, and co-operation with the DAH and the farming community is weak. MSc and PhD dissertations are largely laboratory based and rarely conducted on-farm. 4.1.7 Co-operation with Regional and International Programmes for more effective disease control Vietnam is a member of OIE, FAO (but not yet of the important Animal Production and Health Commission for Asia and the Pacific [APHCA]), WHO, ASEAN, AHPISA etc. Even though participation in related seminars and workshops takes place if funds are available, little progress is made in implementing recommendations. The admission of the People s Republic of China to the WTO will increase pressure on Vietnam to join as well. Vietnam could potentially have a comparative advantage in the production of pigs and poultry if certain animal diseases could be eliminated and harmful residues in meat and eggs strictly controlled. However, for lucrative international markets, the exporting countries must prove beyond doubt its capability to guarantee international standards as stipulated by the above-mentioned international organisations. WTO s Sanitary and Phyto-sanitary Agreement (SPS) will become the basis for international trade. Vietnam is not fully aware that entering an international trade agreement without being able to prove effective veterinary and public health services, is likely to prevent it from exporting even though it would have to accept imports from trade partners having established international quality standards. Full transparency in publicising the actual disease situation will be absolutely necessary if international trade is to be seriously considered. 4.2 Additional Issues to be addressed in Future 4.2.1 Creation of a suitable administrative organisation One of the reasons why control of animal diseases of public good category is not conducted effectively stems from the fact that the administration of this branch of the animal disease control services is hampered by its structure. Its chain of command must be unbroken from DAH Headquarters to the 61 Provincial Sub-Departments of Animal Health and, through them, to their District Veterinary Stations (DVS). A set of basic disease control measures must be carried out nation-wide in accordance with their legal stipulations, and it is the responsibility of the DAH to work out the regulatory provisions and to supervise nation-wide implementation. The DAH must also be in a position to take action in the case of non-compliance by a Province. The practical implementation of control and preventive measures against the listed diseases is the genuine task of the SDAH. Political support and allocation of funds for disease control is 10