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May 17, 2019
African Swine Fever (ASF)
Between September 2018 and May 2019, the number of
feeding of garbage. On-farm biosecurity is critical to
African swine fever (ASF) outbreaks has rapidly increased,
preventing ASF from developing and spreading.
most notably in China, triggering economic losses in
ASF Impacts on Global Pork Trade
affected pork-producing countries (Figure 1). Since
China, the world’s leader in pork production, has notified
September 2018, the World Organization for Animal Health
OIE of animal losses due to ASF. Between September 2018
(OIE)—an intergovernmental organization coordinating,
and May 2019, China has reported over 2 million culled
supporting, and promoting animal health and disease
animals. The USDA’s Foreign Agricultural Service’s
control—has reported that over 2.8 million hogs have been
“Livestock and Poultry: World Markets and Trade” report
culled globally due to ASF. Many industry observers
for April 2019 forecasts that China’s pork imports in 2019
believe that the actual number of culled animals is much
will climb to a record high, partly due to liquidation of
higher. The extent of ASF outbreaks is expected to affect
China’s swine herd. Despite efforts to contain the disease,
international trade in pork and feedstuffs. The U.S.
Department of Agriculture’s (USDA) Animal and
outbreaks continue to emerge, and it appears that China will
Plant
be unable to eradicate ASF in the near term. Chinese pork
Health Inspection Service (APHIS) is monitoring the global
imports could partially offset its lower production, and the
spread of ASF and has developed plans to prevent ASF
EU, Canada, Brazil, and United States are expected to
introduction into the United States.
increase exports to China.
Background
Because of ASF, USDA reports that U.S. pork sales to
ASF is a viral disease that affects swine, including domestic
China from January to April 2019 are more than three times
pigs, feral (wild) swine, wild boar, and other exotic swine.
higher than during the same period a year ago in spite of the
Infected swine may exhibit symptoms including high fever,
retaliatory tariffs China imposed on U.S. pork exports in
decreased appetite, and weakness. ASF leads to nearly
April 2018. Higher Chinese imports will likely create an
100% mortality rates in swine herds. There is no treatment
uptick in global pork trade in 2019, driving global hog
or vaccine available for ASF. The only way to reduce the
prices up and leading to record sales for exporters, such as
prevalence of ASF is to quarantine and depopulate (cull) all
the United States.
affected and exposed animals. ASF does not have zoonotic
potential—the infection cannot spread from animals to
In contrast, China is also the world’s leading importer of
humans.
soybeans—a source for high-protein meal used as animal
ASF is caused by the African swine fever virus and spreads
feed—averaging over 90 million metric tons per year since
between pigs by direct contact with an infected animal, its
2016, according to USDA. A substantial decline in China’s
bodily fluids (e.g., saliva, blood, feces), or animal tissue or
hog population could curb its soybean imports.
through indirect contact with contaminated objects. In
addition, it is often introduced into a herd through the
Figure 1. Global Distribution of ASF (January 2017-May 2019)
Source: OIE, World Animal Health Information Database, accessed May 15, 2019.
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African Swine Fever (ASF)
Potential Impacts to U.S. Pork Industry
Response Strategy: African Swine Fever (2019).” The plan
If ASF were to be detected in the United States, the
provides guidance for responding to a U.S. swine health
consequences to the U.S. pork industry could be severe.
emergency caused by ASF. It explains the protocols and the
Upon detection of ASF in the U.S. hog population, U.S.
cooperative plans APHIS has with state authorities and the
export markets would likely impose restrictions on imports
EPA for disposing of potentially infected carcasses.
of U.S. pork. Total U.S. pork exports in 2018 reached
APHIS and CBP Collaboration
nearly $6.4 billion (2.4 million metric tons, or 22% of
APHIS has concluded that illegal entry of swine products
production in 2018). Mexico, China, Japan, and Canada
and byproducts, such as through airline baggage and
rank as the leading U.S. pork export markets.
foreign mail, presents the largest potential pathway for the
The U.S. pork industry and USDA have both responded to
entry of the ASF virus. To strengthen detection, APHIS has
the global spread of ASF. For example, out of an abundance
increased the deployment of trained detector dogs, or the
of caution, the National Pork Producers Council cancelled
“Beagle Brigade.” CBP enforces APHIS regulations and is
the annual World Pork Expo in Des Moines, Iowa, citing a
responsible for confiscating illegally imported animals and
possible risk of ASF transmission. Typically, the expo
animal byproducts at ports or from travelers entering the
draws about 20,000 domestic and foreign visitors. In
United States and for seizing such products entering the
another example, APHIS participated in the Canadian Food
country through mail facilities. For example, in early March
Inspection Agency’s (CFIA) “African Swine Fever Forum,”
2019, CBP officers stopped an attempt to smuggle over 1
held April 30-May 1, 2019, to address the status,
million pounds of pork containing food products from
prevention, and management of ASF in North America.
China. All the products were incinerated.
APHIS’s engagement with CFIA has led to the
APHIS and FSIS Collaboration
establishment of a strategy to harmonize available North
APHIS reports to FSIS—a USDA agency that conducts
American ASF diagnostic methods. According to APHIS,
official inspection of domestic, imported, and exported
this collaboration resulted in estimates of resources and
meat, poultry, and some egg products—when OIE receives
laboratory capacity necessary to meet the potential
notification of an ASF outbreak in specific regions or
diagnostic demand for ASF outbreaks.
countries. FSIS follows established protocol to address pork
Federal ASF Management Activities
and pork products from regions where ASF exists or is
Many ASF activities are within the purview of APHIS, the
reasonably believed to exist (9 C.F.R. 94.8).
lead agency for responding to animal diseases, conducting
Swine Health Funding
disease investigation and control activities, and overseeing
The 116th Congress appropriated $24.8 million in the
zoonotic disease prevention and response. APHIS’s
Consolidated Appropriations Act, 2019 (P.L. 116-6), for
legislative authority for this work derives mainly from the
swine health, including swine surveillance, emergency
Animal Health Protection Act (7 U.S.C. §8301 et seq.). To
preparedness, and response planning. Funds were not
carry out this work APHIS often partners with other federal
specific to ASF. In addition, USDA’s Agricultural Research
agencies, including the Food and Drug Administration
Service (ARS) received $9.6 million for research efforts on
(FDA), the Food Safety and Inspection Service (FSIS), the
foreign animal diseases and emerging diseases. ARS is to
Environmental Protection Agency (EPA), and Customs and
determine how much FY2019 funding will be allocated
Border Protection (CBP). In addition, various agencies
toward ASF vaccine development. In FY2018, ARS
within individual states, such as agricultural agencies and
allocated $324,000 toward ASF vaccine development. This
wildlife management agencies, collaborate with APHIS.
included research using clustered regularly interspaced
Since the practice of feeding garbage to swine could
short palindromic repeats (or CRISPR-Cas9)—a technology
transmit infectious diseases, APHIS is tasked with licensing
that enables researchers to edit parts of genomes by altering
and inspecting swine production facilities that feed cooked
DNA sequence—to better understand gene function toward
garbage to swine and to search for unlicensed facilities that
ASF vaccine development.
may illegally feed raw garbage (9 C.F.R. Part 166). As of
The 2018 farm bill (P.L. 115-334) established the National
February 2018, APHIS reported that 22 states prohibit
Animal Disease Preparedness Response Program
feeding garbage to domestic swine, while 28 states in
(NADPRP) and the National Animal Vaccine and
addition to Puerto Rico and the Virgin Islands permit it.
Veterinary Countermeasures Bank (NAVVCB). The
In May 2019, APHIS announced it will enhance its ASF
NADPRP is to address risks to U.S. livestock associated
surveillance efforts by adding ASF testing to its existing
with the introduction of animal diseases and pests. The
surveillance of classical swine fever. The surveillance effort
NAVVCB is to maintain significant quantities of vaccine
is to test samples from high-risk animals and pigs from
and diagnostic products to respond to animal disease
herds that are at greater risk for disease through such factors
outbreaks. The act authorized mandatory funding of $120
as exposure to feral swine or garbage feeding.
million for FY2019-FY2022 and $30 million for FY2023
and for each fiscal year thereafter for the two new programs
APHIS and FDA Collaboration
and the NAHLN. In addition, the act authorizes annual
On September 5, 2018, USDA and FDA officials met with
discretionary appropriations for FY2019-FY2023.
U.S. pork industry groups to assess additional measures to
prevent the spread of ASF to the United States. Following
Sahar Angadjivand, Analyst in Agricultural Policy
the meeting, APHIS moved to expand testing capacity for
Joel L. Greene, Analyst in Agricultural Policy
ASF within APHIS National Animal Health Laboratory
Network (NAHLN) labs, and it issued the “Foreign Animal
IF11215
Disease Preparedness and Response Plan—Disease
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African Swine Fever (ASF)
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