Chronic Wasting Disease (CWD) and Government Response
link to page 1 
May 17, 2019
Chronic Wasting Disease (CWD) and Government Response
Chronic wasting disease (CWD) is a degenerative
period can last for a year or longer. No vaccine or treatment
neurological disorder that affects cervids, including
exists for CWD. Two diagnostic post-mortem testing
multiple species of deer, elk, and moose. Infected cervids
techniques exist for identifying CWD in cervids.
may exhibit many symptoms including weight loss or
wasting, poor balance, excessive salivation, difficulty
In some experimental studies, CWD has been shown to
swallowing, and others. CWD has a 100% mortality rate.
infect mice, squirrels, monkeys, and potentially macaques.
The spread of CWD has impacted both wild and captive
According to the Centers for Disease Control and
animals, including farm-raised cervids (e.g., for venison
Prevention (CDC) in the Department of Health and Human
production), across the United States. CWD has caused
Services (HHS), there is no “strong evidence,” to date, of
economic losses for U.S. farm-raised cervid operations and
CWD infecting humans. It is unknown if humans may
may affect wild cervids. As a result, Congress is taking an
become infected by CWD prions, but some research
active interest in the incidence and management of CWD.
suggests that CWD may possibly pose a risk to humans. As
a precaution, the CDC and other public health officials
CWD was first discovered in 1967 in Colorado, and since
advise caution in handling/processing animals that may be
that time, it has spread across the United States. It may be
infected and warn against eating meat from an infected
transmitted by direct animal-to-animal contact or indirectly
cervid. The CDC monitors current research on the potential
when animals come in contact with infected substances,
for CWD transmission to humans and provides
such as soil, dust, or forage. According to the U.S.
recommendations for hunters to reduce their risk of
Geological Survey (USGS), CWD has spread to 26 U.S.
exposure.
states (as of May 2019; Figure 1) and to Canada, Finland,
Norway, Sweden, and South Korea.
CWD Management Activities
CWD management activities are shared by several federal
CWD is a type of transmissible spongiform encephalopathy
and state departments and agencies. The primary federal
(TSE) that affects cervids. TSEs, also known as prion
agencies include the Animal and Plant Health Inspection
diseases, are a group of degenerative neurological disorders
Service (APHIS) within the U.S. Department of Agriculture
that result in a spongy appearance of the infected brain.
(USDA) and USGS, the U.S. Fish and Wildlife Service
TSEs are believed to be caused by abnormally folded prion
(FWS), and the National Park Service (NPS) within the
proteins. Prion proteins are naturally occurring but, when
Department of the Interior (DOI). Various state agencies—
folded incorrectly, can become both infectious and deadly.
such as those overseeing agriculture, fish, or wildlife—
Other TSEs include scrapie, which afflicts sheep and goats,
often collaborate with federal agencies. Over 25 states have
and bovine spongiform encephalopathy (BSE, also known
control programs for both wild and captive cervids.
as mad cow disease), which affects cattle. TSEs in humans
include Creutzfeldt-Jakob disease.
An early example of state and federal government
cooperation was the “CWD Task Force” (no longer in
After infection by CWD, cervids may not exhibit symptoms
operation). Initiated in 2002 by USDA, DOI, several state
for an extended period following exposure. This incubation
wildlife and agriculture agencies, land grant universities,
Figure 1. Distribution of CWD in North America
Source: CRS, adapted from USGS, National Wildlife Health Center, https://www.usgs.gov/centers/nwhc/science/expanding-distribution-
chronic-wasting-disease?qt-science_center_objects=0#qt-science_center_objects.
Notes: Map depicts the distribution area of CWD in North America as of May 2019. This map is regularly updated by the USGS. Both Hawai
and Alaska (not depicted in the figure) do not have cases of CWD.
https://crsreports.congress.gov
Chronic Wasting Disease (CWD) and Government Response
and other organizations, the purpose of the task force was to
State Management Activities
establish a network to conduct CWD surveillance, research,
State government management activities include enforcing
and depopulation/culling efforts. Some notable outcomes of
APHIS’s CWD regulations for wild/captive cervids,
the task force include the publication of a management
establishing state-specific CWD regulations, and
plan—titled “Plan for Assisting States, Federal Agencies,
conducting CWD testing in wild/captive cervids. In some
and Tribes in Managing Chronic Wasting Disease in Wild
states, the department of agriculture has jurisdiction over
and Captive Cervids”—and a USGS-led CWD data
captive and wild cervids. In other states, the fish and game
clearinghouse. Today, cooperation continues among state
department has this responsibility. In several states, these
and federal agriculture and wildlife agencies, producers,
two departments share this responsibility. The
and hunters.
Environmental Protection Agency coordinates with states to
develop protocols for the safe disposal of potentially
Federal Management Activities
infected animal carcasses.
At the federal level, many CWD activities are within the
purview of USDA’s APHIS. One of APHIS’s goals is to
In October 2018, the Michigan Department of Natural
eradicate animal diseases, such as CWD from farmed deer
Resources released an analysis of CWD regulations in the
and elk herds, and to assist states and tribes in managing
United States and Canada. The analysis reports on state-
diseases in wild animals. APHIS’s legislative authority for
specific responses to managing CWD. For example, many
this work derives mainly from the Animal Health Protection
states prohibit cervid imports from any country, region, or
Act (AHPA, 7 U.S.C. §§8301 et seq.).
state in which CWD is found and/or require that the
country, region, or state exporting the cervid be enrolled in
One APHIS management tool is the CWD Voluntary Herd
an official CWD monitoring or certification program. Many
Certification Program (HCP), which provides a national
states have banned all cervid and cervid product imports.
approach to the control of CWD in farm-raised cervids. The
program is a voluntary, cooperative effort among APHIS,
Recent Congressional Interest
state animal health and wildlife agencies, and farming
In the 115th Congress, the Agriculture Improvement Act of
operations. As of September 2018, 28 states are
2018 (P.L. 115-334, commonly referred to as the 2018 farm
participating in this voluntary program. APHIS coordinates
bill) included a provision (Section 7209) to make CWD
with state agencies to encourage cervid owners to certify
research and extension grants a high priority. The 116th
their herds and comply with the CWD HCP standards to
Congress appropriated funds to address CWD in wild and
prevent the introduction and spread of CWD (9 C.F.R. Parts
captive cervids through the Consolidated Appropriations
55 and 81). To be enrolled in CWD HCP, herd owners are
Act, 2019 (P.L. 116-6). In particular, both APHIS and the
required to install fencing, provide individual animal
Agricultural Research Service, also in USDA, were
identification, and conduct post-mortem testing for all
specifically directed to address CWD (H.Rept. 116-9).
animals over 12 months that die for any reason.
Some Members of Congress have also introduced
Several DOI agencies have also been involved in CWD
legislation to continue CWD research, surveillance, and
activities, including USGS, FWS, and NPS. USGS,
management. For example, bills introduced in the 116th
primarily through its National Wildlife Health Center,
Congress related to CWD include the following.
collaborates with other federal and state agency partners to
address such challenges as the need for new diagnostic
The CWD Transmission in Cervidae Study Act (H.R.
capacities as well as data collection. FWS has addressed
837 and S. 382) would authorize a special study on the
CWD through a number of mechanisms, including through
spread of CWD in cervids. The bill directs APHIS to
law enforcement, requiring mandatory testing in certain
study CWD in wild, captive, and farm-raised cervid
areas, and developing CWD plans for individual units in the
populations no later than six months after the date on
National Wildlife Refuge System. NPS has similarly
which funds are made available.
addressed CWD, including through the NPS Wildlife
The CWD Disease Management Act (H.R. 1550 and S.
Health Branch, research activities, and management and
689) would authorize $35 million of appropriations for
surveillance efforts.
state and tribal efforts to manage and control CWD.
Animal feed, as well as rendered or animal byproducts, and
The ACCESS Act (H.R. 1326) includes two titles
wild game meat—including venison—intended for retail
(Titles X and XI) that incorporate CWD oversight that
sale fall under the purview of HHS’s Food and Drug
are similar to the CWD Transmission in Cervidae Study
Administration (FDA). The Food Safety and Modernization
Act and CWD Disease Management Act.
Act (P.L. 111-353) provides FDA authority to establish
preventative controls (e.g., food safety plans) for animal
The DEER Act (S. 613 and H.R. 1919) would amend
feed intended to be consumed by livestock and other
the AHPA to provide support for states and coordinate
animals, including farm-raised cervids. In 2016, FDA
response efforts to address CWD through a multiagency
issued guidance to the industry prohibiting the use of
task force. The bill would also award a grant for
materials from deer and elk in any animal feed or feed
research focused on CWD in whitetail deer.
ingredients. In addition, FDA inspects and regulates all
non-USDA-regulated meats and meat products, including
Sahar Angadjivand, Analyst in Agricultural Policy
wild or captive cervid meat, intended for commercial sale.
R. Eliot Crafton, Analyst in Natural Resources Policy
IF11213
https://crsreports.congress.gov
Chronic Wasting Disease (CWD) and Government Response
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF11213 · VERSION 1 · NEW
May 17, 2019
Chronic Wasting Disease (CWD) and Government Response
Chronic wasting disease (CWD) is a degenerative
period can last for a year or longer. No vaccine or treatment
neurological disorder that affects cervids, including
exists for CWD. Two diagnostic post-mortem testing
multiple species of deer, elk, and moose. Infected cervids
techniques exist for identifying CWD in cervids.
may exhibit many symptoms including weight loss or
wasting, poor balance, excessive salivation, difficulty
In some experimental studies, CWD has been shown to
swallowing, and others. CWD has a 100% mortality rate.
infect mice, squirrels, monkeys, and potentially macaques.
The spread of CWD has impacted both wild and captive
According to the Centers for Disease Control and
animals, including farm-raised cervids (e.g., for venison
Prevention (CDC) in the Department of Health and Human
production), across the United States. CWD has caused
Services (HHS), there is no “strong evidence,” to date, of
economic losses for U.S. farm-raised cervid operations and
CWD infecting humans. It is unknown if humans may
may affect wild cervids. As a result, Congress is taking an
become infected by CWD prions, but some research
active interest in the incidence and management of CWD.
suggests that CWD may possibly pose a risk to humans. As
a precaution, the CDC and other public health officials
CWD was first discovered in 1967 in Colorado, and since
advise caution in handling/processing animals that may be
that time, it has spread across the United States. It may be
infected and warn against eating meat from an infected
transmitted by direct animal-to-animal contact or indirectly
cervid. The CDC monitors current research on the potential
when animals come in contact with infected substances,
for CWD transmission to humans and provides
such as soil, dust, or forage. According to the U.S.
recommendations for hunters to reduce their risk of
Geological Survey (USGS), CWD has spread to 26 U.S.
exposure.
states (as of May 2019; Figure 1) and to Canada, Finland,
Norway, Sweden, and South Korea.
CWD Management Activities
CWD management activities are shared by several federal
CWD is a type of transmissible spongiform encephalopathy
and state departments and agencies. The primary federal
(TSE) that affects cervids. TSEs, also known as prion
agencies include the Animal and Plant Health Inspection
diseases, are a group of degenerative neurological disorders
Service (APHIS) within the U.S. Department of Agriculture
that result in a spongy appearance of the infected brain.
(USDA) and USGS, the U.S. Fish and Wildlife Service
TSEs are believed to be caused by abnormally folded prion
(FWS), and the National Park Service (NPS) within the
proteins. Prion proteins are naturally occurring but, when
Department of the Interior (DOI). Various state agencies—
folded incorrectly, can become both infectious and deadly.
such as those overseeing agriculture, fish, or wildlife—
Other TSEs include scrapie, which afflicts sheep and goats,
often collaborate with federal agencies. Over 25 states have
and bovine spongiform encephalopathy (BSE, also known
control programs for both wild and captive cervids.
as mad cow disease), which affects cattle. TSEs in humans
include Creutzfeldt-Jakob disease.
An early example of state and federal government
cooperation was the “CWD Task Force” (no longer in
After infection by CWD, cervids may not exhibit symptoms
operation). Initiated in 2002 by USDA, DOI, several state
for an extended period following exposure. This incubation
wildlife and agriculture agencies, land grant universities,
Figure 1. Distribution of CWD in North America
Source: CRS, adapted from USGS, National Wildlife Health Center, https://www.usgs.gov/centers/nwhc/science/expanding-distribution-
chronic-wasting-disease?qt-science_center_objects=0#qt-science_center_objects.
Notes: Map depicts the distribution area of CWD in North America as of May 2019. This map is regularly updated by the USGS. Both Hawai
and Alaska (not depicted in the figure) do not have cases of CWD.
https://crsreports.congress.gov
Chronic Wasting Disease (CWD) and Government Response
and other organizations, the purpose of the task force was to
State Management Activities
establish a network to conduct CWD surveillance, research,
State government management activities include enforcing
and depopulation/culling efforts. Some notable outcomes of
APHIS’s CWD regulations for wild/captive cervids,
the task force include the publication of a management
establishing state-specific CWD regulations, and
plan—titled “Plan for Assisting States, Federal Agencies,
conducting CWD testing in wild/captive cervids. In some
and Tribes in Managing Chronic Wasting Disease in Wild
states, the department of agriculture has jurisdiction over
and Captive Cervids”—and a USGS-led CWD data
captive and wild cervids. In other states, the fish and game
clearinghouse. Today, cooperation continues among state
department has this responsibility. In several states, these
and federal agriculture and wildlife agencies, producers,
two departments share this responsibility. The
and hunters.
Environmental Protection Agency coordinates with states to
develop protocols for the safe disposal of potentially
Federal Management Activities
infected animal carcasses.
At the federal level, many CWD activities are within the
purview of USDA’s APHIS. One of APHIS’s goals is to
In October 2018, the Michigan Department of Natural
eradicate animal diseases, such as CWD from farmed deer
Resources released an analysis of CWD regulations in the
and elk herds, and to assist states and tribes in managing
United States and Canada. The analysis reports on state-
diseases in wild animals. APHIS’s legislative authority for
specific responses to managing CWD. For example, many
this work derives mainly from the Animal Health Protection
states prohibit cervid imports from any country, region, or
Act (AHPA, 7 U.S.C. §§8301 et seq.).
state in which CWD is found and/or require that the
country, region, or state exporting the cervid be enrolled in
One APHIS management tool is the CWD Voluntary Herd
an official CWD monitoring or certification program. Many
Certification Program (HCP), which provides a national
states have banned all cervid and cervid product imports.
approach to the control of CWD in farm-raised cervids. The
program is a voluntary, cooperative effort among APHIS,
Recent Congressional Interest
state animal health and wildlife agencies, and farming
In the 115th Congress, the Agriculture Improvement Act of
operations. As of September 2018, 28 states are
2018 (P.L. 115-334, commonly referred to as the 2018 farm
participating in this voluntary program. APHIS coordinates
bill) included a provision (Section 7209) to make CWD
with state agencies to encourage cervid owners to certify
research and extension grants a high priority. The 116th
their herds and comply with the CWD HCP standards to
Congress appropriated funds to address CWD in wild and
prevent the introduction and spread of CWD (9 C.F.R. Parts
captive cervids through the Consolidated Appropriations
55 and 81). To be enrolled in CWD HCP, herd owners are
Act, 2019 (P.L. 116-6). In particular, both APHIS and the
required to install fencing, provide individual animal
Agricultural Research Service, also in USDA, were
identification, and conduct post-mortem testing for all
specifically directed to address CWD (H.Rept. 116-9).
animals over 12 months that die for any reason.
Some Members of Congress have also introduced
Several DOI agencies have also been involved in CWD
legislation to continue CWD research, surveillance, and
activities, including USGS, FWS, and NPS. USGS,
management. For example, bills introduced in the 116th
primarily through its National Wildlife Health Center,
Congress related to CWD include the following.
collaborates with other federal and state agency partners to
address such challenges as the need for new diagnostic
The CWD Transmission in Cervidae Study Act (H.R.
capacities as well as data collection. FWS has addressed
837 and S. 382) would authorize a special study on the
CWD through a number of mechanisms, including through
spread of CWD in cervids. The bill directs APHIS to
law enforcement, requiring mandatory testing in certain
study CWD in wild, captive, and farm-raised cervid
areas, and developing CWD plans for individual units in the
populations no later than six months after the date on
National Wildlife Refuge System. NPS has similarly
which funds are made available.
addressed CWD, including through the NPS Wildlife
The CWD Disease Management Act (H.R. 1550 and S.
Health Branch, research activities, and management and
689) would authorize $35 million of appropriations for
surveillance efforts.
state and tribal efforts to manage and control CWD.
Animal feed, as well as rendered or animal byproducts, and
The ACCESS Act (H.R. 1326) includes two titles
wild game meat—including venison—intended for retail
(Titles X and XI) that incorporate CWD oversight that
sale fall under the purview of HHS’s Food and Drug
are similar to the CWD Transmission in Cervidae Study
Administration (FDA). The Food Safety and Modernization
Act and CWD Disease Management Act.
Act (P.L. 111-353) provides FDA authority to establish
preventative controls (e.g., food safety plans) for animal
The DEER Act (S. 613 and H.R. 1919) would amend
feed intended to be consumed by livestock and other
the AHPA to provide support for states and coordinate
animals, including farm-raised cervids. In 2016, FDA
response efforts to address CWD through a multiagency
issued guidance to the industry prohibiting the use of
task force. The bill would also award a grant for
materials from deer and elk in any animal feed or feed
research focused on CWD in whitetail deer.
ingredients. In addition, FDA inspects and regulates all
non-USDA-regulated meats and meat products, including
Sahar Angadjivand, Analyst in Agricultural Policy
wild or captive cervid meat, intended for commercial sale.
R. Eliot Crafton, Analyst in Natural Resources Policy
IF11213
https://crsreports.congress.gov
Chronic Wasting Disease (CWD) and Government Response
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF11213 · VERSION 1 · NEW