National Bio and Agro-Defense Facility: Purpose and Status
April 6, 2020
National Bio and Agro-Defense Facility: Purpose and Status
Congress authorizes and oversees federal agency
protect American agriculture. This work includes research,
implementation of agricultural biosecurity and biodefense
testing, diagnostic development, and workforce training.
research. Since Congress first authorized appropriations for
The DHS Science and Technology Directorate also
the National Bio and Agro-defense Facility (NBAF) in
conducts research and collaborates with USDA to bring
FY2006, the Department of Homeland Security (DHS) and
vaccines and diagnostics through regulatory processes.
the U.S. Department of Agriculture (USDA) have proposed
Laboratory Research Capabilities
new management, operations, and research plans for this
federal research facility. NBAF aims to allow for research
As of 2017, the Government Accountability Office
on potentially devastating foreign animal diseases (FADs)
identified eight BSL-4 laboratories registered by federal,
that cannot be conducted in existing U.S. facilities. It is
private, and academic institutions in the United States.
planned to become fully operational by December 2022.
BSL-4 is the highest biocontainment level, and such
laboratories permit research on exotic disease agents that
Purpose
pose high risks of aerosol transmission and cause frequently
Homeland Security Presidential Directive 9 (HSPD-9),
fatal diseases for which no vaccines or specific treatments
issued by President George W. Bush in 2004, directed the
exist. NBAF is to include a large animal BSL-4 laboratory
USDA and DHS to “develop a plan to provide safe, secure,
to permit researchers to study zoonotic diseases requiring
and state-of-the-art agriculture biocontainment laboratories
such biocontainment, such as Rift Valley Fever and Nipah
that research and develop diagnostic capabilities for foreign
Virus. These diseases are not permitted to be studied at
animal and zoonotic diseases.” DHS created the NBAF
PIADC, as its maximum biocontainment level is BSL-3.
program to carry out this directive.
While aspects of these viruses are studied at other BSL-4
laboratories in the United States, NBAF’s laboratory is to
allow for research in large animal models (e.g., swine and
NBAF MISSION: Provide an enduring capability to
cattle).
enable the United States to conduct comprehensive
research, develop vaccines, and provide enhanced
In addition to BSL-4 lab space, NBAF is to also have BSL-
diagnostic and training capabilities to protect against
3 laboratories for research on other high-consequence
transboundary, emerging, and zoonotic animal diseases
FADs, including Foot-and-Mouth Disease (FMD).
that threaten our nation’s food supply, agricultural
According to USDA, an FMD outbreak in the United States
economy, and public health.—USDA NBAF Plan
could result in economic losses of $15 billion to $100
billion. PIADC is the only U.S. laboratory permitted to
The NBAF currently under construction in Manhattan, KS,
work on live FMD virus. In 1948, Congress precluded the
is to replace the Plum Island Animal Disease Center
conduct of such research on the U.S. mainland except with
(PIADC), located off the coast of New York, and serve as a
the express permission of the Secretary of Agriculture (21
state-of-the-art biocontainment facility for federal research
U.S.C. §113a). In 2008, Congress required the Secretary to
on high-consequence FADs. It is designed to be the first
provide DHS a permit to possess live FMD virus on the
U.S. facility to provide Biosafety Level 4 (BSL-4)
U.S. mainland at a single facility that succeeds PIADC
laboratories capable of housing large livestock. NBAF is
(Food, Conservation, and Energy Act of 2008 [P.L. 110-
also designed with a specialized facility for transitioning
246], §7524).
countermeasures (e.g., vaccines, antivirals, and test kits)
Transition from DHS to USDA
from research to commercially viable products.
USDA managed PIADC and conducted research there from
FADs and Zoonotic Disease Background
its establishment in 1954 until 2003, when Congress
High-consequence FADs are animal diseases not known to
transferred PIADC management to the newly created DHS
exist in the United States that could cause catastrophic
(P.L. 107-296, §310). USDA continues to conduct research
economic damage if they entered the country. Some FADs
at the facility. In 2006, DHS announced its intention to
are zoonotic diseases—those that can transmit from animals
establish NBAF as a new facility to replace the outdated
to people—while others are not.
PIADC. In 2009, DHS selected Manhattan, KS, from
among five candidate locations and began construction.
Federal research on high-consequence FADs involves
multiple agencies. Primary agencies include the USDA
In its FY2019 Budget Justification, DHS announced that
Agricultural Research Service (ARS) and Animal and Plant
upon completion of NBAF construction and commissioning
Health Inspection Service (APHIS), which conduct work on
(expected in May 2021), it would transfer NBAF ownership
FADs in accordance with their missions to support and
and management to USDA. The explanatory statement for
the FY2018 appropriations (P.L. 115-141) stated that DHS
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National Bio and Agro-Defense Facility: Purpose and Status
is responsible for completing NBAF construction. In June
require coordination with DHS, and require biennial reports
2019, DHS and USDA signed a memorandum of agreement
to Congress until two years after NBAF becomes fully
(MOA) to establish a transition framework.
operational. The Senate Agriculture Committee reported
this bill in December 2019.
According to USDA, ARS will own NBAF, and ARS and
Additional areas of interest for Congress may include the
APHIS will conduct programs and share operational
ongoing construction, equipping, staffing, and operations of
responsibilities. USDA expects approximately 400 people
NBAF, which Congress could address through
to work at NBAF, equivalent to current staffing at PIADC.
appropriations, other legislation, or oversight hearings.
Schedule, Costs, and Appropriations
USDA planning for continued research and operations may
The original NBAF schedule, as presented to Congress,
be addressed through the 10-year NBAF strategic plan that
proposed finishing construction and commissioning NBAF
Congress has required USDA to submit (P.L. 116-94).
in FY2010. DHS has extended the proposed schedule
Congress may also be interested in stakeholder concerns
several times. DHS expects that NBAF will become fully
about the potential for accidental or intentional release of
operational in FY2023—13 years after initial expectations.
disease agents from NBAF, a concern that some have raised
This has kept PIADC open longer than expected.
since the proposal to create NBAF and to site it on the U.S.
Costs to replace PIADC with NBAF include site selection,
mainland. Congress may choose to continue to exercise
design, construction, operations, maintenance, and transfer
oversight of NBAF safety precautions as well as federal
of programs from PIADC to NBAF. DHS projects
disease response plans. APHIS provides information at its
constructing and commissioning NBAF to cost a total of
Animal Health Emergency management website, including
$1.25 billion. This cost was fully funded as of FY2015
FAD Preparation and Response Plans for many of the
through a combination of federal appropriations to DHS
diseases that may be studied at NBAF. Potential responses
($928 million) and funds from the University of Kansas
to accidental or intentional release of disease agents from
($307 million) and the city of Manhattan, KS ($5 million).
NBAF include the same measures that would be employed
for outbreaks with other causes: surveillance, quarantine,
In light of the transfer, Congress has appropriated funds to
vaccination, stamping out (i.e., depopulating or slaughtering
USDA for hiring, transferring science programs from
affected livestock), depopulating wild reservoir species, and
PIADC to NBAF, standing up activities, and initial
vector control (e.g., spraying for mosquitoes).
operations and maintenance costs. In FY2018
appropriations (P.L. 115-141) and report language,
Diseases for Proposed NBAF Research
Congress designated an initial $7 million for hiring at ARS
USDA identified the fol owing FADs as meeting mission
and for human capital development at APHIS. FY2020
requirements for potential NBAF research:
appropriations for USDA (P.L. 116-94) provide $13.1
African Swine Fever (ASF). Affects swine. High swine
million to ARS and $20.8 million to APHIS for transition,
mortality. No available vaccine or countermeasures.
equipment purchases, and science programming. The law
Classical Swine Fever (CSF). Affects swine (wild and
requires USDA to submit to Congress a 10-year strategic
domestic). Globally widespread. Improved countermeasures
plan for NBAF operations and research before any funds
needed.
are obligated above FY2019 levels.
Contagious Bovine Pleuropneumonia (CBPP). Affects
cattle. High cattle mortality. Improved countermeasures
Research Plans
needed.
Once NBAF is operational, ARS plans to focus on
Foot and Mouth Disease (FMD). Affects cloven-hoofed
delivering scientific research and developing
animals (buffalo, camels, cattle, deer, goats, sheep). Strain-
countermeasures to protect agriculture and public health
specific vaccines available. Improved countermeasures needed.
from FADs, while APHIS plans to focus on diagnostic
Hendra Virus (HeV). Zoonotic: affects horses and people.
testing and workforce training. USDA has identified
Natural reservoir: flying fox. High human and horse mortality.
potential diseases for NBAF research (see text box).
Horse vaccine available. Improved countermeasures needed.
In terms of workforce training, APHIS sponsors the NBAF
Japanese Encephalitis (JE) Virus. Zoonotic: affects people,
domestic animals, birds, bats, snakes, and frogs. Carriers
Scientist Training Program, which financially supports
include domestic pigs and wild birds. Vaccine available.
graduate education for students who commit to a federal
Improved countermeasures needed.
position at PIADC or NBAF once they complete their
Nipah Virus (NiV). Zoonotic: affects swine and people.
degrees. It also sponsors the NBAF Laboratory Technician
Natural reservoir: flying fox. High swine and human mortality.
Training Program for undergraduate students, planned to
No available treatments or countermeasures.
take place at Kansas State University during summer 2020.
Rift Valley Fever (RVF). Zoonotic: affects people and
Congressional Interest
cloven-hoofed animals (buffalo, camels, cattle, deer, goats,
Congress may be interested in overseeing how DHS and
sheep). High animal and human mortality. No vaccine or
USDA implement the MOA detailing the NBAF transfer, as
treatments available in the United States.
well as potential coordination on research priorities
between the two departments. Pending legislation on this
topic includes S. 2695, which would formalize USDA’s
Genevieve K. Croft, Analyst in Agricultural Policy
management and research responsibilities for NBAF,
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National Bio and Agro-Defense Facility: Purpose and Status
IF11492
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