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Analysis of Pan-European attitudes to


the eradication and control of bovine
viral diarrhoea
C. Heffernan, F. Misturelli, L. Nielsen, G. J. Gunn, J. Yu

At present, national-level policies concerning the In spite of this evidence, BVD has been accorded different levels
eradication and control of bovine viral diarrhoea of importance by the animal health policies of different countries in
Europe, and as a result their strategies for its control and eradication
(BVD) differ widely across Europe. Some Scandinavian differ widely. It has been suggested that part of the problem is that
countries have enacted strong regulatory frameworks because BVD has no ‘known zoonotic implications’, there is less pres-
to eradicate the disease, whereas other countries have sure to control it (Gunn and others 2005). However, within the last
20 years, Denmark, Finland, Norway and Sweden have made steady
few formal policies. To examine these differences, progress towards the complete eradication of the disease, and Austria
the attitudes of stakeholders and policy makers in 17 has introduced partially compulsory control strategies. These eradica-
European countries were investigated. A web-based tion programmes represented a radical departure from conventional
thinking (Moennig and others 2005b).
questionnaire was sent to policy makers, government Historically, the control of the disease has been based on either
and private sector veterinarians, and representatives test and slaughter policies or vaccination (Deregt 2005). Hence, for
of farmers’ organisations. In total, 131 individuals the first time, the control programmes in Scandinavia were ‘based on
the identification of herds with active BVDV infections, tracing and
responded to the questionnaire and their responses removal of persistently infected animals and movement restrictions, as
were analysed by applying a method used in well as other zoosanitary measures’ (Moennig and others 2005a). In this
sociolinguistics: frame analysis. The results showed way, testing and culling was introduced and vaccination was banned
(Bitsch and Rønshalt 1995, Lindberg and Alenius 1999). According
that the different attitudes of countries that applied to Lindberg (2002), in Sweden, this approach had decreased the preva-
compulsory or voluntary frameworks were associated lence of BVD from over 50 per cent in 1993 to less than 3 per cent in
with different views about the attribution or blame 2002. Nevertheless, the majority of countries in Europe use voluntary
regulation and rely on controlling the disease by vaccination (Mars and
for BVD and the roles ascribed to farmers and other van Maanen 2005, Moennig and others 2005a, Lindberg and others
stakeholders in its eradication and control. 2006a).
The question of who should pay for the control and eradication of the
disease is equally contentious. Countries such as Sweden have moved
BOVINE viral diarrhoea virus (BVDV) is widespread in Europe, causing away from schemes paid for by farmers towards subsidised national eradi-
at best minor disease, and at worst major economic losses to the cattle cation programmes (Hult and Lindberg 2005), but in most countries the
industry (Bitsch and others 2000, Mars and van Maanen 2005, Moennig costs are borne by farmers (Mars and van Maanen 2005).
and others 2005b). Its prevalence within and between countries varies It is clear that these wide variations in priorities and programmes
widely, but according to Houe (1999) ‘losses at the population level for the control or eradication of BVD will be accompanied by equally
have been estimated in the range of US$ 10 ± 40 million per million wide variations in the perceptions and attitudes of stakeholders, but
calvings’, and at the farm level, Gunn and others (2004) estimated little attention has been paid to them (Lindberg and others 2006a). As
annual losses among UK beef farmers at £37 per animal. These figures Hult and Lindberg (2005) observed, ‘The ability of a scheme to reach
indicate that the annual losses due to BVD are significant and likely to full coverage will be dependent on the backup from authorities and the
be a major inhibitor to the profitability of livestock farming. farmers’ own organisations (voluntary versus compulsory, subsidies, etc),
the ability to spread understanding of what will be gained by the scheme,
the farmers’ knowledge about the disease…’
The authors therefore suggest that key factors in the success of any
programme include the willingness and ability of stakeholders to coop-
Veterinary Record (2009) 164, 163-167 erate, and it is clear that fostering the cooperation and willingness of
C. Heffernan, DVM, PhD, MRCVS, G. J. Gunn, BVMS, MRCVS, stakeholders will depend on a better understanding of their attitudes
F. Misturelli, MA, PhD, SAC Epidemiology Research Unit, towards the disease (Lindberg and others 2006a).
L. Nielsen, MA, PhD, Research and Development Division, This paper examines the differences in the attitudes of stakeholders
J. Yu, MSc, King’s Buildings, West Mains Road, towards the control and eradication of BVD in 17 European coun-
University of Reading, Livestock Edinburgh EH9 3JG
Development Group, School of
tries. Its aim is to determine whether these differences contribute to
Agriculture, Policy and Development, E-mail for correspondence: the decision to apply compulsory or voluntary control strategies. To
Earley Gate, PO Box 237, Reading c.l.heffernan@reading.ac.uk reveal the stakeholders’ explicit and implicit attitudes, a method used
RG6 6AT in sociolinguistics/discourse analysis was applied: frame analysis. Frame

February 7, 2009 | the VETERINARY RECORD


PAPERS

analysis is often used in the fields of media studies, political discourse


Compulsory Voluntary Federal or regional
and policy making (Tannen 1993, Triandafyllidou and Fotiou 1998, control: control: guidelines:
Verloo 2004, Yamaguchi and Harris 2004) to identify the underlying
attitudes and values contained within texts or utterances. A ‘frame’ is National level: National level: Germany (5)
Austria (4) Netherlands (10) France (2)
defined as a basic cognitive structure that informs the manner in which Denmark (12)
a person views their own reality (Tannen 1993). ‘Frames’ are the lin- Finland (10) Regional level: Total 7
guistic instruments by which one infers ‘what is going on’ (Oliver and Norway (2) Belgium (3)
Sweden (19) Spain (7)
Johnston 2000). By identifying the way in which a specific topic is
presented, underlying ideas may be revealed. Frame analysis was there- Regional level: Association level:
fore considered to be a useful method for determining the attitudes Italy (5) UK (14)
Greece (8)
of stakeholders towards BVD and their views on cooperation towards Total 52
controlling or eradicating the disease within their own country and Farm level:
between countries. Ireland (5)
Portugal (3)
Slovakia (2)
Materials and methods Switzerland (3)
Data collection
A web-based questionnaire was distributed to government and private- Total 55
sector veterinarians, representatives of farmers’ organisations, and policy FIG 1: Numbers of respondents to the questionnaire from the
makers in 17 European countries. The initial sample was derived from countries with compulsory or voluntary control schemes or Federal
members of the EU Thematic Network on BVD Control, by asking a key or regional guidelines
informant in each country to provide a list of relevant stakeholders. The
questionnaire was distributed to 534 individuals between September and
December 2005, and 131 individuals responded. They consisted of 41 words that either explicitly or implicitly indicated a specific world view
researchers, 35 government vets or policy makers, 27 farmers or farm- (Tannen 1993). A grounded theory approach was used, which enabled
ers’ organisations, and 28 private-sector veterinarians. They were asked the codes and subsequent frames to emerge from the data, rather than
a series of open-ended and closed ranking questions. The open-ended applying pre-existing codes (Strauss and Corbin 1997). The coding and
questions were focused on descriptions of control strategies and the ben- analysis was undertaken using the software package Nudist (Version 6),
efits and constraints of eradication and control. The respondents were an analytical tool that supports the identification of relationships and
also asked to describe the barriers to implementing control strategies at linkages in qualitative data.
the national, regional and local levels, and to express their opinion about The analysis was undertaken in three steps. First, the main ‘frame’
the feasibility of Pan-European eradication and how long it might take. of the message was identified and the themes contained within it were
The ranking questions focused on the participants’ views on the main determined. Secondly, key words were identified within and between
factors encouraging eradication and the role of stakeholders. However, the responses and themes. Thirdly, relationships between the themes
within the ranking questions, the participants were able to offer their were identified and strings of words were deduced, as the following
own criteria if they thought the response options were unsuitable. In this examples illustrate. A Swedish veterinarian referred to ‘Farmers with
way, the questionnaire provided a qualitative and user-driven approach. infected herds that do not cooperate well, either because they do not
The questionnaire is available at www.livestockdevelopment.org/bvd/ want to or because they do not have good control of their animals’. In
questionnaire. this example, the frame is farmer responsibility; the theme is lack of
The web-based questionnaire was created using Active Services Page farmer cooperation; the key words are infected herds, do not cooperate
programming. Other basic web service technologies, such as HTML and and lack of control; and there is an inter-relationship between infected
JavaScript, were used to design the interface and to set up the inter- herds, cooperation and control. A Greek researcher commented: ‘It is
nal variables, and SQL language was used to manage the data units. not difficult to have a wide eradication programme among EC countries.
The resulting dataset consisted of qualitative and quantitative infor- The EC countries should initially standardise diagnostic techniques.’
mation in a non-dichotomous format. Because the respondents were The frame in this example is EC eradication positive; the theme is
from 17 countries, the heterogeneous nature of their responses required standardisation; the key words are not difficult, standardise and diag-
strict data-cleansing procedures to ensure the accuracy of the data to be nostic techniques; and there is an inter-relationship between eradica-
analysed. All the responses were rated for the consistency, quality and tion and standardise.
depth of the material provided, and after these procedures 114 of the
131 responses were suitable to be analysed. Results
In discourse analysis, the focus is on the use of language, and vari- The respondents were nearly evenly divided between those from coun-
ations in patterns may emerge from a limited number of study sub- tries with voluntary control and those from countries with compulsory
jects or texts. Potter and Wetherell (1987) noted that ‘…because a control. Only a few respondents were from countries with regional or
large number of linguistic patterns are likely to emerge from a few federal guidelines. Fig 1 shows the number of respondents from each
people, small samples or a few interviews are generally quite adequate country and its control strategy, as described by the respondents.
for investigating an interesting or practically important range of phe- When asked about the feasibility of implementing a Pan-European
nomena’. control strategy, the majority of the respondents were positive
As a result, sample size and related concepts of representativeness (Table 1). The respondents from countries with some form of compul-
are not considered to be critical in discourse analysis. Similarly, non- sory control were more positive about the prospects for Pan-European
responses are less of a problem because the analysis focuses strictly on control than those from countries with only voluntary measures.
the discourse produced. The response rates to the questions in the ques- However, only a minority of the respondents were prepared to pre-
tionnaire were variable. In some cases, the variability can be explained dict the period required for eradication, the average period suggested
by the inclusion of only those parts of the responses relevant to the being 14 years. Thus, although the majority of the respondents were
specific analysis. For example, when the constraints to Pan-European positive about the feasibility of eradicating BVD, the long period
control were analysed, only the respondents who included a constraint thought likely to be required illustrated the underlying reservations
or caveat as part of their original answer were included in the analysis. about its feasibility. Furthermore, many of the respondents qualified
their assessments significantly by suggesting constraints to the con-
Data analysis trol of the disease (Table 2). The constraint most commonly cited
To identify the frames contained within the responses, the text was was the inability to systematise and/or harmonise the approaches.
assessed according to the presence of recurrent key words or strings of The respondents from countries with compulsory control strategies

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PAPERS

facilities; 3) the farmers must be informed


TABLE 1: Respondents’ attitudes towards the Pan-European control of bovine viral diarrhoea and
the period they estimated would be required for its eradication about the disease… I could imagine that
in some countries there are other and more
National level Attitudes to control urgent priorities.’ A veterinarian from
control strategy Not possible Uncertain Possible/probable
Sweden said: ‘Possible EC-wide eradication?
Compulsory (n=44) 16·7% 10·4% 72·9% Sure, if we can achieve the same eradica-
Voluntary (n=53) 34·0% 13·2% 52·8% tion effectivity as in the Nordic countries,
Period of eradication (years) together with economic support from the
1-5 6-10 11-15 16-20 >20 authorities and an open-minded industry.
Compulsory (n=11) 9·0% 36·0% 36·0% 9·0% 9·0%
However, I suppose that there are a lot of
Voluntary (n=9) 11·0% 22·0% 33·0% 11·0% 22·0% stones to turn and negative attitudes/disbe-
lief to change…’.
At a European-wide level, many of
TABLE 2: Constraints on a Pan-European bovine viral diarrhoea control strategy expressed by the respondents thus viewed cooperation
respondents from countries with a compulsory control strategy and respondents from countries between countries as the largest barrier to
with a voluntary control strategy
success, and there were negative conceptions
Key constraints Compulsory control (n=20) Voluntary control (n=39) of the different levels of efficiency, motiva-
tion and institutional abilities of some of the
Traceability 25·0% 17·9%
Farmer/industry motivation 10·0% 10·2%
countries involved. The results show that
Inability to systematise/harmonise approaches 35·0% 41·0% any Pan-European control strategy must
Low-priority disease 5·0% 5·1% reach beyond legislation and deal with the
High training requirements 5·0% 5·1% concerns of stakeholders.
High costs 10·0% 7·7% However, losses at the farm level were
Strong legislation required 5·0% 10·2%
considered to be the primary incentive for
Vested interests 5·0% 0·0%
Herd density 0·0% 2·6% BVD to be eradicated by respondents from
countries with compulsory schemes and
countries with voluntary schemes (Table 3).
TABLE 3: Opinions expressed by the respondents about the principal incentives for the When asked to identify who they thought
eradication of bovine viral diarrhoea and the stakeholders most concerned was most concerned about BVD, the major-
ity of the respondents selected farmers, with
National level Incentives
control strategy Loss in farm incomes Animal welfare Loss of export markets Increased commodity prices governments largely viewed as having a
minority interest (Table 3). Although gov-
Compulsory (n=31) 71·0% 19·4% 6·5% 3·2% ernment cooperation was viewed as vital
Voluntary (n=48) 68·8% 12·5% 12·5% 6·3%
to any Pan-European control strategy, few
Stakeholder most concerned respondents considered that government
Farmers Farmers’ groups Veterinarians Governments interest had much influence on the process
Compulsory (n=38) 34·2% 28·9% 26·3% 10·5% (Table 4).
Voluntary (n=47) 46·8% 17·0% 29·8% 6·4% When the respondents were asked to rank
specific ‘general issues’ in the control and
eradication of BVD, the majority of those in
countries with compulsory schemes empha-
tended to emphasise the systematic nature of implementing effective sised the financial aspects of disease control, whereas the respondents
policies, whereas those from countries with voluntary schemes were from countries with voluntary schemes tended to emphasise the low
generally more worried about the different management strategies and motivation and negative attitudes towards the disease.
herd densities that might prevent the control strategies of different When the epidemiological constraints were further analysed, further
countries from being harmonised effectively. Underlying the doubts differences emerged between the two groups. In countries with com-
of many northern European respondents was the idea that the control pulsory schemes, large herd sizes were viewed as a greater constraint to
of BVD was dependent upon specific management and administrative control, whereas in countries with voluntary schemes a high density
structures that were not present in many southern European nations. of herds was considered a bigger problem. Research shows that BVD
For example, a researcher from Switzerland commented: ‘I think in can be controlled more rapidly in areas such as Denmark and south
most EC countries it will be achievable, but in some southern and east Sweden, which have a high density of herds, than in areas such
eastern European countries I could image that an eradication could as Finland and northern Sweden, which have a low density (Lindberg
be a bit more difficult to achieve… 1) the prevalence of the disease in and others 2006b). Given the attribution of blame for current condi-
the country should be known; 2) there must exist adequate laboratory tions on farmers by respondents from countries with voluntary control

TABLE 4: Opinions expressed by the respondents about the principal general and epidemiological constraints preventing the
eradication of bovine viral diarrhoea (BVD)

National level General constraints


control strategy BVD of no or low priority Lack of financial support Lack of national herd register

Compulsory (n=23) 30·4% 52·2% 17·4%


Voluntary (n=47) 55·3% 38·3% 6·4%

Epidemiological constraints
Lack of epidemiological Uncontrolled animal Presence of wildlife
knowledge movements High density of herds Large herds vectors

Compulsory (n=24) 33·3% 20·8% 12·5% 20·8% 12·5%


Voluntary (n=49) 28·6% 34·7% 20·4% 12·2% 4·1%

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35 Compulsory 70 Compulsory
Voluntary Voluntary
30 60

25 50
Percentage

Percentage
20 40

15 30

10 20

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FIG 2: Percentages of 23 respondents from countries with
compulsory schemes and 43 respondents from countries with FIG 3: Percentages of 17 respondents from countries with
voluntary schemes expressing opinions about the principal compulsory schemes and 23 respondents from countries with
constraints related to farmers preventing the eradication of bovine voluntary schemes expressing opinions about the principal
viral diarrhoea constraints related to veterinarians preventing the eradication of
bovine viral diarrhoea (BVD)

Compulsory
schemes, the above ranking of uncontrolled animal movement appears 35 Voluntary
consistent with overall views.
Again, there were large variations when the constraints at the farmer
30
level were analysed (Fig 2). The respondents from countries with vol-
untary schemes considered that the lack of awareness by farmers was
25
a major problem, in addition to the costs of control, and there was a
general perception that farmers are both unwilling and unable to pay for
Percentage

control strategies. Conversely, in the countries with compulsory control 20


schemes, the attitudes of farmers were not considered to be a major
problem. The majority of respondents from these countries tended to 15
focus on the effects of the disease on trade, and the potential for re-
infection from neighbouring farms with lower levels of biosecurity. 10
When the constraints were evaluated at the level of the veterinarian,
the respondents from countries with compulsory schemes were much
5
more critical of the role of vets than those from countries with voluntary
programmes (Fig 3).
0
When the industry-level constraints were evaluated (Fig 4), there
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fragmented cattle industry, suggesting a subsequent inability to make


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effective joint decisions, was considered a greater problem than in coun- FIG 4: Percentages of 26 respondents from countries with
tries with compulsory schemes, although even in these it was considered compulsory schemes and 41 respondents from countries with
that the industry could do better. voluntary schemes expressing opinions about the principal
constraints related to the cattle industry preventing the eradication
Discussion of bovine viral diarrhoea (BVD)
The analysis revealed the wide divergence of attitudes towards BVD
control at the national, regional and local level in the 17 countries. At
the national level, the analysis showed that the attribution of blame factors. Many of the lessons learned from the Scandinavian experi-
for endemic BVD infections in countries with voluntary schemes lay ence are likely to be useful on many levels (Brownlie 2005), but the
largely with the farmers, whereas in countries with compulsory control ‘frame’ for sharing them must be altered significantly to provide better
schemes, respondents tended to consider that epidemiological rather support for their acceptance by both northern and southern European
than social factors were of greater importance; however, they tended to countries. Respondents from non-Scandinavian countries among the
be the most suspicious of the commitment of the veterinary community northern European countries often argued that the Scandinavian
to the control of BVD. In both groups of countries, the cattle industry experience would not, or could not, be replicated, although it is clear
was often viewed with suspicion. that on strictly scientific grounds this is not the case. Much of this
With respect to EC-wide strategies, political and administrative issues doubt appears to stem from a belief that farmers cannot, or will not,
were of most concern for the respondents who, while ostensibly offer- comply with new regulations. Despite this, few of the respondents
ing a positive view, were often very negative about the ability of many from countries with voluntary schemes suggested training farmers to
countries to comply with any forthcoming legislation successfully. improve the control of the disease, calling into question the under-
The analysis therefore shows that any attempts at an EU-wide strat- lying attitudes and commitment of many of them towards its sustain-
egy for the control of BVD must take into account social and political able control.

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The results suggest that an EU-wide strategy for the eradication Management and Control. Eds J. Ridpath, S. M. Goyal. Blackwell Publishing. pp 3-34
of BVD must take into account all the factors affecting disease con- GUNN, G. J., SAATKAMP, H. W., HUMPHRY, R. W. & STOTT, A. W. (2005) Assessing
economic and social pressure for the control of bovine viral diarrhoea virus. Preventive
trol, including the political and social views of stakeholders. It may be Veterinary Medicine 72, 149-162
concluded that the ‘frame’ for understanding and sharing knowledge GUNN, G. J., STOTT, A. W. & HUMPHRY, R. W. (2004) Modelling and costing BVD
between northern and southern European countries is a primary inhibi- outbreaks in beef herds. Veterinary Journal 167, 143-149
tor of the means of eradication and must be modified before progress can HOUE, H. (1999) Epidemiological features and economical importance of bovine virus diar-
be made. Thus, frame analysis helped to analyse the underlying attitudes rhoea virus (BVDV) infections. Veterinary Microbiology 64, 89-107
supporting and inhibiting the cooperation of stakeholders. It is clear HULT, L. & LINDBERG, A. (2005) Experiences from BVDV control in Sweden. Preventive
Veterinary Medicine 72, 143-148
that the findings are likely to have implications for the control of other LINDBERG, A. (2002) Epidemiology and eradication of bovine viral diarrhoea virus infec-
endemic diseases at the Pan-European level. tions: studies on transmission and prenatal diagnosis of persistent infection. PhD thesis.
BVD is a relatively straightforward viral disease caused by a single Swedish University of Agricultural Sciences
infectious agent that does not survive well outside its host. The disease LINDBERG, A. L. & ALENIUS, S. (1999) Principles for eradication of bovine viral diar-
has a complicated pathogenesis but the technology to eradicate the virus rhoea virus (BVDV) infections in cattle populations. Veterinary Microbiology 64, 197-222
at farm, regional and national levels has been widely demonstrated to LINDBERG, A., BERRIATUA, E., FOURICHON, C., MINTIENS, K. & HOUE, H.
(2006a) Epidemiology and risks. In BVD Control. Position paper. Ed BVD Thematic
be both effective and cost effective. However, despite strong scientific Network on the control of Bovine Viral Diarrhoea Virus. pp 32-72. www.bvdv-control.
arguments in favour of eradicating the disease, the socioeconomic argu- org/bilder/Position%20paper%20BVDV%20Control%20EU%20TN.pdf
ments are not so well developed. The socioeconomic arguments will LINDBERG, A., BROWNLIE, J., GUNN, G. J., HOUE, H., MOENNIG, V., SAATKAMP,
be even more complicated for other endemic diseases whose agents are H. W., SANDVIK, T. & VALLE, P. S. (2006b) The control of bovine viral diarrhoea virus
either more ubiquitous in the environment, such as paratuberculosis, in Europe: today and in the future. Revue Scientifique et Technique 25, 961-979
or have a multifactorial aetiology, such as pneumonia or enteritis. It is MARS, M. H. & VAN MAANEN, C. (2005) Diagnostic assays applied in BVDV control
in the Netherlands. Preventive Veterinary Medicine 72, 43-48
likely that international agreements will be required for a wide range of MOENNIG, V., EICKEN, K., FLEBBE, U., FREY, H. R., GUMMER, B., HAAS, L.,
livestock diseases, and it is hoped that this study has identified some of GREISER-WILKE, I. & LIESS, B. (2005a) Implementation of two-step vaccination in
the subjects for further research that might help to control and eradicate the control of bovine viral diarrhoea (BVD). Preventive Veterinary Medicine 72, 109-114
them. MOENNIG, V., HOUE, H. & LINDBERG, A. (2005b) BVD control in Europe: current
status and perspectives. Animal Health Research Reviews 6, 63-74
Acknowledgement OLIVER, P. & JOHNSTON, H. (2000) What a good idea! Frames and ideologies in social
movement research. Mobilization 5, 37-54
The authors thank the EU Thematic Network on BVD Control for
POTTER, J. & WETHERELL, M. (1987) Discourse and Social Psychology: Beyond Attitudes
commissioning this work. and Behaviour. Sage Publications. p 161
STRAUSS, A. & CORBIN, J. (1997) Grounded Theory in Practice. Sage Publications.
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