IMPLEMENTING A COLLABORATIVE PPP TO CONTROL FOOT AND MOUTH DISEASE - THE NAMIBIAN MEAT BOARD CASE (EXCERPT FROM WOAH’S HANDBOOK)

Background: The Livestock Industry and the Importance of the Meat Board of Namibia (MBN)

With a population of 2.4 million people, Namibia is an arid country situated in the southwest of Africa, known to be mostly suited for livestock production (estimation: 90%). It’s not surprising therefore that the Namibian livestock and meat sectors have, over the years, developed into a successful export-orientated industry vital to the country's economy, contributing significantly to its GDP.

Namibian Meat Board and Export Market Access - A crucial part of serving an export market was the presence of a meat board. The Meat Board of Namibia, established to promote and regulate the industry, is central to ensuring the health and marketability of Namibian livestock and livestock products. The board's responsibilities include overseeing the quality of meat products, maintaining export standards, and safeguarding animal health.

By virtue of its location, Namibia is rich in wildlife, including the African buffalo (Syncerus caffer), a known carrier of foot and mouth disease (FMD), making the livestock sector vulnerable to the spread and outbreak. The disease, which primarily affects cloven-hoofed animals such as cattle, goats, and pigs, is highly contagious and can lead to severe economic losses such as production loss and mortality. FMD outbreaks have the potential to devastate livestock populations, disrupt trade, and threaten food security.

The 2015 FMD outbreak and the Namibian Meat Board Response

In 2015, an outbreak of Foot and Mouth Disease (FMD) in the FMD protection zone of Namibia threatened to cripple the livestock industry. The disease was first detected in the northern regions, home to a significant proportion of the country’s cattle population. It is worth noting that as of 2015, Namibia had 3 FMD control zones which included the FMD-free zones, FMD-protection zones, and FMD-infected zone. According to the FMD situation report by the Food and Agriculture Organisation of the United Nations (FAO), there were 39 cases of FMD among cattle in the Zambezi region (located in the infected zone). The rapid spread of the disease posed a grave threat, not only to the animals but also to the broader agricultural economy including the areas already certified free from FMD. This would have made Namibia lose the recognition of the FMD-free zone of being free of FMD and so would have lost its ability to trade or export livestock and livestock by-products.

Given the importance of livestock to both the domestic economy and international trade, the threat posed by FMD was taken extremely seriously. An outbreak of this nature could lead to the closure of international markets to Namibian meat products, resulting in economic losses, job cuts, and increased poverty. It was within this context that the Meat Board of Namibia, in collaboration with the Veterinary Directorate, mobilized resources and expertise to combat the FMD outbreak.

In response to this crisis, the Meat Board of Namibia and the Veterinary Directorate implemented a robust and collaborative strategy (a collaborative PPP approach) leveraging their strengths. The Emergency Animal Health Fund that was activated by Meat Board of Namibia (MBN) at the onset of the outbreak was specifically designed to provide rapid financial resources in the event of animal health emergencies, ensuring that necessary interventions could be implemented without delay.

The Meat Board of Namibia provided personnel, developed an animal health consultation forum to establish the situation, identify needs and coordinate and mobilise assistance, and leverage the Emergency Animal Health Fund worth NAD 7 million while the Directorates of Veterinary Service (DVS) was able to mobilize financial resources of NAD 180 million from Namibia Cabinet, human resources and facilities. This response not only contained the outbreak but also set a precedent for managing similar crises in the future.

Critical Components of the Collaborative Public-Private Partnership Initiative implemented in Namibia.

The response to the FMD outbreak in 2015 was characterized by a strong collaborative effort between the public and private sectors. The Meat Board of Namibia, in concert with a key player in the private sector, worked closely with the public institution, the Veterinary Directorate, to deploy a coordinated response. This public-private partnership (PPP) was crucial in leveraging the strengths and resources of both sectors to effectively manage the crisis. The major lesson learned was the strong private sector involvement that was backed up by a strong Memorandum of Understanding (MoU) defining the role of each partner. We capture the critical components below, necessary for the successful implementation:

1. Mobilization of Resources: The Emergency Animal Health Fund, managed by the Meat Board, was swiftly activated to finance the immediate needs of the outbreak response. This included the procurement of vaccines, the establishment of quarantine zones, and the deployment of veterinary teams to affected areas. The fund ensured that there was no delay in implementing critical interventions, which was vital in containing the spread of the disease.

In addition to the financial resources provided by the Emergency Animal Health Fund, the Meat Board also facilitated the mobilization of technical expertise and logistical support from the private sector. This included the involvement of private veterinary practitioners, livestock producers, and other stakeholders who contributed their knowledge, manpower, and equipment to the response efforts. The country leveraged this funding before the DVS was able to secure funding from the cabinet.

2. Coordination and Communication: Effective communication and coordination were central to the success of the PPP initiative. The Meat Board and the Veterinary Directorate established a joint task force to oversee the outbreak response. This task force met regularly to assess the situation, make decisions on containment strategies, and coordinate the deployment of resources. The partnership ensured that both public and private stakeholders were aligned in their objectives and actions.

Public awareness campaigns were also a critical component of the response. This was done nationwide. They disseminate information to farmers, traders, and the general public about the outbreak, the symptoms of FMD, and the measures being taken to control it. This helped to reduce panic, promote compliance with containment measures, and prevent the spread of misinformation.

3. Implementation of Control Measures: The control measures implemented during the 2015 FMD outbreak were comprehensive and targeted. These included the establishment of quarantine zones in affected areas, the restriction of animal movements, and the mass vaccination of livestock. The Veterinary Directorate, supported by the Meat Board, led the implementation of these measures, ensuring that they were carried out efficiently and effectively.

The PPP initiative also facilitated the rapid deployment of resources to affected areas. Vaccines and other medical supplies were quickly distributed to frontline veterinary teams, while quarantine zones were enforced with the support of local law enforcement agencies. The Meat Board's involvement ensured that the private sector was actively engaged in these efforts, providing additional resources and support where needed.

4. Monitoring and Evaluation: Monitoring and evaluation were integral to the success of the outbreak response. The joint task force established by the Meat Board and the Veterinary Directorate regularly assessed the effectiveness of the control measures and adjusted as needed. This allowed for a dynamic response that could adapt to changing circumstances on the ground.

Data collection and analysis were also critical components of the monitoring process. The DVS, with support from the Meat Board, conducted regular surveillance of livestock populations in affected and at-risk areas. This helped to track the spread of the disease, identify new outbreaks, and assess the impact of the interventions.

5. Capacity Building and Knowledge Sharing: One of the key outcomes of the PPP initiative was the strengthening of Namibia's capacity to respond to future animal health emergencies. The 2015 FMD outbreak provided valuable lessons in terms of disease management, resource mobilization, and stakeholder collaboration. These lessons were documented and shared among the various stakeholders involved in the response.

The Meat Board and the Veterinary Directorate also organized training sessions and workshops for veterinarians, farmers, and other stakeholders. These sessions focused on best practices for disease prevention and control, the importance of early detection, and the role of public-private partnerships in managing animal health emergencies. The knowledge gained from the 2015 outbreak has since been integrated into Namibia's broader animal health strategy, ensuring that the country is better prepared for future challenges.

Challenges Faced During the Response

Despite the overall success of the PPP initiative, the response to the 2015 FMD outbreak was not without its challenges. One of the primary difficulties was the practical implications of implementing the complex web of regulations, standards, and over-regulations. These challenges manifested in several ways.

First, the stringent requirements often led to delays in decision-making, as officials and stakeholders navigated through the bureaucratic processes to ensure compliance. Additionally, the lack of clarity in some of the regulatory guidelines created confusion at the local level, hindering the swift and effective response that was crucial in managing the outbreak.

Furthermore, the over-regulation sometimes stifled innovation and adaptability, preventing local authorities and farmers from adopting more efficient or context-specific measures. This was compounded by the fact that the implementation often required significant resources and coordination, which were not always readily available, leading to inconsistencies in enforcement and execution across different regions.

These factors together highlighted the tension between the need for stringent control measures to contain the outbreak and the practical challenges of ensuring these measures were applied effectively on the ground.

Another challenge was the coordination of resources and efforts between the various stakeholders involved in the response. While the PPP initiative facilitated collaboration, there were instances where conflicting interests or priorities led to delays or inefficiencies. For example, some private sector stakeholders were initially reluctant to comply with movement restrictions, fearing economic losses. Overcoming these challenges required ongoing communication, negotiation, and compromise between the public and private sectors.

Outcome of the PPP initiative, and significance to the broader context

The collaborative efforts of the Meat Board of Namibia and the DVS in response to the 2015 FMD outbreak had several positive outcomes. Most importantly, the outbreak was successfully contained, preventing further spread of the disease and minimizing its impact on the livestock industry. The rapid deployment of resources, the effective implementation of control measures, and the strong coordination between public and private stakeholders were key factors in this success.

According to the WOAH PPP handbook, the PPP initiative also had broader implications for Namibia's animal health sector. It demonstrated the value of public-private collaboration in managing animal health emergencies and set a precedent for future partnerships. The lessons learned from the 2015 outbreak have informed the development of more robust emergency response plans, including the enhancement of the Emergency Animal Health Fund and the establishment of more formalized PPP frameworks.

In addition to improving Namibia's capacity to respond to animal health crises, the successful management of the 2015 FMD outbreak also had economic benefits. By containing the disease and preventing further spread, the PPP initiative helped to protect Namibia's livestock exports and maintain the country's reputation as a reliable supplier of high-quality meat products. This, in turn, supported the livelihoods of farmers and other stakeholders in the livestock value chain.

The 2015 FMD outbreak and the subsequent response by the Meat Board of Namibia and the Veterinary Directorate offer valuable insights into the role of public-private partnerships in managing animal health emergencies in countries or regions. The success of the PPP initiative in containing the outbreak and minimizing its impact highlights the importance of collaboration, resource mobilization, and effective communication between public and private stakeholders.

This experience also underscores the need for investment in animal health infrastructure, including surveillance systems, emergency response funds, and capacity-building initiatives. By strengthening these areas, countries can enhance their resilience to future animal health threats and protect their livestock industry from similar crises.

Moreover, the 2015 PPP initiative in Namibia serves as a model for other countries facing similar challenges. The principles of collaboration shared responsibility without bias, and proactive planning that underpinned the response can be applied in other contexts to improve the management of animal health emergencies and safeguard.

Jointly written by Gbenga Ariyo and Ogheneovo Ugbebor

Ugbebor Ogheneovo Ugbebor is a market systems development (MSD) expert with a Master’s degree in Social Business & Entrepreneurship and Operations & Supply Chain. She brings over 15 years of experience in national and multi-country development programs across various donors. As a Managing Partner at Ikore, Ovo leads numerous business interests, including consultancies focused on nature-based solutions, food systems, and economic growth.

Gbenga Ariyo (DVM, MSc) is an Epidemiologist and Market Development Expert with over 15 years of experience. He currently serves as a Technical Lead and Advisor at Ikore International Development. He is also a self-taught expert in Public-Private Partnerships, demonstrating a strong ability to bridge the gap between the public and private sectors to foster development and innovation