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Fact sheet: Badgers and Bovine TB (bTB)
(updated 14 July 2010)
Bovine TB (bTB) is an
infectious and contagious disease of cattle caused by the
bacterium Mycobacterium bovis. Although the main reservoir
and natural host of M. bovis is cattle, humans and a wide
range of mammals, including badgers and deer, are susceptible to
the bacterium. In the 1930s, 40 per cent of cattle were infected
in the UK – and approximately 50,000 people a year caught
tuberculosis, contracted either through infected milk or close
contact with infected cows (57). The subsequent pasteurisation of
milk and compulsory slaughter of infected cattle greatly reduced
the incidence (1).
Although bTB is rarely
fatal in cattle, with signs of infection usually only appearing in
advanced cases, it does lead to reduced milk yields, making it a
particular concern for dairy farmers looking to maximise their
profits (2).
Former Department for
Environmental and Rural Affairs (Defra) junior minister Joan
Ruddock said in 2008 that 91 per cent of cattle herds in the UK
were free of the disease (30). According to the Government, the
number of cases is actually decreasing in England and Wales, with
around 36,000 cattle across Britain slaughtered because of the
disease in 2009, while around 40,000 were killed in 2008
(50). This compares to approximately 90,000 dairy cows culled
annually due to mastitis (infection of the udder), 31,000 due to
lameness and 125,000 due to infertility (4). That
figure is also dwarfed by the 2,595,000 cattle that were
slaughtered by the UK livestock industry in 2009 for their meat or
when their milk productivity dropped (51).
Bovine TB
and Badgers
There are less than
300,000 badgers in Britain. Although protected by laws to prevent
badger baiting, licences can be granted by the Government for
'disease control' and 'research' reasons. Currently (July 2010)
The Appeal Court found in favour of The Badger Trust and
overturned plans to allow the Welsh Assembly to kill badgers in a trial area in Wales.
The ruling highlighted the fact that a 'cull' could only expect a
maximum drop in the instances of the disease by a paltry 9 per
cent (clearly showing that the main cause lies elsewhere) (70).
However, it is unclear if that is the end of the matter and
badgers' future also remains
uncertain in England (see below).
Recent drops in the
number of cattle being slaughtered suggests that cattle specific
anti-bTB measures alone are working and 'culling' badgers should
be dropped from the political agenda altogether.
As of June 2009, there
were around 10 million cattle in the UK (38).
Cattle farmers have long blamed badgers
for the spread of bTB. In fact, research suggests there may
be more reason to think that badgers catch bTB from cattle,
possibly after feeding on larvae in cow pats left by infected
cows. However, since the
mid-1970s tens of thousands of badgers have been killed
in an attempt to control the disease.
Despite this, post-mortem examinations revealed that
more than 80 per cent of those badgers were disease-free and in
some infected areas, no badgers were infected (5). A Defra survey
from 2002 to 2004 found that six out of seven badgers killed on
roads in areas of high infection were also free of the disease
(6).
In 1998, the
Independent Scientific Group on bTB (ISG) was formed after a
report by Sir John Krebs (Oxford University) claimed there may be
a case for badger 'culling'. However, Krebs was clearly not sold
on the idea even then, as he said in his 1997 report that: "The
best prospect for control of TB in the British herd is to develop
a cattle vaccine" (48). The ISG's investigation included the
Randomised Badger Culling Trial (RBCT), costing £34 million and
taking 12,000 badgers' lives (24). The report was published in
2007 (25) and ISG chairman, Professor John Bourne (Animal Health,
University of Bristol), reported that: "badger culling cannot
meaningfully contribute to the control of bTB in Britain".
The report also found
that 'culling' would increase the spread of the disease as
surviving badgers would wander outside their normal range after
their social group had been destroyed. TB infections in cattle
increased by 27 per cent after the 'cull' in areas where badgers
were the main suspects (27). This finding has continued to be
supported by the research done into badger behaviour at the
Government's badger research centre near Stonehouse,
Gloucestershire, where tracking and testing of badgers has
continued since the mid-1970s. The head researcher there is
adamant culling badgers will make bTB worse and that farmers need
to start backing the vaccination programme (67).
The Government's
Agriculture Committee believe that cattle movements and husbandry
play a much greater role in the spread of the disease than
infected wildlife (7, 8). The ISG also identified herd size and
cattle movements as having "particular relevance" and that
cattle-to-cattle transmission was the "main cause of disease
spread to new areas" (25). Average herd size has more than doubled
to 107 since bTB was at its lowest in the 1970s and the ISG
recognised that infections increase with larger herds (25).
The same year,
Bourne's categorical findings were challenged by the Government's
Chief Scientific Advisor, Sir David King, who rushed out his own
report within months, urging a 'cull' (41). The King report was
smaller, had fewer experts – and only met for a single day. Bourne
and Nature, a leading science journal, heavily criticised
the King report as "hastily written", "superficial", riddled with
"small mistakes" and appeared to have been "written to please the
farmers" (26). The result is that it gave the Government an excuse
to instigate a 'cull' should they want to appease farmers who
still clamoured for one.
Lords Krebs, who
founded the original badger 'cull' trials, was also highly
critical of the King report. He has stated that simple measures
such as improved cattle testing and keeping badgers and cattle
apart would cost less than a 'cull' are "as likely to work". He
also expressed concern that a badger 'cull' across the UK could
kill at least 170,000 animals – more than half the UK population
(41).
Any badger 'cull'
would be an animal welfare disaster. Snaring and gassing are
incredibly cruel but the main method is likely to be live cage
traps and night shooting. While traps cause huge distress (the
method Wales is using), with shooting, many badgers would simply
be injured. As the ISG acknowledges, both methods will leave cubs
to starve to death in the setts (25).
In July 2008,
Environment Secretary Hilary Benn announced that licences would
not be issued for killing badgers in England, as he believed that
'culling' could make the situation worse. However, in
Wales, the
intention to kill badgers was announced in April 2008.
Wales' chief vet,
Dr Christianne Glossop, admitted that badgers could be wiped out
in certain parts of Wales and a wider 'cull' could last into the
2030s (36). The move was denounced by Viva! and many other groups,
including The National Trust, Save the Badger and The Badger
Trust, as a blatant move to appease farmers. Partly because of
campaigning by groups such as Viva! the decision where to hold any
trial 'cull' was delayed until early 2009. However, the Welsh
Assembly announced that a trial 'cull' was to take place in north
Pembrokeshire and neighbouring parts of Ceredigion and
Carmarthenshire, with the killing due to start in early summer
2010. The Badger Trust tried to get a Judicial Review to look at
the legality of the 'cull', but that was refused in April 2010.
However, in July 2010, the Appeal Court ruled to squash the Welsh
Assembly's plans to 'cull' badgers in Wales. It remains to be seen
if the Welsh Assembly will amend plans and reintroduce them.
The Welsh Assembly
have repeatedly ignored new evidence showing the futility of
badger 'culling', including a survey by Imperial College London
and the Zoological Society of London which found that a 'cull'
would not work and that managing badger populations to stop them
spreading TB to cattle actually costs more than the impact of the
disease itself (43).
Assembly officials in
Wales said the intention was to reduce the badger population
"as far as we can" during 'culls' over the next five years (42).
The proposals also included extra stringent cattle controls.
However, it was clear that there would be no way of determining the success, or otherwise, of either approach. This
means that a reduction in bTB could have been attributed to falling
badger numbers, whereas stricter cattle control methods would,
undoubtedly, be the real reason for the reduction. The fear was
that this scattershot approach would have been used to skew figures and
push for a wider 'cull' across the rest of Wales. This was backed
up in February 2010, when ex-senior scientific adviser to the UK
government, Dr Chris Cheeseman, called the 'cull' in Wales
"perverse", and said the decision "flies in the face of the
science" (44).
In England, the threat
of a badger 'cull' returned with the election of a
Conservative/Liberal Democrat coalition in May 2010. Both parties
backed 'culling' badgers as part of their manifestos, despite the
Liberal Democrat leader, Nick Clegg, previously opposing a 'cull'.
He said in 2008, "The bias and evidence of that ten-year review
was badger culls simply move the problem to other areas". He
added, "Secondly, Defra just doesn't have the money to do it. We
can't move forward in the absence of clearer evidence and in the
absence of better resources for Defra." (45) Clegg has not
explained his U-turn and has not explained how this would work in
light of the recently announced cuts at Defra.
In May 2010, confusion
seemed to reign within the coalition, as the new Defra secretary,
Caroline Spelman, ruled out an immediate 'cull', saying that she
needed time to examine the science and wanted to observe the
results of the Welsh trial – even though that is due to last for
five years. The next day, Defra farm minister, Jim Paice,
announced that a 'cull' would take place as soon as TB hot-spots
had been identified and revealed that the Conservatives have spent
the last year of opposition planning for this eventuality (47).
This was announced at the Devon County Show and speculation has
arisen that Devon and Cornwall (which are both bordered by sea)
could form the basis for a 'cull' area akin to that in Wales.
There have also been fears that the English government would
sidestep getting their owns hands bloody by issuing licences to
farmers to kill badgers. This decision would be disastrous, and
would encourage the spread of the disease by displacing badgers.
Late in May 2010,
updated data from Imperial College London appeared to show that
'culling' could reduce bTB incidences in cattle. What was
under-reported was that this was an apparent anomaly and the
scientists behind this research still held firm to the findings of
the ISG report that 'culling' of badgers could not meaningfully
reduce the disease in badgers (68).
It remains to be seen
which way the new coalition will turn, but Caroline Spelman seemed
to let slip that the coalition was determined to kill badgers in
England during an interview on GM crops with The Guardian
in June 2010 (69). However, the defeat of the Welsh Assembly at
the Appeal Courts in July 2010 suggests that she may need to think
again.
Moves to 'cull'
badgers also ignores Defra statistics that show that TB in cattle
is declining across Britain without the death of a single badger.
Overall, there were 438 fewer Total New Herd TB incidents in 2009
compared to 2008 - with cases falling in both Wales and the South
West of England (65).
Already an estimated
50,000 badgers are killed on Britain's roads each year – around
one sixth of the population (64). However, with a 'cull' looming
there is also concern that farmers may be taking matters into
their own hands. Anecdotal evidence suggests that there has been
an increase in badgers being illegally killed and dumped by the
roadside to look like the victims of traffic accidents.
Disingenuous concern?
There has also been an increase in calls to implement a 'cull' to
'end the suffering of badgers' infected with TB, despite the fact
badgers with TB can live a number of years without displaying
clinical symptoms. The Badger Trust said that there was no
scientific proof that TB caused unbearable suffering in badgers
and accused pro-'cull' groups of trying to influence the public
into thinking that a 'cull' would be in the badgers' best interest
(49).
Damaging
Biodiversity
Little thought has seemingly been given to the removal of one
species from a delicate ecosystem. Dr Dan Forman from the
Conservation Ecology Research Team of Swansea University, in a
letter to Elin Jones in May 2010, said: "It has been well
established over several decades of research that habitats are
incredibly fragile and that removal of top predators can cause a
huge shift in the ecology and stability of ecosystems that can
directly reduce species diversity." (66) In other words, we mess
with wildlife at out peril. A policy to reduce biodiversity is
especially at odds with global efforts to preserve it.
Non-violent approaches
The rush to slaughter
ignores new, non-lethal solutions. An injectable badger vaccine
was scheduled to be trialled in England throughout 2010, but the
fate of the trial is unknown now there has been a change of
government and policy at Westminster. An oral vaccine is expected
by 2014 while a cattle vaccine is expected in 2015 (30). The irony
being that the cattle vaccine will be available at the end of the
five year trial 'cull', rendering the slaughter of Welsh wildlife
even more meaningless.
A 2009 Defra report – Options for vaccinating cattle against
bovine tuberculosis – admitted that a cattle vaccine would not
be a cure-all, but did say that it: "…has potential benefits to
reduce prevalence, incidence and spread of bTB in the cattle
population" (63). This would be a sensible approach, as bTB is a
cattle disease and cattle remain by far and away the largest
vector (or carrier), for the disease. Surprisingly, there appears
to be little support within the farming lobby for a cattle vaccine
– probably because it may inconvenience them financially. As the
situation stands, the EU would not accept milk from cattle that
have been vaccinated. Therefore the report acknowledges that EU
legislation would need to be changed. There appears to have been
no momentum from either government nor the farming lobby to make
this happen, even though it is undeniably the best long-term
method to move towards eradication of bTB within cattle.
Further limits on
cattle movements, tighter on-farm biosecurity and improved testing
would also curb the spread of bTB.
Approaches abroad
The insistence on
targeting wildlife is based on other eradication programmes
overseas. This includes New Zealand, where the non-native
Australian possum has been blamed for the spread of bTB – although
only two per cent of New Zealand possums have the disease (52).
New Zealand controversially uses poisons including the
indiscriminate 1080 (sodium fluoroacetate), which is fatal to most
animal life and is dropped from helicopters into areas of high TB
prevalence. This practice has been widely criticised by those
living in these areas, as well as the tourism sector which feels
that it is being ignored in favour of the dairy and beef
industries (53). Once an area has been decimated of possums, the
area is put into 'maintenance mode' – meaning that less than 30
per cent of the numbers of the original population remain. Even
then, the government there has admitted that very few areas are
now bTB-free (54). It is dangerous to model any eradication scheme
on what has been done in other countries. It is stated that cattle
have a tendency to lick sick possums (55), but there is no
evidence that such contact happens between badger and cattle in
the UK. The scorched earth policy in New Zealand, if repeated
here, would mean that badgers would be wiped out in large areas –
and this imbalance would have to be maintained in the long term.
In essence, the UK has a choice between removing indigenous wild
animals almost completely, or tackling the livestock industry
which is at the heart of the problem. The final irony is that New
Zealand is moving away from 'culling' and moving towards
vaccination of wildlife – just at a time where the UK is moving in
the opposite direction.
Until recently,
Northern Ireland had the worst bTB incidence anywhere in Europe
but has virtually halved the incidence of the disease since 2002
through cattle controls without killing badgers. It now has fewer
cases per 1,000 cattle than either Wales or England (28). However,
there are those still calling for a 'cull' in Northern Ireland.
This despite the ‘Four Areas Trial’, which ran from 1997 to 2002,
concluding in 2005 that "... the widespread removal of badgers was
not considered a viable strategy for long-term control of bTB".
A 2009 report by
Northern Ireland Audit Office also made the clear the suspicion
that there might be widespread fraud for claims for bTB
compensation (62). With compensation at sometimes 100 per cent the
market value, it raises the question whether cattle herds might
purposefully be put in contact with bTB for considerable financial
returns. In fact the report stated that, "... the inherent risk of
fraudulent claims is clearly very high". This raises the question
of whether fraud takes place elsewhere, including the UK. In other
words, it raises a potential concern that cattle may be
deliberately infected for compensation.
The Republic of
Ireland has virtually eliminated badgers in most cattle farming
areas yet the number of herds infected is still twice as high as
in Britain (28). The
Green Party, which has recently entered coalition government, has
pledged to end the 'culling' of badgers in the Republic, but no
date has yet been set.
Cattle Movements and
testing
In 1990, there were
173 recorded outbreaks of bTB in cattle herds but by
2007, that had increased to 2,229 with 27,598 individual cattle
slaughtered (3). This followed the rapid re-stocking of
farms after the 2001 foot and mouth disease (FMD) epidemic. Under
EU regulations cattle must be routinely
tested for bTB, with infected animals slaughtered and movement
restrictions placed on the farms. During the 2001 FMD outbreak,
most TB testing was suspended and in breach of EU regulations,
Defra failed to impose movement restrictions on those herds not
tested (10).
Despite several
highly-contagious diseases among UK cattle, over 13 million cattle
movements take place every year as farmers buy and sell stock.
Closely mirroring the recent rise in bTB cases is the rise in
cattle movements, with 619,107 more cattle moved in 2006 than 2005
(40). Cattle movements have quadrupled between 1999 (3,373,646)
and 2008 (13,445,566 – latest complete
figures) and have involved around 137 million animals (39).
The ISG
report also made clear that present methods of control –
surveillance, testing and slaughter – are not working. The
evidence shows that tests are highly inaccurate, missing around
one third of all infected animals, leaving them to re-infect other
cattle (35). The report went on to say that better farming
practices and not 'culling' were likely to reverse the increase in
bTB (25). Even former Defra Minister, Ben Bradshaw, highlighted
the near irrelevance of badger slaughter by admitting that 80 per
cent of bTB outbreaks are caused by cattle (11).
Movement of cattle in the periods between routine herd bTB tests
has long been recognised as a cause of new infections, even in
relatively disease-free areas. Unbelievably, animals taken to
agricultural shows do not have to be pre-tested. Mixing animals
from many different areas has the potential to spread TB easily
among them and then back to their farms. In 2009, the final report
on bTB by the Bovine TB Advisory Report highlighted this as a risk
(56).
The Cost
The farming lobby has
long decried the financial costs of the bTB epidemic, yet they
are
compensated for every animal that is slaughtered – up to £1,924
for dairy cows and up to £3,755 for beef cattle (32). There
is also growing evidence that a 'cull' of badgers – quite apart
from the welfare implications and futility of its aims – would be
difficult to conduct and could cost more than triple the supposed
savings to the industry. In other words, it would be a colossal
waste of money.
In 2007, Defra
research concluded that "... no method of badger culling gave a
certainty, or even a high probability, of a net economic benefit
over 15 years" – this despite simulating 'culling' in areas up to
400km2.
As already mentioned,
the 2010 survey by Imperial College London and the Zoological
Society of London found managing badger populations to stop them
spreading TB to cattle cost more than the impact of the disease
(43). Professor Christl Donnelly, senior author of the study from
the MRC Centre for Outbreak Analysis and Modelling at Imperial
College London, said any supposed benefits of 'culling' vanished
after fours years – and the cost of 'culling' badgers was up to
three times as much as the potential savings to the industry (59).
She went on to say: "I would suggest people seriously consider
badger vaccination over a long period". Lord Krebs, who initiated
the original badger trials, also expressed similar opinions on the
cost-effectiveness – or lack of – of badger 'culling' (41).
The Welsh
badger 'cull' programme would have been hugely expensive and was estimated to
cost at least £10 million. With a projected 'cull' number of 1,500
over five years, translating to costing a staggering £6,666
per badger.
In 2010, Paul and
David Torgerson argued in the journal Trends in Microbiology
that bTB is a negligible health risk to humans in the UK,
providing that milk is pasteurised – the process which cut
infection in humans drastically since the height of infection in
the 1930s (58). They said that cow to human infection was
extremely rare. Therefore, they said that the cost of a TB
eradication programme in the UK was of no benefit to society and
was a huge waste of money. Indeed, they even argued that
eradication showed little evidence of a positive cost benefit to
the livestock industry. They also pointed out that few studies
have been undertaken on the direct costs of bTB to animal
production.
Cattle Husbandry
The
demand for badgers to be killed has diverted attention away from
the many serious health problems faced by intensively-reared
cattle – pneumonia, E. coli, coccidiosis (fatal
diarrhoea), salmonella and mastitis. They are all increasing and
are attributed to 'poor nutrition', 'poor management' and 'poor
welfare' by the Government's 1997 Animal Health Report (12).
Similar considerations must apply to the spread of bTB.
Disease does not
solely result from contact with a pathogen but also from an
animal's inability to combat that pathogen. Stress reduces the
body's ability to fight disease and intensive farming produces
animals who are physically and mentally stressed – none more so
than the modern dairy cow (65).
High
stocking densities increase stress, as do high milk yields and
both have increased dramatically over the last 30 years. Milk
yield has gone up from an average of 3,700 litres annually to
8-10,000 in the modern, high-yield Holstein (16). Forced to give
birth to a calf every year in order to keep this enormous milk
supply going,
dairy cows spend seven months out of every year simultaneously
pregnant and producing large quantities of milk.
This
crushing double burden results in a quarter of the national dairy
herd being killed every year – physically exhausted at only four
to five years old when they could naturally live to be at least 20
(17). On top of this immense physical stress, dairy cows also
suffer the repeated emotional trauma of having their newborn
calves torn away from them within 48 hours of birth. An unbearable
anguish that would take its toll on any mother.
Although dairy cows
graze outdoors from April to October, for the remaining six months
of the year they are confined in indoor cubicles (18). The
overcrowded, unsanitary conditions and high humidity lead to high
levels of lameness and mastitis. It is also an ideal environment
for transmission of bTB, the Irish bTB study confirms this (15).
Cows who once grazed
mainly on grass are now also fed concentrated, high-protein feeds
such as soya and maize to increase their milk yields, typically
forming 30-50 per cent of their diet. This seems to affect their
health as grain-fed cattle can have 100 times more E.
coli 0157:H7 in their gut, for example (19). This, combined
with a fall in the nutritional quality of animal feed, appears to
have reduced their ability to fight disease. The lack of genetic
diversity in modern farmed animals also plays a part (12). Also
grazing has its problems as the common practice of slurry
spreading can represent a potential source of bTB (15, 22).
The Vegan Solution
If, like us, you are outraged by this scapegoating of badgers as a
cover for cruel, incompetent and unsustainable farming practises,
there is one blindingly obvious solution – reject milk and other
dairy products and switch to a vegan diet.
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58. Torgeson,
Paul and David,
Trends in Microbiology, Volume 18, Issue 2, February 2010
59. Benefits of
badger culling not long lasting for reducing cattle TB, says
study, Imperial College London, Media release, 10 February 2010
60. Wilkinson,
Shirley and McFarlane,
Cost-Benefit Analysis of Badger and Cattle Management, Report
of Phase II: June 2005 to May 2007
61.
Culling badgers ‘not a cost-effective way to stop TB’, Farmers
Guardian, 10 February 2010
62.
The Control of Bovine Tuberculosis in Northern Ireland,
Northern Ireland Audit Office, 18 March 2009
63.
Options for vaccinating cattle against bovine tuberculosis,
Defra, 2009
64.
50,000 badgers are killed on Britain's roads every year, The
Independent, 3 September 2006
65.
Bovine TB: Detailed year-end TB statistics (by region), Defra
66. Letter to
Elin Jones from Dr Dan Forman CBiol.MIBiol.EurProBiol,
Conservation Ecology Research Team Department of Pure and Applied
Ecology, Institute of Environmental Sustainability, Swansea
University. 31 May 2010
67.
TB: The science behind the decisions, Farmers Guardian, 4
September 2009
68.
Conversation between Brian May and R. Woodroffe and K. Donnell
from Imperial College London, June 2010
69.
Environment secretary Caroline Spelman back GM crops, The
Guardian, 4 June 2010
70.
Cull: New calls for badger vaccination, Tivy-side Advertiser,
14 July 2010
Further reading:
The Great Badger and Bovine
TB Debate. |