CHOICES
A publication of AAEA
Brazil is one of the largest agricultural producers in the world and contributes substantially to international food markets. Agriculture and agriculture-related manufacturing and service sectors represent 23.8% of the Brazilian gross domestic product (GDP) and 26.8% of the employed population in 2023 (Cepea, 2024a, b). Globally, Brazil has the largest commercial cattle herd (234.4 million head), the fourth largest swine herd (44.4 million head), and the fourth largest chicken flock (1.5 billion head) (FAO, 2024). Figure 1 shows the livestock distribution in Brazil.
Brazil’s livestock sector contributes 6.7% to the country’s gross domestic product (GDP) (Cepea, 2024a). In 2023, Brazilian beef production reached 9 million tons, with exports valued at US$9.5 billion. Pork production totaled approximately 5.3 million tons, with exports worth US$2.6 billion, while poultry production amounted to 13.3 million tons, with exports valued at US$9 billion (IBGE, 2024; MDIC, 2024). Over the past two decades, Brazil has emerged as the leading global exporter of beef and poultry, capturing 28.7% and 25.4% of the world market, respectively, and the seventh largest exporter of pork, with a 7.1% share (United Nations, 2024).
Brazilian meat exports increased 27% in volume between 2019 and 2023, driven by enhanced productivity, competitiveness, and improved animal health (Pessôa and Simões, 2020; Giehl, 2022; MDIC, 2024). Private sector initiatives, compliance with international requirements, and a strengthened animal health defense system played pivotal roles. Rising consumer concerns about food safety, sustainability, and animal welfare have elevated the importance of animal health in international trade (Ferreira Filho et al., 2006; Silva Neto and Bacchi, 2014; Elias et al., 2018; Pessôa and Simões, 2020). Currently, Brazil’s animal health systems face challenges related to funding, infrastructure, and coordination among stakeholders.However, since the early 1990s, Brazil has implemented policies and national programs to control and eradicate a variety of animal diseases, aiming to boost product quality and establish a positive image in the international market.
In Brazil, agricultural defense is the protection of agriculture in general, including promotion of the quality and safety of inputs, animal disease and plant pest control, and product inspection. Agricultural defense integrates public and private systems, with the engagement of rural producers, agricultural input sector, and agro-industrial sector, playing a fundamental role in the diversification and growth of Brazilian agricultural exports. This joint effort also enhances safety in domestic input and product supply, protecting consumers from foodborne diseases listed in the Codex Alimentarius and benefiting the overall economy.
Agricultural defense in Brazil is divided into four pillars:
This article focuses on animal health defense specifically. The first record of animal health defense in Brazil dates to 1860, when guidelines were created aiming at the introduction and improvement of animal breeds and the establishment of veterinary schools. The process of structuring an official animal health system began after the first cases of foot-and-mouth disease (FMD) in Brazil in 1895, and the Ministry of Agriculture was founded in 1909. The Brazilian Animal Health Defense Service was officially created in 1934 and incorporated by the Ministry of Agriculture and Livestock in 1977, with the creation of the National Agricultural Defense Secretariat. At the same time, federal agriculture departments were institutionalized in each Brazilian state under the administration of the National Agricultural Defense Secretariat (Lyra, 2018). The current organization of the Agricultural Defense Secretariat (SDA) was defined by Decree 11.332 in 2023 and responds to the Ministry of Agriculture and Livestock (MAPA).
In 1998, the Unified System of Attention to Agricultural Health (SUASA) was established to coordinate disease surveillance and control for animals and plants. SUASA collaborates with the Unified Health System and involves official institutions, rural stakeholders, inspection departments, and private sector fund management entities. The creation of SUASA aimed to regionalize plant and animal health efforts to address specific regional needs (MAPA, 2023a).
The Brazilian public agricultural defense system is divided between the federal government, 27 federal unit governments (26 states plus the federal district), and municipal governments, comprising approximately 13,600 employees (Brazil, 2023a). Every municipality in Brazil has a state-official veterinarian responsible for animal health defense activities, usually under the scope of a secretariat of agriculture.
An important service to animal health defense in Brazil is provided by the six Federal Laboratories of Agricultural Defense, overseen by the General Coordination of the Agricultural Laboratories. The six laboratories are spread in each of the five Brazilian macro-regions and develop activities to support animal and plant health and food safety in Brazil, such as integrated biosecurity management, monitoring and diagnosis of animal diseases and plant pests, quality management of agricultural products, and accreditation and monitoring of private laboratories (MAPA, 2022a).
Brazilian national programs focused on controlling and eradicating animal diseases are based on the World Organization for Animal Health (WOAH) recommendations. The Ministry of Agriculture and Livestock has created nine animal health programs, in addition to actions related to the health of aquatic animals and surveillance of contaminants in bivalve mollusks:
The FMD program played a fundamental role in shaping the funding structure for national and state animal health services in Brazil. In the early 1990s, private funds emerged, particularly focused on FMD prevention and emergencies, aiming to complement public actions and expedite surveillance and eradication measures during disease outbreaks. Some emergency funds are privately financed, while others combine public and private resources. As of 2018, 13 states had established emergency funds, predominantly managed and financed privately (Miranda et al., 2019).
Brazilian agricultural defense heavily relies on constrained federal budgets and lacks diverse funding streams. Currently, animal health services do not charge fees, with few exceptions for export certification. Strategically implementing service fees could provide critical resources as budgets shrink (Brazil, 2023b). Programs like the Program to Modernize and Strengthen Agricultural Health and Food Safety Services (ProDefesa), a 5-year initiative launched in 2019 and supported by the Inter-American Development Bank, aim to maximize limited funds by modernizing management and technology within Brazilian agricultural defense agencies. Successful optimization could stretch budgets further and accelerate service turnaround for stakeholders.
The main challenge for Brazilian agricultural defense is meeting the growing demands of a thriving agriculturalsector amid tight and shrinking budgets (Brazil, 2023b). Federal funding has decreased in real terms over the past decade, being insufficient to cover the routine activities of SDA and maintain the infrastructure of SUASA nationwide. Supplemental state and municipal resources provide some relief, but critical animal health programs, such as the FMD program, rely heavily on federal transfers. While substantial private sector investment supports biosecurity for vertically integrated industries like poultry and pork, smaller livestock sectors, such as goats and sheep, face significant budget constraints and receive less frequent funding from the private sector. Overall, static or diminishing public funds fail to adequately address the expansion and modernization needs of Brazilian agriculture.
Without policy changes, strains on animal health funding may persist. Declining federal and state support necessitates increased biosafety financing from livestock industries. Government agencies may need to implement fees to sustain service levels. Diverse hybrid funding models are essential to meet growing demands on agricultural defense. Sustainable funding from both public and private sources is critical for the future of Brazilian agriculture. Service fees and private investments can help bridge resource gaps as federal budgets shrink.
The International Agricultural Surveillance System (Vigiagro) was created in 1998 and regulated by Decree 5741 in 2006 to coordinate the control of imports and exports, promote international agricultural surveillance, and prevent the introduction and dissemination of plant pests and animal diseases that may put the Brazilian agriculture at risk. Vigiagro operates 102 technical units spread over 17 customs offices, 24 airports, 28 international border posts, 33 ports, and 47 regional specialized units (Figure 2). Around 800 employees of the Ministry of Agriculture work at Vigiagro, conducting risk analysis and inspections to protect domestic agriculture. In addition, the Strategic Border Plan was created in 2011 and updated in 2016, renamed as the Integrated Border Protection Program. This program aims to strengthen the prevention, control, and inspection of cross-border activities, including illegal plant and animal movements into Brazil (Lyra, 2018).
Animal health defense at the international border is highly complex since Brazil borders ten countries (Uruguay, Argentina, Paraguay, Bolivia, Peru, Colombia, Venezuela, Guyana, Suriname, and French Guiana) over approximately 9,320 miles. Brazil has collaboration agreements with neighboring countries to reinforce animal disease surveillance. There has been a specific agreement for intensive FMD surveillance on the border of Brazil with Argentina, Paraguay, and Bolivia since2007 (Lyra, 2018). Nevertheless, controlling animalmovement across the international border is challenging, given that there is an extensive dry border (which facilitates animal movement) and several farms are divided between two countries, such as Brazil and Paraguay.
Brazil’s animal health infrastructure emerged from FMD control efforts initiated in the 1950s (Lyra and Silva, 2004). Early recognition of regional coordination needs led to the establishment of multilateral organizations, such as the Pan American Center for FMD in 1951 and the South American Commission for the Fight against FMD in 1972. The first Hemispheric Plan for the Eradication of FMD in South America was approved in 1987, with Brazil formalizing the National Program for the Prevention and Eradication of FMD (PNEFA) in 1992. PNEFA introduced policies based on the regionalization of animal health actions (with the creation of livestock circuits), involvement of the private sector, and massive, systematic vaccination against FMD (MAPA, 2018).
The last FMD outbreak in Brazil occurred in Mato Grosso do Sul in 2006. Santa Catarina was recognized as the first Brazilian FMD-free zone without vaccination by WOAH in 2007, with the entire country achieving FMD-free status with vaccination in 2018. Starting in 2019, Brazilian policies related to FMD control and surveillance were modified to achieve a different FMD status, following the PNEFA 2017–2026 Strategic Plan (MAPA, 2021, 2022b). The whole country suspended FMD vaccination between 2020 and 2024, gaining WOAH recognition as FMD-free country without vaccination in 2025 (Figure 3). . The successful FMD eradication and recent vaccination suspension demonstrate improvements and increased efficiency in the Brazilian animal health system over recent decades.
CSF has been eradicated in Brazil’s primary hog and pork-producing regions but persists in northern andnortheast areas (Figure 4). The Strategic Plan Brazil Free of CSF aims to maintain CSF-free status in currently free zones while eradicating the disease in others, with the ultimate goal of Brazil being certified as CSF-free. However, the challenge lies in the disease’s presence across 50% of Brazilian territory, particularly in regions with over 300,000 family-owned rural establishments practicing extensive hog farming, with different productive, social, economic, and environmental characteristics. This farming system makes animal health control substantially complex due to the movement of animals and mixed species management (MAPA, 2019).
Beyond CSF, Brazil’s hog and pork production faces heightened risks from diseases ASF. Although the last ASF outbreak in Brazil occurred in 1984, recent cases reported in the Dominican Republic and Haiti in 2021 prompted the Brazilian Ministry of Agriculture and Livestock to launch the Contingency Plan for African Swine Fever in September 2022 (MAPA, 2022c). Given Brazil’s significant role as a pork producer and supplier, prioritizing biosecurity measures is imperative to prevent ASF transmission across international borders through the movement of animals, people, vehicles, equipment, contaminated feed, and contaminated meat.
Despite the eradication of Newcastle disease in 2006, Brazilian poultry production remains vulnerable to AI. The first AI cases were detected in 2023, with 148 cases in wild birds and three cases on subsistence farms. Because these did not involve commercial operations, Brazil retained its AI-free status under WOAH regulations. Nonetheless, the detections raised concerns over zoonotic risks, and Japan temporarily suspended poultry and egg imports from three Brazilian states—Espírito Santo, Santa Catarina, and Mato Grosso do Sul (MAPA, 2023b).
On May 15, 2025, Brazil confirmed its first highly pathogenic avian influenza (HPAI) outbreak in a commercial breeder flock in Montenegro, Rio Grande do Sul. The outbreak was eliminated within 32 days through rapid veterinary intervention (Cardenas et al., 2025). Additional HPAI cases were reported in wild birds in the same state. The event triggered trade restrictions by more than 60 countries (UOL, 2025). Several markets—including China, the European Union, Canada, South Korea, Chile, the Philippines, and Malaysia—suspended all Brazilian poultry imports, while others—such as Russia, Saudi Arabia, the United Arab Emirates, Belarus, Armenia, and Japan—imposed regional bans limited to Rio Grande do Sul or affected zones. By the end of August, 19 bans remained in place (Reuters, 2025). On September 4, 2025, the European Union recognized Brazil as HPAI-free and reopened its market (MAPA, 2025), with expectations that other markets will follow.
Brazil’s continental territory poses challenges for animal health. Enforcing strict control over extensive international borders, particularly in monitoring animal movement, is complex. Wildlife poses an additional challenge, especially the uncontrolled populations of wild pigs and wild birds. The combination of expansive geography, diverse ecosystems, and the inherent adaptability of wild animals amplifies the difficulty in implementing effective measures for animal health and disease control in Brazil.
Since the early 2000s, Brazil’s animal health defense shifted from an exclusively government-funded and organized model to a system where control and inspection measures are implemented by the private sector. This approach places responsibility for food quality and safety on the private sector, with the public sector overseeing legislative compliance. The Federal Inspection Service has applied rigorous requirements to all animal-related facilities and industries since the early 2000s, aiming at consumer protection and facilitating exports to several countries due to improved quality of the Brazilian inspection service (Leal, 2020).
The Industrial and Sanitary Inspection of Animal Products regulation was established in 2017. Law 14,515, enacted in December 2022, mandates self-control programs in the Brazilian agricultural sector. This law requires agricultural producers and the food industry to develop, implement, and monitor self-control systems in production processes. The government remains with full supervision responsibilities, enhancing inspection and regulatory activities while reducing bureaucratic burdens for the productive sector. The final goal of the law is to create industry-generated information within the self-control program that will be shared with the Ministry of Agriculture and Livestock through an electronic platform, expediting bureaucratic processes, such as issuing animal health certificates (MAPA, 2022d). The proposal of self-control programs follows the growing trend toward the use of voluntary quality certification systems that several countries in the European Union have already implemented.
The self-control programs implemented by the private sector must contain six types of measures:
These measures are evaluated during inspection by the official animal health service, which includes facility maintenance, water supply, pest control, hygiene, measures to prevent cross-contamination, control of raw materials, ingredients and packaging, temperature control, laboratory analyses, fraud prevention, traceability, evidence to support official certification, animal welfare, and handling of high-risk materials.
The Agricultural Defense Surveillance Program for International Borders was also officially established in 2022 and aims to reduce the irregular transit of agricultural products, discourage unfair trade practices, protect agriculture, and reduce animal health and phytosanitary risks related to irregular international transit in the border areas (MAPA, 2022e).
The Brazilian Individual Identification System for Cattle and Buffalo (SISBOV) was created in 2002 by the Ministry of Agriculture and Livestock through Normative Instruction 01/2002 and modified in 2006 and 2018. SISBOV is the official system of individual identification of cattle and buffalo, with voluntary adherence by rural producers, unless specified in a normative act or required by official health controls. SISBOV serves as a health control tool for monitoring properties producing meat for the global market. Producers usually adopt the animal traceability system for access to the European Union market, which mandates control and risk management systems, such as animal identification, registration, and specific meat labeling for traceability (MAPA, 2023c).
Although SISBOV was created to meet requirements from the European Union, it has also modernized Brazilian livestock production, addressing consumer market demands for food safety. At the farm level, animal traceability serves as a herd management tool, offering individual control and enabling precise monitoring for increased farming efficiency. Traceability also facilitates the implementation of genetic improvement programs, promoting herd evolution. At the industry level, animal traceability enhances product standardization and the transmission of information about meat quality to the final consumer.
In 2023, the Ministry of Agriculture and Livestock initiated discussions on modernizing SISBOV, aiming to establish a robust individual animal traceability system using ear tags and electronic chips with unique numbers for each calf immediately after birth (MAPA, 2023d). These efforts culminated in the December 2024 launch of the National Plan for Individual Identification of Cattle and Buffalo (PNIB), which seeks to enhance animal traceability and monitor animal movements, strengthening transparency across the supply chain (MAPA, 2024).
Animal traceability is essential to promote faster and more effective responses in controlling and eradicating livestock infectious diseases, making it a key component of animal health and food safety policies. It is also vital for monitoring environmental issues related to the meat chain, such as deforestation. While countries such as Australia, Argentina, Uruguay, Chile, Canada, and members of the European Union already operate full traceability systems, Brazil is only now advancing toward large-scale implementation.
Biological threats and evolving requirements constantly challenge the Brazilian Animal Health Defense System. Preventing the entry of diseases such as African swine fever, controlling avian influenza, and keeping areas free of classical swine fever require both active and passive surveillance systems. The upcoming years pose challenges for the Brazilian Animal Health Defense System, emphasizing the need for investments in information technology, enhancements to the animal health structure and performance, and widespread education on animal health for producers and society. Ensuring Brazil’s position as a leading global meat supplier relies on a robust animal health defense, crucial for advancing food security amid a rapidly growing world population.
The maintenance and strengthening of the Brazilian Animal Health Defense System will depend on strategies to address fiscal constraints limiting budgets and government personnel hiring. It is fundamental to consolidate the government’s regulatory role while increasing the private sector’s responsibility for production processes, product quality, and food safety. Although the recently issued self-control regulation presents an opportunity to require an effective commitment from farmers and industry, its outcomes have not yet been evaluated in the literature.
In a country of continental dimensions such as Brazil, with substantial economic and social differences, the standardization of the animal health defense system and implementation of education programs for producers is essential to the success of animal health programs. An efficient platform with a consolidated database on livestock and animal health information, including detailed epidemiological data, production indicators, and information on production systems, costs, and prices, forms an essential part of an intelligence system supporting economic and epidemiological decisions.
Brazil’s animal health defense system (a collaboration between official veterinary service and the private sector) plays a vital role in ensuring robust animal health security through effective inspection, monitoring, and the implementation of an intelligence system based on risk assessment. This system monitors the quality of Brazilian products and enables rapid responses during animal health emergencies.
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