John F. Wiemers, DVM, MS
National Animal Identification Director
USDA, APHIS, VS

Background
The concept of "Universal ID" was first proposed in the 1980's and received endorsement of the United States Animal Health Association (USAHA) in the fall of 1990. Since that time, several changes were made in the numbering system. In 1997, the Council on Dairy Cattle Breeding, a dairy industry organization represented by the National Dairy Herd Improvement Association, the National Association of Animal Breeders, and the Purebred Dairy Cattle Association, sent a letter to all dairy industry organizations encouraging the use of the a system of universal animal identification which they termed, "The American Identification Number" system. The letter stated:

The dairy industry is on the verge of implementing a new numbering system for identifying dairy cattle in the United States. The new identification number called the "American ID Number" will begin being assigned to dairy cattle as of January 1, 1998.

The main objective of this new system is to unify the handful of numbering systems which exist within the US dairy industry. The most common of these numbering Systems are the state series eartags utilized by Dairy Herd improvement organizations and State Veterinarians and the serial numbers used by breed registry organizations. The new system will allow all organizations involved in dairy cattle identification to use the same animal numbering system. Animal numbers will remain unique and transferable across record systems in the USA and internationally. Dairy producers will no longer need to re-identify cattle to enter them into new databases.

The statement was just a little premature, however, since USDA had not yet recognized the numbering system for interstate movement or for use in disease control programs. Official approval and education of the entire livestock industry was needed.

In the fall of 1998, USAHA Committee on Livestock Identification offered a resolution calling for implementation of the American Identification Number. The resolution was passed by the general assembly. The background material presented with the resolution stated:

BACKGROUND INFORMATION

The effectiveness of the U.S. national numbering/identification system utilizing the USDA uniform series ear tags will rapidly decrease due to the phase out of the National Brucellosis Eradication Program. Therefore, the need for a new animal identification system that can take advantage of new technology is increasingly imperative and virtually demanded by:

1. Globalization of the livestock industry requiring harmonization of identification systems with other countries for purposes for genetic evaluation and animal, embryo, semen and product movement. Many countries have implemented such universal numbering systems.

2. International regionalization concepts may require tracking all movements of all animals within the United States to assure accuracy of premises of origin of each animal with date of movement captured in a recognized database.

3. Traceback capacity under HAACP and other food safety initiatives.

4. A clearly identified need for a unique numbering system such as the American Identification Number (AIN) that is universal worldwide. Such an identification system would store information in an electronic database with guarded segments available to regulatory officials, veterinarians, breed organizations and others with a need to know.

5. The USAHA endorsement of a universal identification numbering system in 1990. The livestock industry has implemented a phased-in approach for a unique identification system that involves more than 50 percent of the total dairy population.

RESOLUTION:

USAHA urges state and federal animal health officials, and veterinarians to cooperate with all segments of the livestock industry to implement the use of the American Identification Number (AIN) within a universal identification system which is in harmony with established systems in other countries and standardized for electronic communication and database management. All animal health and regulatory records system should be made to be compatible with the AIN to enhance record keeping for domestic and international movement of animals, semen, embryos and other products. Procedures should be implemented as soon as possible to revise the Code of Federal Regulations (CFR) and applicable state regulations to accommodate the AIN system.

In the spring of 1999, a similar resolution was passed by the Livestock Conservation Institute (LCI) committee on Animal Identification and Information Systems and by the general assembly.

As a result of these proposals, an Advanced Notice of Proposed Rule, Docket 99-090-1, was published in the Federal Register in the spring of 2000. At the first annual meeting of the National Institute for Animal Agriculture (NIAA, formerly LCI), a resolution was passed in support of the docket with the request that:

USDA, APHIS, VS work with animal agriculture industry and state governments to establish protocol for the administration of such numbers to provided an electronic record of numbers that each location was allocated.

In response to the comments that were received from the public, a modified protocol was presented to industry groups during the fall and winter of 2000/2001. Additional information was collected and a work plan for a proposed rule was initiated. The work plan is now under review by USDA.

USDA Rationale
The numbering system that is now used, known as the Uniform Eartagging System, is based on the needs of disease eradication programs. It is used for identification tags, vaccination tags, and reactor tags that support eradication efforts. As these programs are successfully completed, vaccination and testing of animals is being phased out. Because of this, the number of eartags applied is declining, and the level of livestock identification is decreasing. In a few short years, we will face a crisis in livestock identification unless some other system is put in place.

Since there will be few if any eradication programs in the future, numbering systems will need to be useful not only to animal health agencies, but to producers and others involved in the livestock industry. The Universal Eartagging System is a repeating numbering scheme in which the number series "rolls over" every 10 or so years much the same as an automobile odometer. Although the numbers are not entirely unique, they have been sufficiently unique for eradication program purposes. They have not, however, been much value to producers who require absolutely unique numbers for breed registration, genetic evaluation, production records, and general herd improvement. A system is needed that provides unique animal numbering that is recognized by all sectors of the livestock industry and by government animal health officials..

Today, animals are identified with many different methods to serve different purposes. As mentioned, the Uniform Eartagging System is used for State/Federal/Industry cooperative disease control programs. Additional separate systems are used for on-farm production purposes, animal data recording, genetic evaluation, and breed registration. Animals sent to slaughter are given an additional number to support slaughter surveillance for livestock diseases.

By the time an animal reaches a slaughter plant, many forms of identification may be on the animal. It is often not possible with rapid slaughter lines to collect all the man-made identification devices. Thus, we lose valuable information regarding the history of the animal. This hinders our ability to accurately and efficiently trace disease conditions to the source of the problem.

When different production or regulatory systems use different animal numbers, it is almost impossible to link the information. A new system is needed which will allow all organizations involved in livestock identification to use the same animal numbering system. In this way, animal numbers will remain unique and transferable across record systems in the USA and internationally. Livestock producers and animal health officials will no longer need to re-identify animals.

The AIN System has sufficient capacity to provide the entire livestock industry with unique numbers. Administration of the proposed system allows for numbers to be available to producers through many different sources. Producers will have a choice from whom they obtain numbers. In addition, records of animals that are identified will be available to government animal health officials for disease control purposes. The system will thus support the needs of the producers, service organizations, breed associations, tag manufacturers, and animal health officials.

Impact on Current Programs and Policies
This action does not constitute a significant change in the current programs or policies. It merely establishes a new numbering system to replace the Uniform Eartagging System now in place. The method of administration of the new system is different, but similar. In the current system, official identification tags are procured through national contracts and administered through state/federal animal health officials, and accredited veterinarians. The AIN System will increase the number of entities with the ability to furnish official tags. Additional public and private groups such as breed associations, service organizations, certification programs, will be able to identify the animals of their own customers with official identification.

The AIN number itself will not look like the current numbers in the Uniform Eartagging System. Animal health officials and producers will need to become familiar with the appearance of the new number. We anticipate a transition period in which the AIN number becomes nationally recognizable.

What the AIN system is:

• A uniform system of visual numbers

• A method of administering the numbers

• A standard "tool" for the industry to provide unique animal identification when needed

What the AIN system is not:

• A mandatory system of livestock identification

• A system that specifies how to identify animals

• A national animal information database

• A comprehensive animal tracking system

• An electronic identification system

Issues Associated with this Action
In the current system, official identification tags are procured through national USDA contracts. In the AIN System, industry organizations can obtain tags from the vendors of their choice. This will give greater market access to all vendors and create a more "market-driven" environment.

The allocation of numbers will be an Internet based system. Minimal outlay will be required to develop and maintain a web site and the development of an automatic number allocation algorithm. The oversight of the web site will be conducted through a National AIN Oversight Board made up of representatives of animal industries and allied industries.

Animal information databases will need to be adjusted, if necessary, to accommodate an alphanumeric field of 15 characters. This may be a great expense for some databases, but it is expected that it can be accomplished smoothly. The overall benefit will outweigh the expense.

We acknowledge that companies, organization, and producers have existing stockpiles of ear tags. We also recognize that many animals are already identified with official ear tags. Following the publication of the final rule, stocks of current eartags for official use in interstate commerce will be allowed to deplete, but further ordering will not be allowed. Animals already identified under the current system will not be required to be re-identified.

System Administration
American Identification Number (AIN). A unique animal identification number administered through the National AIN Oversight Board consisting of 12 alphanumeric characters plus a three character country code.

AIN Allocator. USDA, APHIS, VS will be the agency responsible for the initial design of the National AIN Website, the initial allocation of AIN numbers to Official AIN Administrators and the selection of the National AIN Oversight Board. Once the website is up and running, allocation of AIN numbers will be conducted through an electronic system under the supervision of the National AIN Oversight Board.

National AIN Web site. An Internet based system of sequentially assigning official numbers and coordinating the requests of AIN Administrators. The administration of the web site will be conducted through the National AIN Oversight Board. Through the web site, agencies, organizations, and companies can apply to be recognized as Official AIN Administrators. Individual producers may use the web site to view a listing of all Official AIN Administrators and be linked to the web sites where the details of each system is explained. Animal health officials may use the web site’s animal disease control search engine to locate animals.

Official AIN Administrator. Any organization, agency, or private enterprise selected by the National AIN Oversight Board to administer the distribution of AIN eartags. An AIN Administrator must, (1) submit an application to the National AIN Oversight Board request approval as an AIN Administrator and to receive an official user identification code and password which uniquely identifies the administrator and allows internet based issuance of numbers, (2) use their identification code to request numbers from National AIN Web site, (3) administer the range of numbers allocated to them and avoid any duplication, (4) furnish customers with Official AIN tags, (5) maintain a record of each AIN tag, identifying the premise identification number of the farm to which it was issued, (6) maintain a web site that provides information on the purpose of the organization, the requirements of the organization, the identification method(s) used, the cost of using the system, and information on how to order Official AIN tags, (7) allow the web site to be linked to the National AIN Web site, (8) make records of tags issued available to government animal health officials for disease control purposes, and (9) educate customers on the proper use of AIN tags.

National AIN Oversight Board. A group selected by USDA, APHIS, VS, which is responsible for selection and retention of AIN administrators and supervision of the AIN System. It is made up of State and Federal animal health officials, and industry representatives, including individuals involved in the distribution and application of AIN tags,. The Board, (1) receives applications, (2) reviews and takes action to approve or disapprove applications, (3) monitors AIN allocation and administration, (4) maintains the National AIN Website, (5) determines changes needed in the AIN system, and (6) takes appropriate action with noncompliant AIN Administrators.

Official AIN Identification Device. A visual identification device such as an ear tag which is issued by an Official AIN Administrator and which bears a unique AIN and the two character postal code of the state where the animal to which it is issued is located at the time of identification. The postal code is not part of the AIN number, but is included on the tag as a visual indication of the state of origin. The U.S. Shield will also appear on the device to indicate that it is official for interstate movement and State/Federal/Industry Cooperative programs. No other identification devices may bear this shield. The design, size, shape, color and other characteristics of the device will depend on the needs of the customers of each AIN Administrator. The devices shall be tamper-resistant and have a high retention rate in the animal.

Removal and loss of Official AIN Identification Devices. Official AIN Identification Devices are intended to provide permanent identification of livestock while in interstate commerce and to ensure the ability to find the source of animal disease outbreaks. Removal of these devices is not permitted. It is realized that some tags will be unavoidably lost over time. Official AIN Administrators must have the ability to furnish identical replacement tags upon request and to accurately assign the reissued tags to the correct animals. New numbers should not be issued to animals previously identified with an AIN.

Consideration of International Standards
Although there is no international standard for visual numbering schemes, the general format that most countries have adopted specifies a maximum field length of 12 digits with a three character country code. The AIN system is consistent with this format. No compatibility problems are known.

Summary
The AIN system will have a lasting positive effect on the livestock industries. It will provide a standard that can be recognized by the private and public sectors alike. Many outside Federal agencies (FSIS, GIPSA, FDA) and States governments were consulted in developing this rulemaking, as were the dairy and beef cattle industries, the swine producing industry, and the data processing industry. It is necessary to publish this rule without appreciable delay in order to proceed with the task of implementing a uniform National livestock identification program.