Hawaii’s Scrapie Eradication Program: Rules Every Sheep and Goat Owner Must Know

If you raise sheep or goats in Hawaii, federal and state disease control regulations apply to you — and scrapie is one of the most closely monitored conditions under those rules. Scrapie is a fatal neurological disease with no cure, and the federal government has been working for decades to eliminate it from the United States entirely. Hawaii plays an active role in that effort, and understanding what the program requires of you is essential for staying compliant and protecting your animals.

This guide walks you through every component of the Scrapie Eradication Program as it applies to Hawaii — from what the disease actually is, to how you register your flock, identify your animals, move them legally, and participate in voluntary certification. Whether you are a first-time producer or a longtime livestock owner, the requirements outlined here affect how you operate.

What Is Scrapie and Why It Is Regulated in Hawaii

Scrapie is a fatal, degenerative disease affecting the central nervous system of sheep and goats. It does not affect humans, but it is classified among a group of diseases known as transmissible spongiform encephalopathies (TSEs), caused by a prion. In cattle, a related prion causes Mad Cow disease, while in deer it is responsible for Chronic Wasting Disease.

Scrapie is difficult to detect — it can take two to five years for an animal to show signs of disease, and animals typically live only one to six months after clinical signs appear. Most are infected as young lambs or kids, though adult animals can contract it as well.

Scrapie is thought to spread from the ewe or doe to her offspring and other herd mates through contact with placenta or placental fluids. Symptoms result from central nervous system damage and can include behavioral changes, tremors of the head and neck, teeth grinding, intense rubbing or chewing of the body and limbs leading to hair loss, abrasions, incoordination, and gait abnormalities.

The presence of classical scrapie in the U.S. sheep and goat population causes economic harm through production losses, lost exports, and increased production and disposal costs. Public health concerns related to the transmission of bovine spongiform encephalopathy to humans have also driven efforts to eradicate all TSEs in food-producing animals.

The presence of scrapie in the United States also prevents the export of breeding stock, semen, and embryos to many other countries — a significant economic consequence for producers who rely on international markets. Hawaii’s livestock industry is not exempt from these pressures, which is why state-level compliance with the national program matters.

Hawaii’s Role in the National Scrapie Eradication Program

Hawaii is a “consistent state” in the USDA’s National Scrapie Eradication Program. This means that Hawaii follows national guidelines for monitoring, identifying, and sampling animals to help eliminate the disease from the United States.

The definition of a consistent state applies to states conducting an active state scrapie control program that meets certain requirements. The current list of consistent states includes all 50 states, with Hawaii explicitly named among them.

Surveillance for scrapie in the United States is conducted through the National Scrapie Eradication Program (NSEP), a cooperative state-federal-industry program. The NSEP has two major components: a regulatory eradication program called the Accelerated Scrapie Eradication Program (ASEP) and a voluntary certification program called the Scrapie Flock Certification Program (SFCP).

The National Scrapie Eradication Program, coordinated by USDA’s Animal and Plant Health Inspection Service (APHIS), has reduced the prevalence of scrapie in adult sheep sampled at slaughter by more than 99 percent. However, the cooperation of sheep and goat producers is still needed to find and eliminate the last few cases in the United States.

Since 2002, the prevalence of scrapie has decreased significantly through existing eradication efforts, largely as a result of effective slaughter surveillance. Since slaughter surveillance started in fiscal year 2003, the percent of cull sheep found positive at slaughter (adjusted for face color) has decreased 99 percent. Despite this progress, the most recent cases of scrapie found in the U.S. were sampled at slaughter — a sheep tested in Wisconsin in 2021 and a goat in Indiana in 2019 — and neither could be traced to the farm of origin, suggesting that farms with scrapie cases may still exist.

For more about Hawaii’s unique animal life and the state’s broader approach to managing species of concern, you may find it useful to explore resources on venomous animals in Hawaii and invasive species concerns in Hawaii, which reflect the state’s ongoing commitment to animal health and biosecurity.

Official Animal Identification Requirements in Hawaii

Producers are required to follow federal and state regulations for officially identifying their sheep and goats. They must also keep herd records showing what new animals were added to and what animals left the herd or flock.

All sheep and goats must have official identification when moving off their premises of origin, with limited exceptions. Some states have identification requirements that are stricter than federal requirements, so the exceptions listed under federal rules do not apply in all states. For information on Hawaii’s specific identification and movement requirements, contact the State Veterinarian’s office.

Accepted Forms of Official Identification

Many of the specific requirements regarding official eartags and official identification methods — such as tattoos and implantable electronic identification (microchips) — are detailed in the Scrapie Program Standards, Volume 1: National Scrapie Eradication Program. The following types of official identification are recognized under the program:

• Official eartags — plastic or metal tags approved by APHIS and assigned to your flock or premises ID
• Electronic (RFID) tags — radio frequency identification tags that can be scanned for rapid animal data retrieval
• Registry tattoos — for registered animals accompanied by proper documentation
• Implantable transponders (microchips) — subject to restrictions outlined in the NSEP Standards

Visual tags must be read by handlers or inspectors. Electronic (RFID) tags contain electronic chips that can be scanned to quickly access the animal’s identification data. While electronic identification is not currently mandatory, its use is strongly encouraged, as electronic tags improve the nation’s ability to quickly trace exposed and diseased animals in the event of a disease outbreak.

Tattooing is also an option: registered animals may be identified with a registration tattoo instead of a tag, as long as the animal is accompanied by a copy of the registration certificate issued by an APHIS-approved registry listing the current owner, or the registration certificate and a completed transfer of ownership form dated within 60 days listing the current owner.

How to Obtain Official Tags in Hawaii

The National Scrapie Eradication Program provides up to 100 plastic flock ID tags free of charge to first-time participants in the sheep and goat identification program until available funds are expended. Producers will need to purchase the compatible applicator from the tag manufacturer.

To request official sheep and goat tags, a flock or premises ID, or both, call 1-866-USDA-TAG (866-873-2824). This number has a telephone tree that will gather information to route you to the correct APHIS Veterinary Services office or state office to answer your questions about sheep and goat identification.

Producers and others who handle sheep or goats in commerce who need additional tags or want a different type or color of tag may purchase official plastic, metal, or RFID tags directly from approved tag manufacturers. A flock or premises ID is required to order tags from these sources, and a national premises ID is also required to purchase official 840 RFID tags or implantable devices.

Animals Exempt from Identification Requirements

Not every animal requires official identification in every situation. Official identification — including official eartags, official tattoos, official electronic identification, or official premises identification numbers — is required when sheep and goats change ownership, with the following exceptions: lambs and kids less than 18 months of age in slaughter channels that have not lambed, kidded, aborted, or are pregnant; low-risk goats not exposed to scrapie or to any sheep (unless low-risk commercial sheep); and castrated animals less than 18 months of age that are not for exhibition.

Flock Registration and Recordkeeping Requirements in Hawaii

Before you can obtain official identification tags, you must have a flock or premises identification number assigned to your operation. As part of the National Scrapie Eradication Program, anyone who owns, buys, or sells sheep or goats is required to have a flock identification number (Flock ID).

The scrapie eradication program pre-dates the Animal Disease Traceability (ADT) Program. As a result, there have been changes in the premises ID numbers that may be assigned by states and APHIS for sheep and goat premises, which now include PINs and LIDs. Contact Hawaii’s Animal Industry Division or call 1-866-USDA-TAG to get the correct type of premises ID assigned to your operation.

Recordkeeping Standards

Because the incubation period for scrapie is typically two to five years, producers should record individual identification numbers and the seller’s premises identification number on purchase and sales records. These records must be maintained for a minimum of five years.

The success of the Scrapie Eradication Program is tied to producers keeping good records of animal sales and purchases. Your records should clearly document:

1. The official ID number of each animal entering or leaving your flock
2. The date each animal was added to or removed from your premises
3. The seller’s or buyer’s premises identification number
4. The date official identification was applied and the tag numbers used
5. Any test results, quarantine actions, or veterinary inspections related to individual animals

Official tags may not be sold or given to another person. If you no longer need the tags, they should be destroyed or returned to the APHIS Veterinary Services District Field Office for your state.

Interstate and Intrastate Movement Rules for Sheep and Goats in Hawaii

Because Hawaii is an island state, movement of sheep and goats involves both intrastate (inter-island) and interstate (to or from the mainland or other jurisdictions) considerations. Federal regulations at 9 CFR Part 79 govern the interstate movement of sheep and goats under the scrapie program, and Hawaii’s consistent state status means these rules apply fully.

Interstate Movement Requirements

In September 2001, scrapie regulations were revised to require the official identification of sheep and goats not in slaughter channels (except low-risk commercial goats) and any sheep over 18 months of age in interstate commerce, with some exceptions. The revision also required states to implement and enforce official identification of most sheep and goats on change of ownership intrastate, in order to move sheep and goats interstate with minimal restrictions.

When moving sheep or goats into or out of Hawaii in interstate commerce, you generally need an Interstate Certificate of Veterinary Inspection (ICVI). An ICVI is an official document issued by a federal, state, tribal, or accredited veterinarian certifying the inspection of animals in preparation for interstate movement.

The ICVI must include specific information. This includes individual animal identification numbers — such as the official eartag number(s), breed association registration tattoo or brand numbers, breed association registration number, and any other official individual identification on each animal to be moved. In the case of animals identified by a flock ID assigned to the flock of origin, the flock ID may be recorded instead of the individual identification number.

The ICVI must also include a statement by the issuing veterinarian that the animals were not exhibiting clinical signs associated with scrapie at the time of examination. State CVIs that include certification statements indicating that the animals have no history of clinical signs or exposure to contagious or infectious diseases will suffice in lieu of the specific scrapie statement.

Animals Requiring Permits Instead of CVIs

Scrapie-positive, suspect, and high-risk animals, some exposed animals, and animals that originated in an infected or source flock require permits rather than CVIs for movement. Contact the USDA Veterinary Services District Office for further information on these permits.

A permit lists the owner’s name and address; points of origin and destination; number of animals covered; purpose of the movement; whether the animals are from an exposed, noncompliant, infected, or source flock; whether the animal is a high-risk, exposed, scrapie-positive, or scrapie suspect animal; transportation vehicle license number or other identification number; and seal number if a seal is required.

Intrastate Movement Exemptions

Sheep or goats moving within a state that have only resided on premises and in flocks in the same state — where the animals and premises are owned by persons who do not engage in the interstate commerce of sheep or goats, and where the sheep or goats are of a class exempted from official identification by the state while in intrastate commerce — may be exempt from federal identification requirements. However, Hawaii may have additional state-level rules that apply. Always confirm current intrastate movement rules with the Hawaii Animal Industry Division before moving animals between islands.

Hawaii’s broader animal import and quarantine framework is detailed through the state’s Animal Industry Division. If you are importing sheep or goats from the mainland, you should review the state’s livestock import requirements alongside federal scrapie movement rules to ensure full compliance on both fronts. You can also explore Hawaii’s animal health landscape for broader context on the state’s biosecurity priorities.

Reporting, Testing, and Quarantine Requirements in Hawaii

Reporting and testing are critical components of Hawaii’s participation in the national scrapie eradication effort. Your cooperation in submitting samples and reporting clinical suspects directly affects the program’s ability to find and eliminate remaining cases.

Reporting Obligations

Animal health professionals — including veterinarians, diagnostic laboratory personnel, public health officials, zoo or wildlife personnel, and others — are required to report diagnosed or suspected cases of nationally listed reportable animal diseases to APHIS Area Veterinarians in Charge and to the state animal health official, as applicable under state reporting regulations.

As a producer, you also play a direct role. If you have an adult sheep or goat exhibiting signs of scrapie — such as incoordination, severe continuous rubbing, or other neurological signs — or if an adult animal dies, is euthanized, or is being culled (even if you know the cause of death), contact your local state or USDA APHIS Veterinary Services veterinarian, or call 866-536-7593 right away.

Sample Submission

Producers, accredited veterinarians, APHIS representatives, and state animal health employees may collect and submit samples from adult sheep or goats. APHIS provides shipping boxes and pre-printed, postage-paid labels at no cost to producers and accredited veterinarians. APHIS will pay for scrapie testing of up to 30 animals per flock per year.

Producers may remove and submit whole heads or report deceased sheep or goats and ask for help with submitting samples. When requested by the producer, accredited veterinarians can apply official eartags, collect and submit samples for official genotype testing, scrapie testing on obex, lymph node, third-eyelid lymphoid tissue, or rectal lymphoid tissue, and issue Certificates of Veterinary Inspection for interstate movement.

To declare the United States scrapie-free, it must be proven to the world that testing has been conducted in all sheep and goat populations. That is why owner submission of samples from sheep and goats over 18 months of age found dead or euthanized on farm is extremely important.

Quarantine Requirements

An infected flock is defined as the flock of origin of a female animal that a state or APHIS representative has determined to be a scrapie-positive animal, or any flock in which a scrapie-positive female animal has resided, unless an epidemiological investigation shows that the animal did not lamb or abort in the flock. A flock will no longer be considered an infected flock after it has completed the requirements of a flock plan.

A flock plan is a written flock management agreement signed by the owner of a flock, the accredited veterinarian (if one is employed by the owner), and a state or APHIS representative. Each participant agrees to undertake actions specified in the plan to control the spread of scrapie from, and eradicate scrapie in, an infected or source flock, or to reduce the risk of scrapie in a flock containing a high-risk or exposed animal. The flock owner must provide the facilities and personnel needed to carry out the requirements of the plan.

The 2019 final rule amended scrapie regulations by changing the risk groups and categories established for individual animals and flocks, increasing the use of genetic testing as a means of assigning risk levels to animals, reducing movement restrictions for animals found to be genetically less susceptible or resistant to scrapie, and simplifying or removing certain recordkeeping requirements. It also provided designated scrapie epidemiologists with more alternatives and flexibility when testing animals to determine flock designations.

Scrapie Free Flock Certification Program (SFCP) in Hawaii

The SFCP is a voluntary program open to all sheep and goat producers in the United States. The overall objective of the SFCP is to minimize the scrapie risk of participating flocks and herds, thereby improving the marketability of animals from participating flocks and herds and contributing to the national scrapie eradication program.

The National Scrapie-Free Flock Certification Program increases the marketability of sheep and goats from flocks that have demonstrated freedom from scrapie disease by adhering to program standards. It is a voluntary program for producers committed to monitoring their flocks for clinical scrapie signs and reporting any suspect animals for testing. Participants benefit by decreasing the risk of introducing classical scrapie into their flocks.

SFCP Categories and Statuses

The SFCP has two categories: Export and Select. The Export category has two statuses — Export Monitored and Export Certified — and the Select category has one status: Select Monitored.

The objective of the Export category is to certify participating flocks and herds as scrapie-free establishments through limiting the acquisition of does and ewes from flocks of the same or higher status, annual inspections including reconciliation of the animal inventory, official individual animal identification requirements, recordkeeping requirements, and animal sampling requirements.

Participants in the Export Category have their flocks monitored and sampled; if conditions are met, this may lead to Export Certified status and recognition of negligible scrapie risk. The Select Category involves testing samples from mature sheep and goats to identify and remove infected flocks.

How to Enroll in the SFCP in Hawaii

The Scrapie Flock Certification Program was added in 1992 and is a voluntary certification program within the NSEP. The SFCP identifies scrapie-free flocks by monitoring them over a five-to-seven-year period. The program provides sheep and goat producers the opportunity to increase the marketability of their animals through demonstrating a negligible scrapie risk in their flock or herd.

To participate in the SFCP in either category, you must complete the SFCP application form (VS Form 5-22). You can contact APHIS directly at scrapie@usda.gov for enrollment information and to confirm Hawaii-specific program contacts.

SFCP tags may only be purchased by owners of flocks participating in the Scrapie-Free Flock Certification Program. This distinction matters when ordering tags — if you are not enrolled in the SFCP, you should order standard program tags rather than SFCP-specific tags.

Hawaii’s livestock producers operate in a unique biosecurity environment. The state’s island geography means that disease introductions carry heightened risk, making programs like the SFCP especially valuable for local producers. For a broader look at Hawaii’s animal management landscape, you may find these resources helpful: dog breed restrictions in Hawaii, popular dog breeds in Hawaii, and general guides to wildlife found across the Hawaiian Islands.

Staying Compliant: Key Contacts and Next Steps

Navigating scrapie regulations in Hawaii requires coordination between state and federal agencies. Here is a summary of the key actions you should take and the contacts that can help:

• Register your flock — Call 1-866-USDA-TAG (866-873-2824) to get a flock or premises ID assigned before purchasing or applying any official tags
• Tag your animals — Apply official identification before any animal leaves your premises or changes ownership, using APHIS-approved tags or approved tattoo methods
• Keep records — Maintain purchase and sales records with official ID numbers and premises IDs for a minimum of five years
• Submit samples — Send samples from sheep and goats over 18 months of age that die or are euthanized on your farm; APHIS covers testing costs for up to 30 animals per flock per year
• Report suspects — Contact your state veterinarian or call 866-536-7593 immediately if any animal shows neurological signs consistent with scrapie
• Consider SFCP enrollment — Contact scrapie@usda.gov to learn how the voluntary certification program can improve your flock’s marketability

The Hawaii Animal Industry Division is your primary state-level contact for scrapie-related questions, and USDA APHIS Veterinary Services handles federal program requirements. Keeping both lines of communication open ensures you stay current with any regulatory updates that affect your operation.