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The Parliamentary Under-Secretary of State for Environment, Food and Rural Affairs (George Eustice)
I congratulate the hon. Member for Islwyn (Chris Evans) on raising this issue. I was interested to hear about his background in and experience of greyhounds, as well as the direct experience of greyhounds of the hon. Member for Wansbeck (Ian Lavery). I know that my hon. Friend the Member for Romford (Andrew Rosindell) has a long-standing record of championing animal welfare issues; he has clearly followed this issue particularly closely.
The treatment of racing greyhounds, both during and after their racing lives, is also a matter of concern for the public. This debate is very timely, because I will be able to say a few words about what the Government will be doing on greyhound racing during the coming months, and in particular about our plans to review the current regulations early next year.
Ian Swales
Earlier this year, I took my constituent Trudy Baker, who is a prominent member of the Greyt Exploitations charity, to see Lord De Mauley, who is a Minister. On 1 April, Lord De Mauley wrote to me promising the setting up of a review group to assess the 2010 regulations. Has that group been set up? If so, when will it report?
George Eustice
I was going to come on to say that the original legislation envisaged a review in 2015. Work towards that review has already begun with officials, and the intention—as I was going to say later on—is that we shall shortly have a discussion with stakeholders and those involved in greyhound racing, before going to a wider public consultation. I myself have had the opportunity to talk to Lord De Mauley, who leads on this particular issue in the Department for Environment, Food and Rural Affairs. I know that he has visited greyhound racetracks and has already met many stakeholders to discuss these particular issues.
I shall first set out the current legislative framework covering the welfare of greyhounds in England. This matter is, of course, a devolved one. However, it is a reality that the majority of greyhound tracks in Britain—some 30 out of 34 tracks—are in England. There are a further three tracks in Scotland and one in Wales. The majority of those 30 tracks in England—24 in total—are currently affiliated to the Greyhound Board of Great Britain. Following the 2007 report on greyhound racing that was led by Lord Donoughue, the GBGB has been the main governing body of the sport since January 2009. However, there are a further six tracks that are currently not affiliated to the GBGB: these are the so-called independent tracks, which tend to be smaller. They race independently of the GBGB.
Ian Lavery
Just to clarify that point, does the Minister mean that those independent tracks are not licensed by the GBGB, rather than “not affiliated to” it?
George Eustice
That is right. My understanding is that if tracks are affiliated to the GBGB, they are licensed by it. The independent tracks, which tend to be the smaller ones, are directly licensed by the relevant local authority.
Nevertheless, it is important to note that welfare standards for all racing greyhounds in England are covered by the Animal Welfare Act 2006 and the Welfare of Racing Greyhounds Regulations 2010. The 2006 Act is wide ranging, but it allows action to be taken where there is evidence of cruelty to an animal or of a failure to provide for an animal’s welfare needs. This includes, for instance, when greyhounds are kept away from the track, such as at a trainer’s kennels, which is often flagged as a point of concern by some animal welfare groups.
Further to the general provisions under the 2006 Act, which apply everywhere, the welfare standards at all greyhound racing tracks in England are specifically covered by the Welfare of Racing Greyhounds Regulations 2010. Introduced in April 2010, these regulations require that all tracks must do the following: first, they must have a vet present at all races, race trials and sales trials, with all greyhounds inspected by the vet before they are allowed to run; secondly, the tracks must provide suitable kennelling; thirdly, all greyhounds be microchipped and earmarked before they can race or trial; and finally, each track must keep records of all dogs that are raced or trialled at that track, and of any dogs injured during a race, trial or sales trial.
These standards are regulated either by the track’s local authority—that is the case for independent tracks, as I have pointed out—or, as in the majority of cases, by the GBGB, which regulates 24 tracks. However, the GBGB is only allowed to regulate these standards on the basis that it is accredited by the United Kingdom Accreditation Service for the audit of greyhound tracks against the standards required by the 2010 regulations.
At this point, it might help the House if I briefly discussed what we mean by the term “self-regulation”. The hon. Member for Islwyn said that this is still very much self-regulated. However, I do not think it is quite as simple as that, because the position is firmer than simply having a voluntary code.
Prior to the introduction of the regulations in 2010, the industry was self-regulated in the way that most people would understand the term. There were no specific statutory requirements for greyhound racing tracks, the industry set its own welfare rules of racing and there was no independent external scrutiny of how the National Greyhound Racing Club, which was the main industry regulator at the time, enforced its own rules. However, following the 2007 Donoughue report and the subsequent introduction of the Welfare of Racing Greyhounds Regulations 2010, the minimum conditions required for all greyhound tracks in England are now set down by Parliament. Apart from local authorities, if any organisation wishes to regulate the standards themselves, it must have UKAS accreditation to do so. The GBGB is currently the only body certified in this way by UKAS and ensures that there is now external independent oversight of the enforcement work that the GBGB carries out.
While the current situation is often described as self-regulation, clearly 2010 marked a break with what had gone before. What we have is a statutory form of regulation that is enforced by an industry body that is then itself audited by an independent body established within Government.
It might be worth while my saying a little more about UKAS accreditation. UKAS is recognised by the Government as the sole UK organisation for the accreditation of certification, testing and inspection bodies to internationally agreed standards. UKAS accreditation provides an assurance of the competence, impartiality and integrity of assessment bodies. As UKAS accredits the GBGB as a certification body, I think that the Government can have confidence that the GBGB is effectively monitoring and verifying welfare standards as defined within the rules of racing and within the 2010 regulations.
UKAS’s accreditation process determines the technical competence and integrity of organisations acting as assessment bodies. Before UKAS accredits any organisation, the organisation will be subject to intensive audit to ensure compliance with the international standard for certification bodies, including witnessing the organisation’s own assessment activities. Accredited organisations are subject to annual surveillance visits and full reassessment after four years.
Organisations found not to be acting in accordance with their accreditation can have that suspended or even withdrawn. Should the GBGB ever lose its accreditation, the 2010 regulations would automatically remove its powers to regulate the standards set out in those regulations, and all GBGB tracks in England would then require a licence from their local authority.
If anyone has any concerns about how the GBGB is applying welfare standards as defined within the rules of the 2010 regulations, they can report them to UKAS. UKAS has powers to investigate any such concerns reported to it. The GBGB was accredited by UKAS in March 2010 and DEFRA officials have been told that since then UKAS has received no complaints about the efficacy with which the GBGB has approached its duties.
I want to say a little about the five-year review, which was touched on in an intervention. When the regulations were introduced in 2010, Ministers in the last Government committed to reviewing them after they had been in force for five years. As the House is aware, all new regulations now come with statutory five-year review clauses anyway, but it was always the intention—even under the previous Government, and even before the statutory requirement to review regulations every five years was in place—to review these particular regulations after five years.
The review is due in April 2015, but work on it has already begun. We aim to go out to key stakeholders early in the new year, to collect the evidence that we need to assess the effectiveness of the regulations. Once we have independently collected and considered that evidence, DEFRA will go out to a wider public consultation, which will most likely commence after the election, given that we will quickly be at the end of March and into a purdah period.
Given the strength of views on these issues, it is important that we do not have a quick consultation that gets lost in the run-up to the general election. This is an important issue, and we do not need to rush it. Provided we have started the engagement with stakeholders before the general election, we should allow plenty of time for people to respond to a public consultation after it.
That review will consider how effective the regulations have been. It can look at the self-regulatory elements of the regulations and how the current approach adopted by the GBGB is working and at the requirement to collect injury statistics and how those can be used. It can also look at the traceability of greyhounds after they have left the sport, because one of the biggest concerns that is often raised about the current situation—the hon. Member for Islwyn highlighted this—is that nobody is sure where between 2,000 and 4,000 greyhounds a year, by some estimates, end up. We know that many excellent charities help to re-home greyhounds that have left racing, but there is concern about some of the others.
The hon. Member for Islwyn mentioned a number of issues that he would like to be addressed in that review, and I think that all of them could indeed be covered. For instance, he highlighted the importance of independent welfare oversight and asked whether other welfare charities could be involved, and I see no reason why that could not be explored through the review. It is exactly the kind of thing that we should do.
The hon. Gentleman also mentioned the importance of transparency on statistics. We know that the regulations now require the GBGB to require all its tracks to record instances of injuries. Many say that those injuries should be submitted to the GBGB and perhaps published, so that there is transparency in that regard. Again, these are all valid points that can be addressed through the review.
My hon. Friend the Member for Romford highlighted the issue of doping and the use of drugs. This is a good point. We should recognise that the use of doping and drugs in this context would already be a breach of the Gambling Act 2005, which, as my hon. Friend will know, given his background in this, sets out many provisions in this regard. We should also recognise that the GBGB has done some good work in this area. It has taken it quite seriously, spending more than £640,000 a year on drug sampling and research to ensure that it is able to detect substances, as my hon. Friend said.
Finally, the hon. Member for Islwyn mentioned over-breeding. This is an issue with many breeds—the greyhound is not the only example—and the Kennel Club has started to become alert to this problem and to do work on it, including the dangers and welfare impacts. I am sure that when we have that review, organisations like the Kennel Club and other animal welfare organisations, which have themselves done good work in this connection, may want to contribute to it.
In conclusion, we have had a good, well-informed debate with hon. Members who have a lot of experience of this issue. I am sure that many of the points that have been raised will be pertinent to the review that we are about to commence, first with stakeholders and then with the wider public during the next six months. I again congratulate the hon. Gentleman on securing this debate and hon. Members on their important contributions.
Question put and agreed to.