Animals (Low-Welfare Activities Abroad) Bill

(Limited Text - Ministerial Extracts only)

2nd reading
Friday 14th July 2023 Lords Chamber

[The Minister of State, Department for Environment, Food and Rural Affairs (Lord Benyon) (Con)]

My Lords, I am grateful to all who have spoken in this debate. I am pleased to be speaking in support of the Bill and to see such interest in this legislation from across the House. I pay tribute to my noble friend Lord Black and his colleague in the other place, Angela Richardson, for the eloquence and passion that they have put into this and the excellent work they have done with a variety of different organisations to make sure that we have some legislation here that will be effective and will reflect both the need and what our public demand, which is ever higher animal welfare standards.

This legislation is welcome, as domestic travel agents are currently able to advertise and sell unacceptably low-welfare activities abroad to tourists without any regulation. The Bill will prohibit the advertising and offering for sale in England and Northern Ireland of tourist-related activities abroad involving animals. The Bill will provide a framework under which secondary legislation may be used to implement bans on specific low-welfare activities abroad, examples of which include riding, bathing and taking selfies with animals. The animals used in such practices are often trained using, as my noble friend said, brutal methods that allow tourists to get within touching distance of them. For any activity to be deemed within scope of a specific ban will involve animals that are kept in conditions or subject to treatment that would not be permitted under the Animal Welfare Act 2006 or the Welfare of Animals Act (Northern Ireland) 2011.

Throughout the Bill’s passage it has been made clear that low-welfare activities involving Asian elephants are likely to fall within the scope of this legislation. There has been especially strong support for a ban to be introduced in this area. Asian elephant rides, bathing and other similar activities are extremely popular with tourists. However, aside from the suboptimal conditions that the elephants are often kept in, what is not seen is the cruel training methods that they are subject to in order to make them a safe tourist attraction.

While close interactions with captive wild animals are seen by many as a once-in-a-lifetime experience, surely it would be far more fulfilling to observe these animals displaying natural behaviours in natural environments in just the way that nature intended. The Bill aims to encourage tourists to visit high-welfare attractions where animals are free to display more natural behaviours and cruel practices are not used to train them for human entertainment.

World Animal Protection’s 2022 report The Real Responsible Traveller states that sanctuaries that are certified by the Global Federation of Animal Sanctuaries, and which do not breed for commercial purposes, are likely to offer the highest standards of care to their animals. An example of a high-welfare attraction is ChangChill in northern Thailand, which has become one of the first elephant attractions to transition to an observation-only model. The venue has become a popular tourist attraction, demonstrating that there is a demand for animal-friendly, observation-only tourism.

A scant look at what is being advertised as we sit here today shows quite the opposite in other locations. From the comfort of the UK you can

“pre-book your joy ride on the back of an elephant”

without any knowledge of what that elephant went through in order for you to have an experience that you might think was trouble-free but, clearly, so often is not.

It has been predicted that, as the travel industry picks up following the pandemic, the UK’s outbound travel figures will surpass pre-pandemic levels. It has been estimated that by 2024 up to 86.9 million outbound travel bookings could be made per year. In 2019, 79% of travellers who witnessed animal cruelty said they would pay more for an activity where they knew that the animals did not suffer. However, it is often difficult for tourists to make that judgment on whether the animals they are interacting with are, or have been, subject to cruelty.

I join the noble Baroness in paying tribute to Save the Asian Elephants for the endless work that it has done on this and so many other areas in protecting this extremely at-risk species. Today I also remember my late friend Mark Shand, who set up and ran Elephant Family, which continues to do noble work in trying to create the wildlife corridors that will allow that extraordinary species to survive in its own environment at a time when there is huge human pressure on it, as there is on so many species.

I shall address some of the questions that were put to me by the two noble Baronesses who represent their parties on the Front Bench. The Bill focuses on advertising and sales taking place in England or Northern Ireland, not those taking place abroad. If an advert is distributed by means of electronic transmission and the person does not carry on business in England or Northern Ireland, we could not prevent that from happening—that has to be said. However, we hope that, if we bring in a domestic ban, awareness-raising will influence potential tourists and dissuade them from pursuing unacceptable activities abroad.

The guidance that we are giving to enforcement bodies will be developed for trading standards in England and the Department for the Economy in Northern Ireland so they will be able to effectively enforce the Bill. The guidance will be produced as and when specific bans are introduced.

Despite not being UK-wide, the Bill will still make it possible to ban the advertising and sale here of low-welfare animal activities abroad to consumers in England and Northern Ireland. That will send a strong message that these activities are not deemed acceptable.

While it will not be possible to stop prospective tourists purchasing unacceptable activities abroad from a travel agent in Wales or Scotland, the Government hope that consumers living in England or Northern Ireland who are planning a holiday abroad will make a positive decision, in line with the legislation in England or Northern Ireland. We work closely with the devolved Governments in both those countries to make sure that, where possible, our animal welfare policies align. In some cases, they have been a little ahead of us; in other cases, like now, we are a bit ahead of them. But there is an inexorable acceptance that we want sensible animal welfare policies such as this to be UK-wide, and we will continue to work with them to ensure that that happens.

On the question of the “principal market” point, the use of the term “principal market” relates to the market for which a publication is intended. Clause 2(5) is aimed at ensuring that a business is not treated as having committed an offence if a publication is printed and published outside England or Northern Ireland and is not intended principally for a market that includes an audience in England or Northern Ireland. Therefore, the exclusion in Clause 2(5) does not apply to a publication that is printed outside England or Northern Ireland and contains a prohibited advertisement if it is published or distributed in England or Northern Ireland and the publication was principally intended for a market that includes an audience in England or Northern Ireland—I promise your Lordships that that makes sense; I read it through several times before I said it.

I want to make sure that we have legislation that works, and what I say to the House is this: let us not make the perfect the enemy of the good. We have a very tight timetable, particularly for Private Members’ Bills, and if we have to bounce too much back and forward between the two Houses, there is a timing risk. I am not using that as a threat, but just saying that I live in the realities of the timetable. I know that all sides appreciate that. I just want to get this on the statute book as quickly as possible.

The Government will have the ability, through supporting the Bill, to bring forward future targeted bans on low-welfare activities involving animals. The details of these bans will provide clarity to the tourism industry and their consumers on whether specific activities are deemed acceptable or not. With the knowledge of animal welfare that we have as a nation, we must take the necessary steps to steer UK tourists away from entertainment overseas that involves the unacceptable treatment of animals, and instead towards activities where animal welfare is appropriately protected. By disallowing the advertising and sale, here, of attractions abroad involving low-welfare practices, we can also encourage the providers of such low-welfare animal activities abroad to switch to better methods.

No matter how big or small, any change that we are able to make to influence global animal welfare for the better should be seen as a positive move. The Government are committed to raising animal welfare standards worldwide and take such matters very seriously. From the debate today, the importance of animal welfare to us is clear, not only domestically but across the world. I hope that the introduction of this Bill marks a step in the right direction towards fundamental changes in the way that animals are treated in the tourism industry. In closing, I reiterate my support for the Bill and my huge appreciation to my noble friend for bringing it to the House today and to all noble Lords for their contributions to this debate.