Animal Welfare (Livestock Exports) Bill

(Limited Text - Ministerial Extracts only)

Report stage
Wednesday 8th May 2024 Lords Chamber

[The Parliamentary Under-Secretary of State, Department for Environment, Food and Rural Affairs (Lord Douglas-Miller) (Con)]

My Lords, I am grateful to the noble Lord, Lord de Clifford, and to all other noble Lords who have spoken so eloquently and passionately on these efforts to ensure that this Bill brings to an end excessively long journeys for all species likely to be exported for slaughter and fattening. I reassure noble Lords that the Government are fully in agreement on that point. We wish to put a permanent end to this unnecessary trade for all animals, and I believe that the definition of “relevant livestock” in the Bill will achieve that aim.

I shall begin by summarising the process of evidence gathering and consultation that led to the drafting of the list of species included in the Bill. In 2018, the Government launched a call for evidence on live exports for slaughter and on animal welfare in transport, alongside a systematic review conducted by Scotland’s Rural College and the University of Edinburgh. The UK, Scottish and Welsh Governments then commissioned a report from the Farm Animal Welfare Committee, which drew on this evidence, as well as a range of expert opinion from stakeholder engagement. Building on these findings, in 2020 we consulted widely on the ban on live exports for livestock and horses and received over 11,000 responses. During the consultation, we received no evidence that a ban on any other species was necessary. We have also received no such evidence since.

In the 10 years prior to EU exit, the live export trade for slaughter and fattening mainly involved sheep and unweaned calves. There have also been exports of pigs and goats for fattening, although these have been at significantly lower levels. While there have been no recorded exports of horses for slaughter, there is anecdotal evidence to suggest that the trade does exist. The definition of “relevant livestock” therefore already covers the species required for the Bill to bring an end to the unnecessary live export trade for slaughter and fattening. We also discussed this amendment in the context of alpacas, llamas and deer. In the UK, there are extremely low numbers of these animals compared with the numbers of farmed animals already covered by the Bill. More importantly, we have no evidence of any of these species being exported for slaughter or fattening from Great Britain to the EU, or that there is any demand for a trade in live exports of these species from the EU or elsewhere.

I understand noble Lords’ desire to ensure that the ban will apply to all relevant animals, at present as well as in the future. When considering the data we have on the slaughter export trade, I continue to hold the view that the definition of “relevant livestock” in the Bill is comprehensive and the proposed power to extend it is not required. The Government wish to see the unnecessary slaughter and fattening trade brought to a conclusive end at the earliest opportunity. I am sure this desire is shared by those here today and all those who support the Bill outside Parliament. Today, we have the chance to act swiftly and decisively to bring the end of this trade one step closer, and I therefore respectfully ask the noble Lord to withdraw his amendment.

--- Later in debate ---

[Baroness Hayman of Ullock (Lab)]

My Lords, I thank the noble Baroness, Lady Bakewell of Hardington Mandeville, for introducing her Amendment 2. It seems to be a perfectly reasonable suggestion to review the impact on farming, for the reasons that she introduced and other noble Lords mentioned, particularly the noble Baroness, Lady McIntosh of Pickering. Our farmers have had a pretty tough time over the last few years. There have been a lot of changes, and this is another change—one that we strongly support. We need to ensure that our farmers are always steered and supported through any major change to the way their businesses have to operate.

An important point has been made about farmers’ concerns about being undercut by cheap imports, including the point made by the noble Baroness, Lady McIntosh, about poultry in particular. It is very expensive for our farmers to bring in the new systems on animal welfare that we expect them to. It is good that they do so and that we farm to particularly high animal welfare standards in this country, but we should not allow the sale of produce in this country that does not meet those same standards. When we do our trade deals, we need to be really careful about what we are opening a door to. We should always first support our own farmers and the standards that we need to meet in this country.

Some concerns were also raised about border controls and the cost to farmers and producers of the new controls that are coming in. I will not go into great detail about that, as other noble Lords have talked about it and we had a fairly extensive debate on it in this House— I cannot remember whether it was last week or the week before; time flies when you are having fun. Any impact of the border controls, combined with changes in how farmers are expected to manage, transport and export their produce, needs to be considered as a whole. That seems to be a very sensible approach.

The noble Baroness, Lady Bennett of Manor Castle, also made the important point that any review must take into account what the potential outcomes of that review could be. Clearly, the last thing any of us would want to see would be any review resulting in the starting up of live exports. I say that with the assumption that the Minister is not going to stand up and say that he will accept the noble Baroness’s amendment. However, it is generally the case that new legislation does get reviewed at some point—so, again, it is important that, once this is on the statute, it does not get unpicked at any stage.

Although we very much support the points that the noble Baroness, Lady Bakewell of Hardington Mandeville, is making here and the points made by other noble Lords during this debate, as previously, we would not want to slow the passage of the Bill in any way. So, while it is important that we have discussions and debates around this, we would not want to hold the Bill up at all.

I just want to make one very final point. I was absolutely delighted to hear the noble Baroness, Lady McIntosh, talk about ungulates. Many years ago, in a previous life, when I was a proofreader, I proofread a book called The Biology and Management of Mountain Ungulates—and I never thought I would get the opportunity to say that in this House.

[Lord Douglas-Miller (Con)]

My Lords, I am not even going to try.

I am grateful to the noble Baroness, Lady Bakewell, and to other noble Baronesses who have spoken and continue to speak towards the efforts to ensure that all impacts of the Bill on farming have been fully considered.

I will start by making three main points. First, I reassure the noble Baroness that we have already considered the impacts of this policy on British farmers and businesses and we expect the impact to be minimal, as outlined in our impact assessment, published in July 2021. The estimated direct cost to businesses of ending live exports for slaughter and fattening is around £5,200,000 across the 10-year appraisal period, or around £500,000 per year. It is also highly likely that the impact will have further decreased since then, as there have been no recorded live exports for slaughter or fattening from Great Britain to continental Europe since this assessment was published.

Secondly, when we consulted, responses indicated that some businesses which can no longer export live animals for slaughter will instead sell their live animals domestically and export the carcass or final meat products instead. We do not anticipate any issue with domestic slaughterhouse capacity being able to absorb any animals that might otherwise have been exported. In 2020, we exported from Great Britain around 6,300 sheep to the EU for slaughter and about 38,000 for fattening. These slaughter exports accounted for around 0.02% of all livestock slaughtered in the UK in 2020 and so represented a very small proportion of the total number of animals processed in the UK every year. I hope this reassures the noble Baroness.

Thirdly, in 2020 we exported approximately 480,000 tonnes of beef, veal, lamb, mutton, pork, bacon and ham from the UK, worth an estimated £1.4 billion in real terms. Clearly, this trade is much more significant to the farming industry in Great Britain than the live export trade.

I also reassure noble Lords that there are not, and never have been, significant imports for slaughter or fattening into Great Britain, and there is no established import trade for this purpose that in any way constitutes a comparable trade to the previous live export trade. According to Animal and Plant Health Agency data on imports to Great Britain from the Republic of Ireland, since the beginning of 2021 around 1,800 pigs and 500 cattle have been imported for fattening and around 900 cattle imported for slaughter. The total number of livestock imports into Great Britain for fattening and slaughter from other EU countries is smaller still, in the tens of animals or less over the same period. In stark contrast, 44,500 sheep were exported for slaughter or fattening from Great Britain to the EU in 2020.

Further to this, the very low numbers of livestock imported into Great Britain all come from EU member states, primarily the Republic of Ireland. This means that animals are reared in conditions that are comparable to the animal welfare standards that apply in Great Britain, and we do not foresee any reason why this would change.

The noble Baroness, Lady McIntosh, raised a number of issues—I will cover one or two of those. The first is the issue of Northern Ireland being used as a loophole by transporters. The requirements when transporting livestock to Northern Ireland would make any attempt to export livestock in this way uneconomic. Livestock transported for slaughter from Great Britain to Northern Ireland must go directly to the slaughterhouse: it is an offence to move the animals anywhere else. On arrival at the slaughterhouse, the animals and accompanying health certificates must be presented to an officer of the Department of Agriculture, Environment and Rural Affairs. Livestock exported for any other purpose must remain at the place of destination for a minimum of 30 days and be retagged to comply with animal identification requirements. The Bill will make it an offence for anyone to send, or attempt to send, livestock from Great Britain to anywhere outside the UK and Crown dependencies.

The noble Baroness also raised the issue of border control posts, particularly those going into Europe. The Government would like to see exports for breeding resume, but this is a commercial issue. We remain sympathetic to the concerns of the businesses involved and the department has been active in doing what it can to support a satisfactory outcome. Defra officials continue to track progress on this issue and meet regularly with the National Farmers’ Union, which represents the wider industry. It is disappointing that, despite all efforts, the companies that are seeking to identify an appropriate solution have not been successful in securing a border control post to serve their preferred routes. I did pick up on the noble Baroness’s point about Harwich to the Hook of Holland, and perhaps we can take that as a separate issue outside today’s business.

The noble Baroness, Lady Hayman, raised the issue of trade deals and welfare standards around that. On low-welfare imports, the UK Government were elected on a manifesto commitment that, in all our trade negotiations, we will not compromise on our high animal welfare and food standards. We will stand firm in trade negotiations to make sure that any new trade deals live up to the values of farmers and consumers across the United Kingdom and will maintain our high standards as part of any future free trade agreements.

Products imported into the UK must continue to comply with our existing import requirements. It has always been the case that products produced to different environmental and animal welfare standards can be placed on the UK market if they comply with these requirements, and this includes products from the EU and other long-standing trading partners. A range of government departments, agencies and bodies continue to ensure that these standards are being met, including the Food Standards Agency, Food Standards Scotland, the Animal and Plant Health Agency, the Veterinary Medicines Directorate and the Health and Safety Executive.

[Baroness McIntosh of Pickering (Con)]

I do not disagree at all with what my noble friend is saying, but the Government must see that we are harming our own producers in the same way that we did when we had the unilateral ban on sow stalls and tethers. Consumers need a label to let them know in this regard.

[Lord Douglas-Miller (Con)]

I thank my noble friend for her point, and perhaps I can clear that up with her later on.

In conclusion, this Bill will put a permanent end to a trade which, at its height in the 1990s, affected over 2 million animals a year; more recently it has impacted much smaller numbers. I can safely say there will be a minimal impact on farming in Great Britain and I think we all agree it is better that we encourage exports on the hook, rather than on the hoof.

It is an important point, and one of which we should be proud, that this Bill will reinforce our farming industry’s position as a world leader on animal welfare, boosting the value of British meat and helping to grow the economy. Given that the impact of the Bill on farming in Great Britain is outlined clearly in our impact assessment, I continue respectfully to hold the view that it is not necessary to add this further requirement to it. I therefore ask the noble Baroness to withdraw her amendment.