Animal Welfare (Livestock Exports) Bill

Baroness Hodgson of Abinger Excerpts

Report stage
Wednesday 8th May 2024 Lords Chamber

[Lord Trees (CB)]

My Lords, in line with the noble Baroness’s comments, I have a lot of empathy with this amendment and indeed the later amendment from the noble Baroness, Lady Bakewell. If they had been incorporated originally, that would have been perfectly reasonable, but alas, they are not in the Bill. This is a very important Bill and to send it back to the Commons would, as has been mentioned, seriously risk losing it. As it stands, it is an important Bill for the improvement of animal welfare. We have had a lot of animal welfare legislation in the last 10 years, but this is one of the more important examples. The noble Baroness, Lady Fookes, has waited 50 years for it, as she told us on her birthday at Second Reading. Regrettably, I say to my noble friend that I cannot support the amendment.

[Baroness Hodgson of Abinger (Con)]

My Lords, I begin by congratulating the noble Lord, Lord de Clifford, on his first amendment. I, like the previous two speakers, would ideally have liked to see this in the Bill at the beginning. I have not been campaigning for as long as my noble friend Lady Fookes, but I have been campaigning to get this ban in place for a number of years—from the time when I sat on the Farm Animal Welfare Council, which I think started in the 1990s.

I am keen to make sure that there is no excuse not to get this on to the statute book. My noble friend Lady Fookes and I tried to get it into the Agriculture Bill a few years ago. We were told, “Please don’t do it”, but we promised to bring it back in another form, and here it is. I can only echo the words of my noble friend and the noble Lord, Lord Trees: yes, ideally, it would be good to have this, but let us not hold up the Bill. Please let us ensure that it gets on to the statute book so that animals can no longer be exported for slaughter or fattening.

[Baroness Hayman of Ullock (Lab)]

My Lords, I thank the noble Lord, Lord de Clifford, for tabling and introducing this amendment; I was very pleased to help him with it and to support it. Although, as other noble Lords have said, the priority is to get the Bill through and on to the statute book, and we do not want to hold it up in any way, it was disappointing that the Government did not pick up this amendment following Committee. It would be a sensible, practical amendment, just to future-proof the Bill. It is not as if the amendment specifies certain animals; it would leave it open to a future Secretary of State to determine whether a particular breed of animal—rabbits, for example, were mentioned—should be brought into the scope of the Bill in future.

Unfortunately, as it stands, there cannot be any extension of species. As the noble Baroness said, ideally, we would have supported enabling that to happen in the future. I do not think any of us would want to see other species suffering what can happen during long-distance live transports. There is plenty of evidence from the RSPCA and others of the harm this causes animals, and plenty of evidence showing that, when we think they are being transported a certain distance, they are then picked up and transported much further. So, that is disappointing.

Having said that, I agree that the priority is to get the Bill on to the statute book. We strongly support it and I pay tribute to those noble Lords—the noble Baroness, Lady Fookes, for example—who have been campaigning for years to get this done; it is something I have been campaigning for myself for many years. So, despite being disappointed that this amendment has not been picked up by the Government, and thanking the noble Lord, Lord de Clifford, again for bringing it back for further discussion, I think that our priority is to support the Bill as it stands and to get it on to the statute book.

Animal Welfare (Livestock Exports) Bill

Baroness Hodgson of Abinger Excerpts

2nd reading
Wednesday 21st February 2024 Lords Chamber

[Baroness Hodgson of Abinger (Con)]

My Lords, I thank my noble friend the Minister for his excellent introduction to this much-awaited Bill. I warmly welcome him to his new ministerial role. I hope the Bill will progress quickly through this House, based on the cross-party support it received in the other place and the broad number of animal welfare organisations that have welcomed it. I recognise that many noble Lords in this Chamber have a deep knowledge of agriculture and animal welfare, but I declare my interests as director of a company that owns a little farming land, and as a member of the Rural Economy Select Committee in 2019, and of the Farm Animal Welfare Council some time ago.

It will come as no surprise to the Minister that I support the Bill, following the amendments I tabled to the Agriculture Bill on this exact topic back in 2020. I argued then that we have a moral responsibility, be it as farmers or end-user consumers, to recognise that animals are sentient beings. We should seek to encourage and support the industry in raising and slaughtering them in the kindest, most humane way possible.

I do not propose to run through all the reasons why the Bill is much needed—others have done that—but we should remember that not all countries in Europe have the same attention to detail on welfare provisions as we do. I understand that some animals are even being re-exported to the Middle East. The long journeys caused intolerable stress, injury and exhaustion, and the case studies we heard were harrowing. Once animals leave our shores, there is no control over how they are kept or slaughtered. Thus, it is important that we stop this practice once and for all.

Although I understand that almost no animals go abroad for slaughter at present, we should not forget that in 2019 around 35,000 sheep and calves were being exported to the EU from the UK. Although this trade has stopped, there is no guarantee that there will not be future demand. Therefore, it is important to get the Bill on to the statute book. It is another step alongside a raft of other measures that are part of the reason why, under a Conservative Government, the UK is joint top of the animal protection index.

While we are considering journey times, I hope your Lordships will forgive me if I also raise slaughterhouses in this context, as the noble Lord, Lord Trees, has done. I hope we all agree that, in welfare terms, animals need to be slaughtered at the nearest point to production, as my noble friend Lady Fookes stated. I am pleased that the Bill will help ensure that our animals are slaughtered domestically to our higher welfare standards.

However, EU regulations caused many small slaughter- houses to close. Numbers fell from around 1,000 in 1985 to 285 by 2006, with around 10 large companies slaughtering the majority of animals. This has caused longer travel times for the animals regionally. I ask my noble friend the Minister to take this opportunity to update us on the work of the small abattoirs working group, and the trials of the mobile abattoir project to test the use of a compact system for on-farm slaughter of livestock, which started in 2021, as referenced in the government response to the EFRA Select Committee report Moving Animals Across Borders. Of course, small abattoirs must be commercially viable businesses as well as custodians of the highest welfare standards. I await the Minister’s comments with interest.

As a party, we have previously made manifesto commitments not to compromise our food, environmental and animal welfare standards as part of any future trade deals. Allowing in food not raised to the standards we demand in the UK not only undercuts our farmers but encourages poor animal welfare standards in other countries. Last year, my noble friend Lord Benyon stated that imports to the UK for slaughter and fattening were low. Will the Minister undertake to keep this number under review in case we need to address this issue in the future? I do not propose that we hold up the Bill by seeking to add in this issue, but I insist that it is part of the continued wider conversation and aspiration to address.

In short, I welcome and support this Bill and remind your Lordships that “agriculture is a fundamental source of national prosperity”, not to mention food security, in a time when the world seems so increasingly volatile.

Animals (Low-Welfare Activities Abroad) Bill

Baroness Hodgson of Abinger Excerpts

2nd reading
Friday 14th July 2023 Lords Chamber

[Baroness Hodgson of Abinger (Con)]

My Lords, I stand to speak in support of this Private Member’s Bill and to congratulate Angela Richardson MP in the other place and my noble friend Lord Black on ensuring its introduction and safe passage through Parliament. I am delighted to support the Bill, which will ban the promotion and sale of activities abroad where animals are ill treated and harmed for tourism.

Charles Darwin wrote:

“The love for all living creatures is the most noble attribute of man”.


I am a pet owner and feel strongly that we should ensure that animals in our care are treated with kindness. Like my noble friend, I believe that animal welfare is one of the litmus tests of a civilised society, and I hope others agree that it is intolerable that animals should be subjected to trauma, fear and pain.

As has already been highlighted, the scale of animal cruelty in wildlife tourism cannot be overestimated. More than 500,000 animals are currently known to be involved in tourist entertainment in low-welfare establishments where cruel and inhumane training methods are often used to force animals into submission. World Animal Protection’s 2016 report found that three in four wildlife tourist attractions involve some form of conservation concern or animal abuse. These ratings were based on animals’ ability to experience five freedoms that we take for granted: freedom from hunger and thirst; freedom from discomfort; freedom from pain, injury and disease; freedom from fear and distress; and freedom to behave normally. We should not and must not stand by.

This legislation will prevent UK travel companies profiting from and fuelling the problem. While I understand that there has been guidance from the Association of British Travel Agents, it is only voluntary and has not been taken up widely enough. We need to ensure that tourists are informed so that they choose not to buy holidays involving animals that have been treated cruelly. While I am proud that this country has one of the highest animal welfare records in the world, and I was pleased to read the cross-party and government support this Bill had as it passed through the other place, we must not be complacent. Exploitation and unethical methods of training should not be used to force animals into submission.

Like my noble friend, I was sent horrific and sickening photos by organisations lobbying for the Bill. My noble friend described how Asian elephants, in particular, suffer from extreme cruelty. They are often snatched in the wild, with their mothers killed in front of them, and then their spirit is broken by isolation, starvation, stabbings and beatings to make them easy to use for tourism. The captive trade in primates is threatening some species with extinction, all for an Instagram cuddle. Many big cats in captivity, such as tigers, lions and leopards, may have been deliberately separated from their mothers just days after being born, depriving them of the nutritious milk necessary for their growth and development, as well as maternal care. As we heard, when they become too dangerous to handle, they are often killed or sold. Many lions in South Africa cuddled by paying tourists when they were cubs may end up being shot by paying trophy hunters. There are around 3,500 whales and dolphins languishing in small concrete tanks around the world, deprived of their natural habitat.

It is not just the horrific treatment of the animals involved in tourist entertainment. We also need to consider the wider risks that low welfare standards bring. For example, Save the Asian Elephants research reports that the number of Asian elephants engaged in tourism in Thailand has increased by 70% in recent years, yet the global population has crashed from millions in the 19th century to barely 40,000 today, with an estimated 40% of them in captivity. Asian elephants are now considered an endangered series, and there are wider biodiversity, ecosystem and environmental impacts as the megagardeners of the forests are being enslaved. Unethical tourism has contributed to too many species suffering dramatic decline.

Before I finish, I too pay tribute to my noble friend Lady Fookes, who has spoken so often and is such a powerful advocate for animal welfare. We hope to see her back in the House soon.

To conclude, UK travel companies should not sell wildlife holidays that involve animal cruelty, and we should encourage other nations to do likewise. As it is so powerful, I beg the indulgence of the House to use Mahatma Gandhi’s quote again:

“The greatness of a nation and its moral progress can be judged by the way its animals are treated”.


I support the Bill and wish it a speedy passage through our House.

Live Animals: Export Ban

Baroness Hodgson of Abinger Excerpts

Monday 10th July 2023 Lords Chamber

Asked by

[Baroness Hodgson of Abinger]

To ask His Majesty’s Government whether they are going to ban the export of live animals for slaughter and fattening.

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

My Lords, the Government recognise the long-standing public concern about livestock and horses being exported for slaughter and fattening. We are determined to deliver our manifesto commitment to end this trade. There have been no live exports for slaughter or fattening since 2020 and we want to make this permanent. We will be taking this forward during the remainder of this Parliament.

[Baroness Hodgson of Abinger (Con)]

I thank my noble friend for his Answer. Although almost no animals are being shipped abroad at the moment, this does not mean that the trade cannot be restarted, so I am very glad to hear that the Government will stick to their manifesto commitment. What will the timing be for the Bill? Please can my noble friend assure us that enough time will be given by the Government to get it through before the next general election?

[Lord Benyon (Con)]

I can assure my noble friend that this is a priority under Our Action Plan for Animal Welfare and that we will bring it forward in this Parliament. We want to make sure that, as she says, we stop the infrastructure that supports this trade. As I say, there have been no cases of animals transported for slaughter or fattening since 2021 and we want to make sure that we make that permanent.

Veterinary Personnel

Baroness Hodgson of Abinger Excerpts

Wednesday 23rd March 2022 Lords Chamber

[Lord Benyon (Con)]

We already have new vets coming into the profession from the University of Surrey scheme, which was brought in a few years ago. Since then, we have new schools appearing at Harper Adams and Keele, the University of Central Lancashire and the Scottish royal colleges, and a collaboration between Aberystwyth University and the Royal Veterinary College. This will bring on stream new vets, trained in this country, to work here, alongside other measures we are bringing in to resolve the shorter-term problems that the noble Lord identified.

[Baroness Hodgson of Abinger (Con)]

My Lords, have the Government considered some of the allied professions, such as chiropractic, osteopathy and physio- therapy, for the treatment of musculoskeletal problems in animals, especially horses and dogs? All of these professions are well qualified, evidence-based and self-regulated, and this would enormously ease the pressure on veterinary practices.

[Lord Benyon (Con)]

Some of the practices that my noble friend raises certainly have an impact on animal welfare and dealing with animal illnesses. But the most important thing is that we get more trained professionals in the veterinary profession, which is what the Government are seeking to do, by a range of measures.

Animal Welfare (Sentience) Bill [HL]

Baroness Hodgson of Abinger Excerpts

2nd reading
Wednesday 16th June 2021 Lords Chamber

[Baroness Hodgson of Abinger (Con)]

My Lords, I thank my noble friend the Minister for introducing this much-awaited Bill, the first in this Session in a package around animal welfare—an important collection of legislation. There is much to welcome, and I am sure that your Lordships will agree that it is vital that we get it right. Mahatma Gandhi acutely observed:

“The greatness of a nation and its moral progress can be judged by the way its animals are treated.”


This is also a topic that the general public take much interest in.

I declare my interests: I am the director of a company that owns some farmland, and I served on the Rural Economy Committee recently and on the Farm Animal Welfare Council some time ago. On a personal level, I have and have had a number of family pets and would describe myself as a passionate animal lover.

Much has already been said about what sentience is or is not, both today and in past debates in this House. For me, the definition of animals’ sentience should include both the emotional and physical and enable them to be treated humanely. This has long been encapsulated by the five freedoms originally developed by the Farm Animal Welfare Council: freedom from hunger and thirst; freedom from discomfort; freedom from pain, injury or disease; freedom to express normal behaviour; and freedom from fear and distress.

In government and trade terms, the important thing is that the Bill separates sentient beings from inanimate objects and ensures that adequate provisions are made to respect and treat sentient beings appropriately. Our knowledge of the sentience of different animals, birds and living creatures continues to grow, so it is important that the Bill allows future extensions of the definition to be incorporated without having to pass more primary legislation. I await with interest the Government’s review into the sentience of decapod crustaceans and cephalopods, and I welcome the ability of the secondary legislation powers in the Bill to look at this in detail.

The noble Baroness, Lady Young, has already mentioned the spellbinding and very moving documentary “My Octopus Teacher”—I also thoroughly recommend it if noble Lords have not seen it—where the scientist Craig Foster forms a bond with a young octopus in a South Africa kelp forest. It describes how the octopus provided a lesson on the fragility of life and humanity’s connection with nature. It shows without doubt that an octopus can form a relationship—and I too recommend a box of tissues for the end.

I am pleased that the Bill covers all animals, including wildlife, but, clearly, consideration has to be proportionate. Balancing welfare and health issues, such as in the case of infestations of rats or mice in one’s home, can be a difficult dilemma; similarly where rabbits or other animals are stealing food crops or vegetables or where deer need to be culled for their own benefit. However, I would always argue that every being should be treated as compassionately as possible, whatever the circumstances.

As I mentioned, I did several terms of office on the Farm Animal Welfare Council, which was rolled into what is now the Animal Welfare Committee, with an expanded role to advise the Government on not only farmed animals but companion animals and kept wild animals. I wonder how the setting up of the animal sentience committee will affect the work of the AWC: will it not sometimes replicate its work, and what happens if they do not agree?

Perhaps my noble friend the Minister can explain the thinking behind this newly formed animal sentience committee and how it will work in a complementary manner with the AWC and co-ordinate with other such committees, such as the Animal Wellness and Welfare Committee, which cover similar remits. Of course, the effectiveness of the ASC will largely be dependent on its make-up and how it works in practice. I agree that it should comprise independent members, with an appropriate range of expertise, experience and perspectives. It also important that it includes someone not professionally involved, and lays a report before Parliament each year.

The Government have promised us more detail in guidance; will my noble friend the Minister undertake to have a draft of that guidance published so that we can consider it alongside the Committee stage of the Bill? I am sure that this guidance will clarify many issues, including the following ones. How will the committee cope with monitoring existing policies in addition to the new ones? What resources will it be given? How will it be ensured that the committee looks across all departments? Will Ministers have a duty to notify the ASC of areas of policy formation? Will its remit extend to advising the trade and agriculture commission? Does the Minister expect the ASC to comment on the merits of a decision being made or to make recommendations for improvements during the policy formation process?

Charles Darwin once said:

“The love for all living creatures is the most noble attribute of man.”


I welcome the Bill and the opportunities that it affords.

Agriculture Bill

Baroness Hodgson of Abinger Excerpts

Report stage & Report: 3rd sitting (Hansard) & Report: 3rd sitting (Hansard): House of Lords
Tuesday 22nd September 2020 Lords Chamber

[The Deputy Speaker (Lord Duncan of Springbank) (Con)]

I have received no requests to speak after the Minister, so I call the noble Baroness, Lady Hodgson of Abinger.

[Baroness Hodgson of Abinger (Con) [V]]

My Lords, I thank noble Lords who have supported the amendment and spoken in its favour, and I thank the Minister for her considered reply.

Sentience is particularly important in the context of farm animals because of the trade in farm animals. They need to be seen as living, sentient beings, not as inanimate goods in the context of being traded. I agree that a limitation of the amendment is that sentience covers only farm animals, and clearly we want to see sentience brought in as a consideration for all animals.

I am concerned by the Minister’s statement that there will be new laws on animal sentience when there is time, as I feel that this is somewhat kicking it into the long grass, but I am glad to hear that priority will be given. At some point I would like to hear further when this will be, because it is so important that all animals, and farm animals in particular, are considered as sentient beings that feel pain and suffering.

For now, I beg leave to withdraw the amendment, but I would like to hear more from my noble friend and may consider bringing it back at the final stage.

Amendment 74 withdrawn.

--- Later in debate ---

[Baroness Henig (Lab)]

I am delighted to follow the noble Baroness, Lady McIntosh of Pickering. I put my name to Amendment 97 and support other amendments in this group because, while I supported the establishment of the Government’s current Trade and Agriculture Commission, I wanted it to be set up on a more permanent basis, rather than simply operate as a six-month ad hoc body. Again, I am listed twice in this group. I am not sure whether this is good or bad, or what somebody is trying to tell me, but “I shall say this only once”. I will, hopefully, be reasonably brief.

I agree 100% with the noble Earl, Lord Caithness, who said in Committee that a Trade and Agriculture Commission should be established on a permanent basis, that it should report to Parliament regularly and that

“it needs to have its advice acted upon by the Secretary of State.”—[Official Report, 28/7/20; col. 164.]

I very much welcome the considerable detail and structure, set out in Amendment 101, in the name of the noble Lord, Lord Curry of Kirkharle, regarding how such a commission would operate.

We heard in Committee that similar bodies exist in the United States, Australia and New Zealand, and that such an indispensable, independent voice, which mediates between farmers and consumer interests in their Governments, can advise on trade and agricultural matters and, indeed, on trade mandates and treaties. They have been found to be extremely useful. Why not, then, set up such a permanent body in the United Kingdom? I am only guessing, but perhaps this Government want to keep as much as possible of the decision-making in these areas in their own hands and veiled in secrecy. That is why such a committee, reporting to Parliament, needs to be written into the Bill, and I hope many noble Lords will support Amendment 101, if not Amendment 97. The reason why, in some ways, I prefer Amendment 101, now that I have seen it, is that it is a more comprehensive version of Amendment 97.

The noble Viscount, Lord Trenchard, talked about food standards in America. It so happens that I have just been reading Bill Bryson’s latest book, on the body, and he has done a lot or research on food standards in America and has gathered a lot of evidence. He describes how food problems and related illnesses in America derive from American food production—he describes it as a hidden epidemic. I have to say to noble Lords that his research into this area seemed, at least to me, to be more comprehensive than that of the noble Viscount. Of course, we may differ on that matter.

In conclusion, I hope noble Lords will resist putting forward superficial historical arguments to oppose these amendments. I gently remind the noble Lord, Lord Lilley, who I regret is not in his place, that one of the central threads of the Corn Law debates was the potential economic gain to be achieved by pursuing free-trade policies at a time when Britain was the workshop of the world and British workers, who were working incredibly long hours for very low wages, needed access to cheap food to keep going. I hope the noble Lord has not given us a vision of the future under this Government.

Perhaps the noble Lord also overlooked the fact that the present Government are actually sacrificing substantial economic benefits by leaving the EU —the destination, of course, I remind noble Lords, of 50% of British exports currently—in their purist pursuit of national sovereignty. This seems to me, as a modern historian, to be very different from the rational economic policies pursued by mid-19th century British Governments. As I might have said to a student in one of my seminars in a former life, “Debating skills, first rate; historical arguments, perhaps rather less impressive”.

[Baroness Hodgson of Abinger (Con) [V]]

I am delighted to follow the noble Baroness, Lady Henig. I support Amendment 97, so ably moved by my noble friend Lady McIntosh and supported by the noble Baronesses, Lady Ritchie and Lady Henig. I concur with the point my noble friend has already made regarding this amendment: we need fair competition and a level playing field. As we know, none of us, particularly farmers and those involved in food production, wants to be undermined by cheap imports of substandard produce and husbandry from other countries.

The announcement of the new Trade and Agriculture Commission under the Department for International Trade was timely during the previous stage of the Bill. The Minister stated that it will

“shape the future of trade and agricultural policy in our current negotiations and in those to come”.—[Official Report, 28/7/20; col. 198.]

It will also provide advice to help promote our agenda at the WTO and other international fora, including on international standards for animal welfare and environmental protection, and to advance and protect consumer interests and those of developing countries. I add my voice to the calls for this commission to be permanent and to have a legislative footing, rather than be a six-month flash in the pan. It must be both truly independent and accountable, and its recommendations must have weight and be given true consideration by the relevant Secretaries of State. I was also pleased to see that there is a specific working group looking at standards, including animal welfare standards.

In Committee, I mentioned the concerns surrounding stocking densities of meat products and the amount of antibiotics pumped into them to keep them healthy, not just in the US but in other parts of the world where we know even less about production methods. I hope the Minister will feel able to accept this amendment.

Agriculture Bill

Baroness Hodgson of Abinger Excerpts

Report stage & Report: 2nd sitting (Hansard) & Report: 2nd sitting (Hansard): House of Lords
Thursday 17th September 2020 Lords Chamber

Moved by

[Baroness Hodgson of Abinger]

71: After Clause 34, insert the following new Clause—
“Export of farmed animals for slaughter without prior stunning
(1) A person commits an offence if the person exports to any country outside the United Kingdom a farmed animal for slaughter without prior stunning within ten weeks of arrival at the place of destination.(2) A person commits an offence if the person arranges or facilitates the export to any country outside the United Kingdom of a farmed animal for slaughter without prior stunning within ten weeks of arrival at the place of destination.(3) Subsections (1) and (2) do not apply to the export of a farmed animal from Northern Ireland to the European Union.(4) A person commits an offence if the person transports, arranges or facilitates the transportation of a farmed animal from Great Britain to Northern Ireland for slaughter, unless the animal is to be slaughtered in Northern Ireland.(5) The Secretary of State must by regulations establish a certificate to be issued on export to certify that—(a) a farmed animal exported to any country outside the United Kingdom will be stunned before slaughter;(b) a farmed animal transported from Great Britain for slaughter in Northern Ireland will be slaughtered in Northern Ireland.(6) Regulations under subsection (5) are subject to affirmative resolution procedure.(7) A person guilty of an offence under subsection (1), (2) or (4) is liable on summary conviction—(a) in England and Wales to—(i) imprisonment for a term not exceeding 51 weeks;(ii) a fine; or(iii) both;(b) in Scotland to— (i) imprisonment for a term not exceeding 12 months;(ii) a fine not exceeding level 5 on the standard scale; or(iii) both.(8) In relation to an offence committed before section 281(5) of the Criminal Justice Act 2003 comes into force, the reference in subsection (7)(a) to 51 weeks is to be read as a reference to 6 months.”Member’s explanatory statement
This new Clause prohibits the export from Great Britain of farmed animals for slaughter without stunning. It provides that farmed animals transported from Great Britain to Northern Ireland for slaughter must be slaughtered in Northern Ireland.

[Baroness Hodgson of Abinger (Con)]

My Lords, I shall speak also in support of Amendments 72 and 73 in this group, which were tabled by my noble friend Lady Fookes. I remind noble Lords of my registered interests, which I highlighted in Committee.

All three amendments would enable us to put an end to much suffering incurred by thousands of animals when they are exported for slaughter or fattening. In their manifesto, the Government committed to end excessively long journeys for slaughter or fattening, so let us take this opportunity to deliver on that promise and put it in the Bill. Why wait? As I said in Committee, exporting animals for slaughter is simply a welfare insult. In this day and age there is no reason why they cannot travel on the hook rather than on the hoof.

I do not want to reiterate all the examples we discussed in Committee, but I remind your Lordships to look at the figures. The Animal and Plant Health Agency reported that around 40,000 animals were exported last year. Of those, around 30,000 were sheep, with only around half going to the continent. Some were transported all the way across Europe to countries that have a large onward trade to the Middle East. The long journeys are stressful for the animals and in some cases result in enormous suffering due to, for example, overcrowding, high summer temperatures and injuries received en route. On top of that, they can end up in fattening or slaughter systems that would be illegal in this country.

I believe that even in this country animals should be slaughtered at the closest point to production as a default option, and Amendment 73 addresses this. I understand that it is supported by the BVA. While I understand that various options in this area are being looked at, I point out that Amendment 73 would not come into effect until the end of January 2023, which gives us time to achieve that. As this was in our manifesto, surely the Bill is the right place to move this agenda forward and ensure that it happens.

Amendment 71 builds on the debate we had in Committee. In addition to Amendments 72 and 73, which focus on slaughter and fattening, and restricting journey times, it would specifically prohibit the export from Great Britain of farmed animals for slaughter without stunning. It provides that farmed animals transported from Great Britain to Northern Ireland for slaughter must be slaughtered in Northern Ireland and cannot be taken further afield before being killed.

In Committee the Minister stated:

“The Government encourage the highest standards of animal welfare. Although our policy is to prefer that animals are stunned prior to slaughter, we accept the rights of Jewish and Muslim communities to eat meat killed in accordance with their religious beliefs”.—[Official Report, 16/7/20; col. 1801.]


I emphasise that I too respect the needs of our multicultural society in the UK. If, as the Minister stated, it is our policy to prefer that animals are stunned prior to slaughter, as long as enough animals are killed in accordance for UK halal and kosher consumption, I see no reason for the Government not to accept this amendment regarding export.

Indeed, the RSPCA and Compassion in World Farming have highlighted that more animals than are needed are already killed without stunning for UK halal and kosher consumption so that they are more flexible for sale. Figures from the Food Standards Agency indicate that in 2018 more than 94 million cattle, sheep and poultry were slaughtered without stunning. In addition, a Food Standards Agency report last year highlighted that 90,000 of the 2.9 million non-stunned animals slaughtered for kosher-certified meat were rejected as unfit for religious consumption and went into the general market unlabelled. This needs to be addressed so that there is equality of choice and those who would choose not to eat meat from an animal killed without stunning can identify that meat.

The BVA states that there is evidence that non-stun slaughter is highly likely to cause pain, suffering and distress. More animals than are needed are currently killed without stunning for the UK market. I personally find the figures I stated shocking and believe that we should kill only as locally as possible and only what is needed in this way.

The amendment would not prevent UK communities eating meat killed in accordance with their religious beliefs. What it would do is prevent British animals having to undergo long, stressful journeys to be killed in a way highly likely to cause pain and distress. Surely one of the main reasons for leaving the EU was so that we could put in place laws that we feel are right. The litmus test of humanity in a country is how we treat the vulnerable, and animals are surely among the most vulnerable. This trade is just utterly cruel, and if the UK wishes to consider itself a country leading in animal welfare, it needs to stop such practices around the export of animals now. I beg to move.

[Baroness Fookes (Con)]

My Lords, I support my noble friend Lady Hodgson of Abinger most warmly. She has put the case on the various amendments powerfully, with great conviction and great compassion. I share her feelings and I hope this will not be lost on my noble friends on the Front Bench.

I do not want to add any more to what my noble friend said on her Amendment 71, except to point out that when the original exemption was made to allow religious communities with real scruples to have animals that have not been pre-stunned, it was never intended that they should be the subject of exports. I see no reason why unscrupulous traders should benefit from this so that they can send animals away to where pre-stunning is not so common. This ought to be dealt with very quickly indeed.

The amendment standing in my name and supported by my noble friend is a reintroduction of an amendment I brought forward in Committee to ban the export of live animals for slaughter or for fattening. This has been a gripe and a passion of mine for many years—in fact, since I was a young MP in the House of Commons. That shows you how long ago it was, because I am no longer the spring chicken—probably some people would regard me as an old boiler.

I feel very strongly on this issue, but I have concerns even about my own amendment, because we have had to include a provision permitting animals going to Northern Ireland freely to go into the Republic because of the withdrawal arrangement. This worries me enormously, because, once they are there, they can then be moved freely around all countries belonging to the European Union. Although there are supposedly welfare regulations which prevent them travelling for too long, they are weak and not enforced, so you might as well say they do not exist at all, because that is the plain fact of the matter. I worry that those who still want to send animals abroad will use this provision as a loophole.

I became more concerned about this only very recently. I did not know that the Port of Ramsgate, through which most animals currently exported go, tried to ban animals passing through it. The exporters took the port to court and unfortunately the court found for them and not for the port. That indicates the lengths to which they will go. Therefore, I am concerned about the possibility of animals being sent to Northern Ireland and the situation being almost worse than that which we have now. That is something on which I hope the Government will reflect carefully. I hope that they will be able to tell us that they will come forward with some arrangement, beyond my ken, which deals with this situation.

The other amendment standing in my name, again supported by my noble friend, would ration the hours which animals can spend in transport. I accept that this is a probing amendment. I am concerned about the hours for which animals travel, which came home to me in Committee, when I was horrified to learn of the extent to which animals travel within the United Kingdom. I had not quite appreciated that, so concerned had I been about animals going abroad. I saw this as an opportunity again to take up one of the manifesto commitments on ending excessively long hours for animals in transport. I remind my noble friends of that commitment.

I accept that this is a slightly strange way round of doing things. Normally, if a Government were going to introduce a measure such as this, they would get hold of the “stakeholders” beforehand—I think that is still the fashionable expression; that is, those whose livelihood depends on farming and transporting and who might be affected by any changes in the rules and regulations—and experts, such as vets and key farmers, who understand all the details of what it means to transport animals and can bring their expertise to bear. It is quite likely that one would want different hours for different types of animal. We know that calves are extremely sensitive to travel and feel it much more—they are also much more closely affected by temperature fluctuations. It also depends on the vehicles carrying them: whether they are good, bad or indifferent. My proposed new clause would permit distinctions to be made, and there is also a time lag. None the less, I recognise that this is the wrong way around, and I am sure that people can pick every manner of hole in the suggestions that I have made. However, my main concern is to ensure that the Government get on with this and bring forward really good arrangements.

I understand that the Farm Animal Welfare Committee has done a lot of detailed work on this issue, so I hope that we can pick up on that, in addition to the point already made by my noble friend, that the British Veterinary Association has it laid down as a cardinal principle that animals should be slaughtered or fattened as near as possible to where they were born or raised. I look to the Government this evening to bring forward some real progress.

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[The Deputy Speaker (Lord Russell of Liverpool) (CB)]

My Lords, I have had no requests to speak after the Minister, so I call the noble Baroness, Lady Hodgson.

[Baroness Hodgson of Abinger (Con)]

My Lords, I thank all noble Lords who contributed to this very important debate. I thank the Minister for his reply and also for the time and courtesy that he has given in talking to us before today. We really do welcome his sincere input.

I am glad to hear that this is work in progress, although I am concerned that it does not get kicked into the long grass and that it is always not now. I very much hope that the consultation will come forward quickly. We are leaving those animals to a terrible fate while we still allow them to be exported for slaughter—with or without stunning. We should be aware that, in doing this, we really are not ensuring the highest standards of animal welfare, as we have heard.

That brings to mind the saying popularised by General Morrison of the Australian army:

“The standard you walk past is the standard you accept.”


This is a standard that I would feel very uncomfortable accepting, so I hope we will move forward quickly with all this work.

I beg leave to withdraw the amendment in good faith that the Minister will do all he can to ensure that animals do not go on having to be exported for slaughter and fattening. I hope this comes into place as soon as possible and we live up to our election manifesto.

Amendment 71 withdrawn.

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Moved by

[Baroness Hodgson of Abinger]

74: After Clause 34, insert the following new Clause—
“Welfare of animals as sentient beings
(1) Ministers of the Crown and local authorities must, when formulating and implementing any relevant policy, have regard to the welfare requirements of animals as sentient beings.(2) The Secretary of State must lay before Parliament an annual report explaining how the duty in subsection (1) has been discharged.(3) For the purposes of this section—(a) “animals” are any non-human vertebrates, any member of the Class Cephalopoda and any member of the Order Decapoda;(b) “IP completion day” has the same meaning as in section 39 of the European Union (Withdrawal Agreement) Act 2020;(c) “local authorities” has the same meaning as in the Localism Act 2011;(d) “Ministers of the Crown” has the same meaning as in the Ministers of the Crown Act 1975; (e) “relevant policy” is an agricultural, horticultural or forestry policy relating to the treatment of, or taking action in relation to, animals or their habitats.”Member’s explanatory statement
This new Clause incorporates into UK law the principles of Article 13 of the Treaty on the Functioning of the European Union which recognises animals as sentient beings and requires governments to pay full regard to the welfare requirements of animals in formulating and implementing agricultural, horticultural or forestry policies.

[Baroness Hodgson of Abinger (Con)]

My Lords, I believe that animals are sentient beings and that they feel pain, suffering and fear, as well as pleasure. This amendment seeks to incorporate into UK law the principles of Article 13 of the Treaty on the Functioning of the European Union, which recognises animals as sentient beings and requires Governments to pay full regard to the welfare requirements of animals in formulating and implementing agricultural, horticultural or forestry policies.

Noble Lords will be aware of much debate over this issue during the process of the EU repeal Bill. Since then, one draft Bill has been withdrawn following criticism from the then EFRA Committee and a second new draft Bill has been promised but has not been forthcoming. At the end of last year, a petition closed having secured over 100,000 signatures, backed by 40 NGOs and charities under the A Better Deal for Animals campaign, demanding that sentience legislation be brought forward immediately to protect animal welfare as we leave the EU.

I am proud of the high-level political support that animal welfare issues have in our country. In one of his first speeches as Prime Minister, Boris Johnson said:

“let’s promote the welfare of animals that has always been so close to the hearts of the British people.”

In a letter from the then Secretary of State, Michael Gove MP, to Sir Roger Gale MP, patron of the Conservative Animal Welfare Foundation, in March 2019, the Minister said that we will make

“any necessary changes required to UK law in a rigorous and comprehensive way to ensure that animal sentience is recognised after we leave the EU.”

In March this year, responding to the Westminster Hall debate in the other place on the aforementioned petition, the Minister, Victoria Prentis MP, said that

“the Government have committed to introducing new laws on sentience … We had an extremely clear manifesto commitment to do that, and I confirm that we will do so as soon as we can, but I am sadly unable to say exactly when that will be.”

The Minister also said, with reference to a number of concerns about Article 13:

“Frankly, it does not provide the sort of protection for animals that we want going forward.”—[Official Report, Commons, 16/3/20; cols. 233-34WH.]

It is only three months until the end of the transition period. We do not want a gap in the statute book on this issue. If the Government are not happy with Article 13 as it currently stands, could the Minister inform the House when they will be bringing forward their own proposals? Will it be in time, before we leave the EU? If not, I am not persuaded that having nothing is better, and I hope they are willing to accept this amendment as an interim measure until they come forward with their own proposals. I beg to move.

Agriculture Bill

Baroness Hodgson of Abinger Excerpts

Committee stage & Committee: 7th sitting (Hansard) & Committee: 7th sitting (Hansard): House of Lords
Tuesday 28th July 2020 Lords Chamber

This proposed commission is not a regulator; it will not spawn a bureaucracy or have a veto over trade deals. However, it would ensure that, against a backdrop of anxiety about producers being undercut by diminished standards, Parliament would have a voice. Surely, that would give real substance to “taking back control”?

[Baroness Hodgson of Abinger (Con) [V]]

I am pleased to follow the noble and learned Lord, Lord Wallace, and will speak to Amendment 271 in my name, ably spoken to by the noble Lord, Lord Grantchester, and also in the names of the noble Lord, Lord Cameron, and the noble Baroness, Lady Bakewell. We represent many sides of the House.

However, before doing so, I add my voice to those thanking my noble friend the Minister for his courtesy and patience through this long marathon of a Committee stage. I also thank the Public Bill Office and Government Whips’ Office for all their hard work. I know they have spent many hours making sure that we could debate this.

As others have stated, the Bill gives us the chance to ensure that we support our farmers by not allowing products into this country that have not been raised to the same standards that we insist on here. It is blatantly wrong to insist on standards for our farmers and then to let in food not raised in that way that undercuts our domestic production.

At Second Reading, I was struck by my noble friend the Minister, for whom I have enormous respect, talking as though all is in order now. The fact is that, at the moment, we are letting in food not raised to the same standards. As others have observed, the Conservative Party 2019 manifesto contains an important commitment:

“In all of our trade negotiations, we will not compromise on our high environmental protection, animal welfare and food standards.”


This is particularly important in the case of meat, where we not only undercut our own farmers but at times encourage poor welfare standards in other countries by buying their products. If we believe in good welfare standards—and there is a real moral case for this—we should not be turning a blind eye to what is going on in other parts of the world.

There has been a lot of publicity about chlorinated chicken, but the more concerning issues are the stocking densities and the amount of antibiotics pumped into them to keep them healthy. Of course, it is not just chickens from the US but those from other parts of the world, where we know even less about the quality of the production systems.

I gather that some of the Government’s opposition to this proposed new clause hinges on the UK’s lack of ability to produce enough to answer demand. In the case of chicken, this mainly revolves around the fact that British people like to eat breast meat rather than the dark meat. If more dark meat was eaten, we could probably more or less answer our domestic needs.

However, surely we need to tell those countries that want to export to us that we require a certain standard of welfare in their food production. During this time of Covid, we have realised how important it is to produce our own food, and our farmers have continued to work throughout. Surely, we should be looking after our farmers and encouraging more production in this country?

Others have commented on the new Trade and Agriculture Commission and I do not propose to do so too. All I will say is that sometimes commissions can be a way of kicking issues into the long grass. This issue really needs addressing because, as others have stated, it has such enormous public support. In a recent poll, over four-fifths of people—81%—said that they think the Government should block food imports that do not meet the UK’s environmental and animal welfare standards, even if this could mean that consumers miss out on lower food prices. Please let us take this opportunity, not only to support our farmers but to ensure that, if we believe in welfare standards, we stop importing food that does not meet them.

[Lord Krebs (CB) [V]]

My Lords, it is a great pleasure to speak in support of Amendment 270 in the name of the noble Baroness, Lady McIntosh of Pickering, which I have also signed. I also support other amendments in this group with a similar intent.

In their joint letter to MPs and Peers dated 5 June 2020, the Secretary of State for International Trade, the right honourable Elizabeth Truss, and the Secretary of State for Environment, Food and Rural Affairs, the right honourable George Eustice, stated that, in all their trade negotiations, the Government

“will not compromise on our high environmental protection, animal welfare and food standards”.

However, when asked in a House of Lords debate about trade deals that could allow imports farmed to less rigorous standards, the noble Lord, Lord Agnew of Oulton, Minister of State at the Cabinet Office and Treasury, stated that

“there has to be a balance between keeping food affordable for people ... to ensure that they are able to eat healthily, while not undermining in any way the quality of the food we eat.”—[Official Report, 6/5/20; col. 520.]

This second statement seems to leave wiggle room, so what is the Government’s position?

As the noble Lord, Lord Hain, and other noble Lords, said, the Government are unwilling to make a legally binding commitment to not dilute standards of imported food. As my noble friends Lord Curry of Kirkharle and Lord Cameron of Dillington, and many other noble Lords, said, the Trade and Agriculture Commission will not have enough teeth or last long enough to do the job that is needed. I also note that it has no consumer representative among its members.

My concern is this: assuming that the Government do allow food produced to lower standards to be imported—which I think is inevitable—who will end up eating it? The boss of Waitrose has already said that his stores will not sell food produced to lower standards, such as chlorinated chicken. It is very likely that other supermarkets will follow Waitrose’s lead. The same will be true of the major restaurant chains, which will wish to protect their brands. So where is the lower-standard food most likely to end up? It will probably be in the small, low-end independent restaurants and in fast-food takeaways such as fried chicken shops. It will primarily be eaten by less well-off consumers. I therefore ask the Minister to unequivocally state that the Government will not allow a two-tier food system to develop in this country in which poor people eat poorer quality food produced to lower standards.

Agriculture Bill

Baroness Hodgson of Abinger Excerpts

Committee stage & Committee: 6th sitting (Hansard) & Committee: 6th sitting (Hansard): House of Lords
Thursday 23rd July 2020 Lords Chamber

I feel I should be kicking at a door already pretty well open. In 2019 the manifesto of the Conservative Party—now in government—indicated that it wanted to end what it described as the “cruel” treatment of animals having to go abroad. It also said it wished to “end excessively long journeys” suffered by many animals. I gather that the Prime Minister endorsed this approach during Questions on 10 June this year. Interestingly, his father and fiancée are patrons of the Conservative Animal Welfare Foundation. One of its key aspects is the requirement that animal exports should be stopped. It makes me wonder why the Government have not included a similar amendment to mine in their own Agriculture Bill. I look forward with great interest to the contributions of other Members in this debate, in particular my noble friend’s reply. In the meantime, I beg to move.

[Baroness Hodgson of Abinger (Con) [V]]

My Lords, I speak to this amendment in my name, so ably led by my noble friend Lady Fookes. It enables us to put an end to much suffering incurred by thousands of animals over the years when they are exported for slaughter.

Animals have to endure many hours of transport to meet their end. While I understand that the EU has comparable slaughter regulations, not all countries oversee these with the rigour they should. A report in September 2016 by a committee of inquiry of the French Assemblée Nationale confirmed that there were serious welfare problems and breaches of EU law on welfare at slaughter in French abattoirs.

Exporting animals for slaughter is simply a welfare insult. As we have heard, the long journeys are stressful for the animals and in some cases result in enormous suffering due, for example, to overcrowding, high summer temperatures and animals receiving injury en route. As mentioned in debates on other amendments, animals should be slaughtered at the closest possible point to production. In this day and age, there is no reason why they cannot travel on the hook, rather than on the hoof.

Figures provided by the Animal and Plant Health Agency show that around 40,000 animals were exported last year. Of these, I understand that around 30,000 were sheep, with just over half going to the continent. These animals are mostly going to France, Belgium, the Netherlands and Germany, but some are going to Hungary and Bulgaria, which have a large onward trade to the Middle East, where slaughter conditions can be simply terrible.

The proposed new clause also bans export for fattening. APHA figures show that 3,446 calves were sent from Scotland on long journeys to Spain and Italy in 2017, to be fattened for beef and veal. I gather that a number of English calves have also been sent. Not only does scientific evidence indicate that young calves are not well adapted to cope with transport; they may end up being kept in systems that are illegal in the UK on welfare grounds. It is therefore important that the ban included fattening as well as slaughter. Otherwise, animals will be exported for fattening that will then result in slaughter.

There will be limited impact from this clause on British farming, because the numbers are small when compared with the UK herd size. As my noble friend has mentioned, banning exports for slaughter was in our Conservative manifesto. The Bill is the perfect place to bring in this provision. While I understand that there may be some work to make this happen, that is no reason to delay the legislation. This trade is cruel, and if the UK wishes to consider itself to be a country leading in animal welfare, it needs to act to stop such practices now. I therefore hope that the Government will use this opportunity to back a ban on live exports for slaughter and fattening, due to the extensive suffering that it causes, and accept the amendment or undertake to work to bring something similar forward at the next stage of the Bill.

[Lord Randall of Uxbridge (Con) [V]]

My Lords, I added my name to that of my noble friends Lady Fookes and Lady Hodgson of Abinger. I did so slightly warily because I was not convinced that the Bill is the measure in which we should be adding this provision, but I do not doubt the need for it. As we have heard, it was a commitment in the Conservative manifesto at the last election, and I admire the doggedness of my noble friend Lady Fookes in keeping on this subject for a long time. She has been incredibly patient, and it is time that we looked at this matter seriously. It is incredibly complex to legislate for this and is not quite as simple as it might seem, for a variety of reasons that I am sure the Minister will tell us.

However, as regards travel within the UK, I can remember—not as far back as 1973 but in 1979—travelling on the “Good Shepherd” between Shetland and Fair Isle, where sheep were being transported. It was stormy, and I remember that sheep are not good sailors on small boats. I will not go into the result, but it is not easy to transport animals.

Our worry is, as has been said, that while we are told that inspections take place once animals leave our shores, we have great doubts that that has been done properly. Onward transport, not just across the channel, but to Bulgaria and elsewhere, and then on to the Middle East is of concern. I should like the Minister in his reply to say exactly where we are with this.

I should also add that I cannot support Amendment 277 in this group. However appalling the production of foie gras is—I am no great fan— criminalising people who might have some in their luggage as they come across the channel is not the way forward. It should be more about education.