Sentencing (Cruelty to Pets)

Andy Slaughter Excerpts

Thursday 16th July 2015 Westminster Hall

[Andy Slaughter (Hammersmith) (Lab)]

It is a pleasure to be here under your chairmanship, Sir Roger. I congratulate the hon. Member for Sherwood (Mark Spencer) on securing the debate. He has been campaigning assiduously on this issue, and I am sure that his constituents are very grateful to him. I am sure that his cat, which I believe is called Parsnip, is also grateful for the effort he is making.

This is an important matter. Our inboxes this week show, I am sure, how interested the public are in animal welfare. I am sure that, like me, other hon. Members have had several hundred emails about the proposed revisions to the Hunting Act 2004. That confirms for me that we are a nation of animal lovers and that the British public care deeply about animal welfare.

The hon. Member for Sherwood raised the tragic case of a spate of cat poisonings in his constituency. In doing a little research, I found that that is certainly not restricted to his constituency—it is a regular occurrence. Just this year, more than 140 cats have been poisoned across the country. One of the other victims—the hon. Gentleman may know this but I did not until I looked into it—is my hon. Friend the Member for Hyndburn (Graham Jones), whose own cat, Jaffa, was poisoned and killed in the same way. I should make it clear, having spoken to my hon. Friend, that it is actually his partner’s cat, but I am sure that it is a loss to the whole family. The fact that several hon. Members have been victims, or at least have concerns about this issue, shows just how common it is becoming.

I worry about the level of animal cruelty. Looking at the Library’s debate pack, which cites some horrific cases, most of them very recent, makes one wonder about the mentality of people who can engage in such actions. Earlier this week, there was a story in the Evening Standard relating to my own constituency. It was about a cat that was thrown out of a car on to the Hammersmith flyover—extraordinary, one may think. There was a happy ending, as it was observed by staff of Notting Hill Housing, who risked their own safety to go out and rescue the cat, now called Bridget and now recovering in hospital, with only a grazed chin, I am told. But it was an extraordinary event, and these are not isolated events—they are very common. I still say that we are a nation of animal lovers, as the response of the public in that case shows, but many cats, dogs and other domestic animals—pets—are not as fortunate as Bridget and are often the victim of horrible treatment, whether through cruelty or negligence, at the hands of owners who end up abusing them.

In anticipation of the debate, I asked the Minister of State, Department for Environment, Food and Rural Affairs, a number of parliamentary questions. He confirmed that 752 people were found guilty in 2014 of causing, permitting or failing to prevent unnecessary suffering to animals, but only 76 of those—about 10%—received immediate custody, and I think only about half that number received a custodial sentence of more than three months.

It is clear that the public are increasingly concerned that some sentences do not appear to match the abuse suffered by the animal victims, especially in the case of extreme cruelty. We hear reports from reputable organisations such as the RSPCA, Cats Protection and the International Fund for Animal Welfare about serious neglect, cruelty and violence against animals every day. The Animal Welfare Act 2006 is an exemplary piece of Labour legislation, and I believe we can all sign up to it because it advances the cause of animal welfare. We have some of the best animal welfare legislation of anywhere in the world, but that is not to say that sentencing could not be addressed and improved.

The RSPCA states that, during the past five years, the maximum fine imposed on anyone who has been prosecuted under the 2006 Act was a fine of £15,000, which was £2,500 for each of six offences. In the RSPCA’s words, the courts

“increasingly take the position that unless someone can repay a fine and costs incurred within a reasonable period there is no point in imposing large fines. This suggests that the focus should be on prison sentences.”

We have to be slightly careful about saying that, because people might not be able to pay fines, prison is therefore the alternative. Let me suggest two or three alternative avenues that the Minister might like to look at. The hon. Member for Sherwood mentioned that the maximum sentence for some offences is set at 51 weeks. The Government had a change of heart during the progress of the Legal Aid, Sentencing and Punishment of Offenders Act 2012—I served in Committee—in relation to magistrates’ sentencing powers. The previous Labour Government introduced in the Criminal Justice Act 2003 the principle that a magistrate should have the power to impose a sentence of up to 12 months for a single offence. We did not activate that section, and the coalition Government proposed to repeal it but, wisely, had a change of heart. The Minister will correct me if I am wrong, but I believe that that section is still not in force. Giving magistrates the power to sentence people for longer on a single offence may be a route to allowing greater sentencing powers on some of the more serious animal welfare offences without making them either-way offences.

[Mark Spencer]

I am sorry to interrupt the hon. Gentleman, particularly when he is agreeing with me wholeheartedly, but I think the point is that whatever the maximum sentence is, it has never been implemented for a case of this nature. In one such case, someone had premeditatedly gone out, purchased bait—for want of a better word—and poison and distributed them far and wide. The fact that they received only a very small fine emphasises that some part of the system is not working.

[Andy Slaughter]

There are a number of elements to that, as the hon. Gentleman implies, one of which is the sentencing guidelines. Interestingly, there are sentencing guidelines for some animal cruelty offences and not for others. The advice from the Attorney-General, in answer to a parliamentary question, was that one should read across from those sentencing guidelines to offences for which there are no guidelines. For example, for section 7 offences, which cover poisoning, there are no specific sentencing guidelines, but one should look at guidelines in relation to, say, section 4 offences to see, first, whether existing guidelines are being followed—I am not sure that they are in every case—and, secondly, whether they should be strengthened in any way. That is a matter for the Sentencing Council. The Minister will no doubt want to deal with the use of existing sentencing powers and the question of whether there is any will in the Government to increase sentencing.

There is always danger inherent in the escalation of sentencing powers, not only because of the financial cost of prison places and so forth, but because if we begin to ratchet up sentences for one offence, there will be an immediate demand to do so for others. The Minister might want to look at repeat offending, however. By analogy, we proposed in the previous Parliament that driving while disqualified, which is a summary-only offence, should become an either-way offence with a maximum sentence of two years. Many animal welfare charities advocate a similar proposal for animal cruelty offences, which they think should carry a two-year maximum sentence.

The hon. Member for Sherwood is right that maximum sentences are rarely used. By definition, they are used only in the most serious cases. There is always a discount, usually of up to a third, for a guilty plea, which of course includes remission. Typically, even for a very serious offence with a guilty plea, the offender will receive a four-month sentence and will be out within two months. The only way in which the situation can be remedied, if Parliament’s will is for there to be longer sentences, is to increase the maximum. I am wary of sentence inflation, but in the case of repeat offending, there could be a reason for considering that proposal.

I used the analogy of driving while disqualified because to treat a first offence as a summary-only matter may well be perfectly reasonable. A small minority of people, however, repeatedly abuse the law by driving while disqualified again as soon as they get out of prison, knowing that the maximum that they are likely to get on a guilty plea is another two months inside. That might also apply to the sort of callous and sociopathic people who repeatedly commit serious offences against animals. The Minister might want to consider increasing magistrates’ sentencing powers, and to consider the selective use of either-way offences or the sentencing guidelines. I would be interested to see what he has to say on those matters.

In a similar debate in 2013, the Environment, Food and Rural Affairs Minister said:

“The Government deplore acts of animal cruelty and believe that offenders deserve the full force of the courts.”

He expressed his belief that the current legislation was “fit for purpose” and pointed out that judges had

“a great deal of discretion”—[Official Report, 15 October 2013; Vol. 568, c. 229-230WH.]

when it came to determining the appropriate sentence for individual cases. That might be what the hon. Member for Sherwood is complaining about—judges may use that discretion in the wrong way.

The Minister in that debate also noted that nobody had been given the maximum sentence available under the law, and that judges would be expected to explain why anyone convicted of animal cruelty offences was not subsequently disqualified from owning or keeping animals. That is an important point. The sentencing guidelines state, in bold type:

“Consider disqualification from ownership of animal”.

I believe that that power is too rarely invoked. I had some personal experience of the matter, because my godson’s young brother’s kitten was savaged and killed in his presence by a dog. The court returned the dog to the owner with a £280 fine, despite the fact that it was a serial offender—or rather, the owner was a serial offender at letting it get out and be abusive in such a way. The dog was being used, effectively, as a weapon, but in such a case or in the case of someone who repeatedly commits animal cruelty, I cannot for the life of me see why any court in its right mind would allow them to continue to keep an animal. I ask the Minister to address whether he feels that the judiciary have heeded his colleague’s words on section 4 and section 7. If not, does he intend to take any actions to encourage the toughening up of the law, or at least of the guidelines? Will he consider asking the Sentencing Council to look at it again?

I would also like the Minister to clarify his position on section 8 offences, which relate to animal fighting. As things stand, the maximum sentence is six months, but it is rarely handed out. Animal fighting offences are some of the most serious offences and there can be very little mitigation for matters such as organised dog fighting. Does the Minister feel that the law in that respect is sufficient, or will he consider reviewing the situation?

There are powers in the 2006 Act to impose deprivation and disqualification orders. Will the Minister commit to ensuring that guidance in that area is updated and republished to ensure that it is used better and more consistently? How can it be right for repeat offenders of animal cruelty, poisoning or fighting to get away without being disqualified from looking after animals and possibly mistreating them again?

I advise the Minister to read the Labour manifesto. His colleagues seem to be dipping into it from time to time, whether it is the Chancellor on minimum incomes or, this morning, the Lord Chancellor on better use of the court estate and amalgamating places where hearings should be held. On animal welfare, we said:

“We will build on our strong record on animal welfare—starting with an end to the Government’s ineffective and cruel badger cull. We will improve the protection of dogs and cats, ban wild animals in circuses, defend the hunting ban and deal with wildlife crime associated with shooting.”

We made six pledges, one of which was to improve the protection of dogs and cats. Our offer on animal welfare was very strong, and I hope the Government are prepared to work with us on achieving some of those aims.

Today we are discussing the protection of domestic pets, and too often we see inadequate dog breeding practices causing suffering to both the animal and its owner. More puppies are being bred than there are good homes available, and large-scale puppy farms and backstreet breeders operate in terrible conditions in which dogs are frequently sick or unsocialised.

[Julian Knight]

The hon. Gentleman has made some fine and balanced points in his interesting speech. On puppy farming, is not one of the points about sentencing and the treatment of offenders that there are major profits to be made for professional breeders and those involved in animal-related issues? He talked about a case that resulted in a £15,000 fine, which is equivalent to five or six puppies of a premium breed. With such potential profits to be made, is it not true that the available sentences and criminal sanctions are inadequate?

[Andy Slaughter]

Indeed, and the maximum £15,000 fine was for six separate offences. Most fines for individual offences are way below that level. I am not sure whether the maximum fine, which was increased to £20,000 by LASPO, is necessarily inadequate. It might just be that the courts are not imposing fines. Fines have to be proportionate, because it is pointless fining people who will never have the means to pay. We perhaps need to find an alternative such as community sentences. There can be no reason for not fining commercial enterprises, or people who are making profits from dog breeding, at or near the maximum.

The unlawful trafficking of puppies with little or no regard for their health means that many fall sick or die shortly after purchase, leaving their owners not only heartbroken but often lumbered with large vets’ bills. Such trafficking also results in unsocialised dogs that present a threat to humans and other animals. Dogs are effectively treated as mere commodities by the people who are selling them. There is ineffective regulation, a lack of information for pet owners and a failure to address irresponsible and cruel breeding practices. The coalition Government struggled with those issues, and I hope the new Government will make headway. If they do, they can count on our support.

We pledged to review the inadequate regulation of the sale and breeding of cats and dogs. Poor breeding and rearing practices contribute greatly to the number of abandoned animals in rescue centres, and tougher sentencing might play a part in stopping animals being abandoned. That will have a beneficial effect down the line, including for animal rescue centres, which do such a fantastic job. We urge the Government to build on the Animal Welfare Act and the strategy we proposed.

[Jim Shannon (Strangford) (DUP)]

In Northern Ireland, just last year, a sentence was handed out to a father and his sons for extreme cruelty to animals. The shock among the community was such that elected representatives such as me, and many others, sought for the case and the sentence to be reviewed. We sought a custodial sentence that reflected the severity of the cruelty. Unfortunately, the reply stated that the judge was unable to give the type of custodial sentence that should have been given because the law did not allow that to happen. What the hon. Gentleman is saying, and what I suspect every other hon. Member has said, is that that needs to be reflected in the law of the land to enable judges, whenever the situation arises, to hand down a custodial sentence that reflects the severity of the cruelty. Society finds the current sentences distasteful when it sees such cruelty. We must ensure that people who commit such crimes receive the correct sentence.

[Andy Slaughter]

As always, the hon. Gentleman makes a good point. I hope the Minister will address all those issues in full, including the use of current sentencing powers—not only custodial and financial penalties but preventing offenders from keeping animals and monitoring repeat offenders.

Returning to my point, will the Minister commit to reviewing the existing regulations on the sale and breeding of cats and dogs? This has been an interesting week for animal welfare campaigners, who know that they can always rely on the Labour party. Perhaps they can now also rely on the Scottish National party, but no other mainstream political party can equal our track record on delivering for animals, be they domestic pets or wild animals. Whether it is legislating on hunting with dogs, fighting to protect wild animals that are being exploited in circuses or introducing the Animal Welfare Act, we have a strong legacy.

When the Animal Welfare Act was published, my right hon. Friend the Member for Exeter (Mr Bradshaw), the then Minister with responsibility for animal welfare, said:

“Once this legislation is enacted, our law will be worthy of our reputation as a nation of animal lovers.”

Almost 10 years later, we need to ensure that the Act is working properly in relation to sentencing guidelines, and I offer the Minister our full support in ensuring that that is still the case.

I end by quoting Gandhi:

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

I am glad Bridget is recovering from her traumatic experience and I am glad there are some good stories, but in preparation for this debate I read some harrowing stories of animal cruelty. I look forward to hearing the Minister’s proposals for how we can discourage and punish such cruelty where it continues.