Racehorse Protection

Luke Pollard Excerpts

Monday 15th October 2018 Westminster Hall

[Luke Pollard (Plymouth, Sutton and Devonport) (Lab/Co-op)]

I congratulate my hon. Friend the Member for Hartlepool (Mike Hill) on introducing this debate so well, and thank all hon. Members on both sides for their passionate discussion. This issue spans not only my brief, in the shadow Department for Environment, Food and Rural Affairs team, but that of the shadow Sports Minister, my hon. Friend the Member for Tooting (Dr Allin-Khan), who I thank for her input, as this is not only a welfare issue but an issue for the Department for Digital, Culture, Media and Sport.

Plymouth, which I represent, has many fantastic things, but it does not have a racecourse. It is 27 miles to Newton Abbot, or a little further on to see a race at Exeter. However, that does not mean that the issues are not pertinent to the people I represent, as has been shown by the sheer depth and breadth of numbers of signatories on this petition.

It is important to mention from the outset what an important contribution horse-racing makes to the UK economy and to local economies across the country, providing jobs as well as entertaining punters. Horse-racing estimates that it employs 85,000 people around Great Britain and measures its contribution to the economy at over £3 billion. No one doubts its contribution, but the welfare of horses needs to be an important part of that contribution if it is to continue supporting those economies.

While horse-riding is an extremely dangerous sport for horses and their riders, according to Horse & Hound—which I admit might not be at the top of every Labour MP’s reading list—around one in 17 jump jockey rides ends in a fall. Many jockeys suffer life-changing injuries and mental health problems as a result, as they compete for prize money in a hotly contested sport. As was mentioned earlier, however, while being a jockey is a voluntary occupation, being a racehorse is not.

As Peter Singer put it in the 1975 book, “Animal Liberation: A New Ethics for Our Treatment of Animals”, animals do not have a voice to speak up for themselves, so I firmly believe that as parliamentarians we have a duty to give them that voice. Today, this House has spoken: every horse matters. In their welfare, their health, their conditions and their life from birth to death—before racing, during racing and once their racing days are over—every horse should matter. If every horse matters, as we have heard today, then we need robust and constantly improving equine welfare regulation to ensure that that happens.

We will shortly hear from the Minister about the Government’s position, but when this petition reached 10,000 signatures back in March, the Government responded by saying that they did not consider it necessary to establish a new welfare body, as

“overall racehorse welfare is improving and fatalities at racecourses are falling”.

Both those statements are true; my question is, how ambitious are we in wanting to see those improvements? I appreciate that DEFRA is a busy Department, but we must not be casual or cautious when it comes to animal welfare. We must be bold, ambitious and demanding. I think the Minister will have heard that from both sides in this debate.

The Government response at that time also pointed out:

“Racehorses, like all domestic and captive animals, are afforded protection under the Animal Welfare Act 2006. Under this legislation, it is an offence to cause any unnecessary suffering to an animal or for an owner, or keeper, to fail to provide for its welfare needs.”

That is right, and I am pleased that the Government have accepted the argument that sentences for those who fail to provide for the welfare of their animal should increase. Will the Minister say when he expects that to come online and when we can expect our courts to be able to use those sentencing powers in cases of poor animal welfare in horse-racing and elsewhere?

It is clear that the Government wholeheartedly back the British Horseracing Authority, but the crux of the debate is whether the BHA is conflicted in its mission between its support for the industry and animal welfare. I agree with hon. Members from across the House that we must have an integrated welfare component to all sports. We cannot have the idea that animal welfare is not something that anyone running a race is responsible for. It is the core thing that everyone running a race is responsible for.

This goes to the heart of what the BHA is there for. In its briefing paper it stated:

“Thoroughbreds are the centre of our sport, they are its very heart and soul.”

It is right. To its credit, the BHA does not hide from concerns raised about this sector. I met with its team earlier to go line by line through many of the concerns raised, and it is clear that the BHA understands the acute challenges ahead for the industry and what it needs to do to put it right. The BHA has been around since 2007 and was brought in by the Labour Government of the time. The Select Committee on Environment, Food and Rural Affairs stated in 2016 that the BHA

“is recognised around the world as having implemented a high standard in equine care.”

Key to that is the BHA’s role in improving animal welfare and equine care in particular. That is where we need to ask ourselves at what pace this improvement is happening and whether it could go faster. Although we have seen improvements in the number of deaths, down from 0.3% to less than 0.2% of runners in 2017, the question at the heart of this debate is: where next? If we are to legitimise the BHA continuing to govern the regulatory approach, when will that figure be halved? When will we get to 0.1%—by what date? What steps will be taken to get there? What happens if we do not get there? When will the target be zero?

We have heard some great speeches today from my hon. Friends the Members for York Central (Rachael Maskell), for St Helens North (Conor McGinn) and for Derby North (Chris Williamson) and the hon. Members for Tewkesbury (Mr Robertson) and for Shipley (Philip Davies), but the purpose of today’s debate and all those contributions is to look at how we can improve equine welfare faster than we are at the moment. In a highly charged, high-pressure competitive sport, where financial gains can be made by winning or going faster, we must ask ourselves whether there is a profit motive in not ensuring the best animal welfare as part of that.

We must ensure at all times not only that equine care is the foremost of the industry’s concerns, but that it is seen to be the foremost, with the industry communicating how to do that. I am sure there is agreement across the House that animals should not suffer for our entertainment. What separates horse-racing from banned sports such as foxhunting, cockfighting and dogfighting is that it does not include unnecessary pain or suffering to the animals used. That is the heart of the social contract on the basis of which horse-racing is permitted.

The World Horse Welfare organisation believes that

“the role of horses in sport is legitimate and right, as well as mutually beneficial—so long as their welfare is put first.”

As my hon. Friend the Member for Hartlepool said, while some racehorses are treated like kings, horse-racing still causes death, pain, distress and suffering for many horses. While progress has been made on making the sport safer for horses, are we comfortable with the pace of change to date?

While the Labour party is still developing its full animal welfare position, hon. Members will know that we have consulted on our 50-point animal welfare plan, “Animal Welfare For The Many, Not The Few”. During the consultation period in the summer we received 5,000 responses, which is quite a lot for an Opposition consultation on this subject. At the heart of that plan was a desire to see an independent animal welfare commissioner introduced as a safeguard to ensure that all Government policy is not only compliant with animal welfare but is being enforced and that, where animal welfare is entrusted to self-regulatory bodies, that body is maintaining high animal welfare standards. That should be at the heart of this debate and goes to the heart of some of the petitioners’ concerns to ensure that animal welfare in the horse-racing sector is put front and centre and delivered.

If the BHA commits to always putting horse welfare above the interests of commercial sport, as it has done and says it does, if it can properly separate those sides of the organisation and always act to protect horses in line with the latest scientific evidence, it should have nothing to fear from enhanced scrutiny, inspection and transparency. Indeed, it has told me that it wants that, and an animal welfare commissioner would be a step towards achieving it.

The crux of the concerns of those who signed the petition and those who have spoken in the debate can be split into two broad themes. One is independence. Although the BHA has gone to great lengths to make its animal welfare bodies independent and separate, I believe it needs to do more to communicate that governance to the public and to continue to drive for those bodies’ greater independence and separation from the sector. The second theme is standards, and the demand that they should be world-class, world-leading and so ambitious that they set the UK out a furlong ahead, not edging it by a nose. I also want to see faster and further progress on the key equine welfare issues raised. The social contract that allows the use of animals in sport is changing. Consumers are more demanding, and welfare standards are rightly being pushed higher in response.

Having spent many years working for the Association of British Travel Agents, the travel trade body, I know about the power of self-regulation. However, I also know about the responsibility to ensure that, where an organisation regulates members who pay its wages, that organisation should remain one step ahead, in a leadership position, not following the pack. There can be no dash from last place to win the day in good governance or vision. Good governance and independence is not a destination but a constant journey. Standing still is not an option. The BHA should welcome this debate as an opportunity to improve not only its standards but its communication.

I suspect that the Minister will argue that the BHA is the right body to oversee equine welfare. If so, what ambitious and stretching targets does he have for the sector? How can the deaths of 0.2% of runners be halved in the next five years? If they cannot, what will the public response be? I believe in self-regulation, but it has to work and has to carry consumer confidence to remain relevant. As we have heard, there is still a challenge with self-regulation in the sector, and more needs to be done for it to continue. That is why I want the BHA to publish ambitious plans to further reduce racehorse deaths, to set out how new technologies will help to support better behaviour, and to review the use of the whip. Many sound voices in the racing industry want change in that regard.

When our animal welfare plan was put out for consultation, we received countless responses on the use of the whip in racing, as my hon. Friend the Member for York Central mentioned. The BHA has taken steps to reduce the use of the whip, limiting it to seven strikes in a flat race and eight in a national hunt, or jump, race. However, we need to look again at whether that is right. I mentioned the changing social contract between those who participate in the sport, those who watch the sport and, importantly, those who bet on horse-racing. The use of the whip is one element of the social contract that has recently changed and that will continue to change. I know that there are voices within the industry that would like the use of the whip to be further reduced, if not outlawed, except in cases of safety. There is a strong argument in support of that.

The RSPCA believes that the only whips permissible should be those of proven shock-absorbing designs. I must admit that I think replacing whips in horse-racing with MPs whipping each other may soon become more fashionable, given the exchange that we heard earlier. However, it is important that whips are used with minimal force and on minimal occasions, and only for genuine safety purposes. If everyone in horse-racing stopped using whips, the horse that wins a race would be the one that is best trained, has the most energy and is most focused. The best jockeys with the best tactics would win the race, not necessarily those who strike the most with their whip. That has been happening in Norway since 1982, and British and Irish jockeys adhere to those rules when riding there.

The social contract is changing. We need to look at it and in particular at the number of deaths. At the moment, the deaths of 0.2% of runners is too high, equating to roughly one in 500 racehorses. The only reason that it is accepted is because they are horses. Were they humans, that level of fatality in a sport would not be accepted. We have to ask whether, if we applied the same standards to animal welfare as we do to human welfare, as is increasingly the case in animal welfare policy, we would accept the same number of deaths in cricketers or rugby players.

Labour demands that the industry comes up with more stringent and ambitious targets. I want the BHA to bring together its frequently good work, which we have heard about during this debate, into a more ambitious plan.

[Mr Robertson]

I agree very much with the hon. Gentleman. Is his conclusion that a separate, independent body is not necessarily the way forward, and that bolstering the BHA and perhaps making it more accountable is probably the best way forward?

[Luke Pollard]

At the moment, there is a strong case for reform and greater ambition. A self-regulatory system needs to carry the confidence of the public. I think that the BHA has heard the concerns voiced by Members on both sides of the House, including those who support its role, in wanting a more demanding and ambitious set of policies. We need to look at what will happen if that is not put in place. Organisations that do not keep pace with changing consumer demands on animal welfare and the changing social contract will see their business model effectively erode from the bottom up, as we have seen with SeaWorld in the tourism sector. If there continue to be more deaths, there is a real danger that the industry’s legitimacy could be threatened, as mentioned by Members on both sides of this debate.

Much more needs to be done on improving animal welfare. We should be clear that British horse-racing is a national success story, but we want the industry to work harder, faster and smarter to improve equine welfare and to set transparent targets that can be independently verified. The public have a right to know if activities only pay lip service to that or are genuine—ambitious plans or simply pedestrian. The industry has a lot of good stories to tell about animal welfare and safety, but it can also do a lot more to improve them.

If Labour was in government and I were in the Minister’s place, I would be demanding a greater set of targets from the industry, looking at how we can halve the deaths of horses involved in horse-racing. When will we reach the 0.1% target, and can it be a numerical target, not just a percentage target? As we heard from my hon. Friend the Member for York Central, Brexit could have an impact on the number of runners for races, so we want to make sure that we are not simply hitting a percentage target but talking about the number horses that die in the trade.

There is an awful lot of good news from the sector. However, there are an awful lot of improvements that Members on both sides should rightly demand if the industry is to continue to adapt and flex to meet the changing social contract and changing consumer demands that our electorate are making.