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The Minister of State, Department for Environment, Food and Rural Affairs (George Eustice)
It is a great pleasure to serve under your chairmanship, Mr Rosindell, in particular because I know you have knowledge of and interest in the subject of the debate. I welcome this debate and the interest that the Chair of the Select Committee, my hon. Friend the Member for Tiverton and Honiton (Neil Parish), and all the other members of the Environment, Food and Rural Affairs Committee have shown in prioritising this and other animal welfare issues for inquiry by their Committee.
I am also conscious that the hon. Member for Poplar and Limehouse (Jim Fitzpatrick) is something of an expert on the Welfare of Racing Greyhounds Regulations 2010, because I think he was the Minister when they were passed. The Committee clearly benefited from his experience. It is unusual for Ministers to be able to review their own regulations some years after introducing them. I am sure he enjoyed that experience.
As hon. Members might know, earlier this summer we had a rearrangement of portfolios in DEFRA. My noble Friend Lord Gardiner now takes responsibility for the issues we are discussing and will be taking them forward. However, I retain a passionate interest in the companion animal brief, and I am delighted to be able to represent it still in the House of Commons when we have debates such as this. I was also pleased to be involved in the early work of reviewing the regulations and, indeed, in giving evidence to the Select Committee.
The EFRA Committee report into greyhound welfare has made a significant contribution to our post-implementation review of the 2010 regulations. Before I come to the individual questions asked by hon. Members, it might be helpful if I briefly set out the areas in which the Government are in agreement with the Committee and what the Government said in our post-implementation review of the regulations, which was published in September, after our June response to the Committee.
For us, one of the EFRA Committee’s most important findings was that the introduction of the 2010 regulations appears to have improved the welfare of greyhounds at racetracks. That was one of the key objectives of the regulations when they were introduced. DEFRA’s own post-implementation review found that, when judged against their original objectives, the regulations have been broadly effective, especially in ensuring higher standards at independent tracks. I recall looking at the detail of that, and something as simple as ensuring a veterinary presence at all the tracks has clearly been instrumental in changing the culture. It is probably the single most important requirement of the regulations.
A key recommendation of the Select Committee report was that the industry self-regulatory body, the Greyhound Board of Great Britain, or GBGB, should be given a two-year probationary period to prove that it can be an open and transparent regulator of the sport “without legislative compulsion”. The Government fully agree with the Committee that GBGB could and should have done more since the introduction of the 2010 regulations to prove itself to be open and transparent. However—again, we are in agreement with the Committee—we have seen no evidence of significant failings on the part of the board to suggest that it cannot fulfil that role or that another independent regulator is required.
With regard to standards at the track, the board’s ability to self-regulate is legislated for by its continued accreditation for track standards by the United Kingdom Accreditation Service, or UKAS. UKAS provides independent, external oversight of GBGB’s performance as a regulator of standards at GBGB tracks. Should GBGB lose its UKAS accreditation, it will automatically lose its ability to self-regulate track standards, responsibility for which would then fall to a track’s local authority. One of the key findings of DEFRA’s review is that the system of enforcement of the standards in the greyhound regulations, taking account of the GBGB’s UKAS accreditation, appeared to be satisfactory in maintaining track standards. Indeed, we want to see that type of model replicated for the board’s enforcement of standards at trainers’ kennels, which has been mentioned by a number of hon. Members.
As part of DEFRA’s review, the board agreed to sponsor a British Standards Institution publically available specification for trainers’ kennels, which the board will adopt as the standard for its trainers’ kennels licensing scheme. The board will then seek to extend its UKAS accreditation to cover the kennel licensing work. I believe that proposal goes a long way towards addressing the concerns expressed by many hon. Members about standards at kennels away from tracks.
The Select Committee recommended that we extend the 2010 regulations to cover trainers’ kennels. Our review did not rule that out. The Government want to see how the greyhound board delivers on its commitments before we consider what further regulations might be needed. Given that we have an undertaking to introduce a new BSI standard for trainers’ kennels and to make that part of the UKAS accredited scheme—which the existing system predominantly is—it makes sense to see how that works before making any decision to regulate. We have been clear that if necessary, we will regulate, because it is important to keep the board’s feet to the fire and to make it understand the stakes.
Jim Fitzpatrick
I am sorry if I missed this, but did the Minister say what the timescale was for introducing the new BSI standard?
George Eustice
We do not have a timescale, but I believe that the board is developing the standard now. We expect to see it developed, certainly during the course of 2018. Indeed, we have decided to delay the introduction of some of the small legislative requirements necessary until we have had an opportunity to review how the BSI standard is working.
The Government also want the board to deliver on the other commitments it has given to Ministers, which tie in closely with the Select Committee’s recommendations and its proposed two-year probationary period. The board has agreed to begin publishing annually from 2018 figures for the number of dogs injured and euthanised at GBGB tracks and the number of dogs that leave GBGB racing, including an explanation of what “leave” means.
Neil Parish
I thank the Minister for going into so much detail about our report and how the Government are implementing quite a lot of what we recommended. I just question why it is necessary to wait until 2018 for those figures. Either GBGB has them or it does not. Why can it not bring them about now?
George Eustice
I will move on to that point, which my hon. Friend raised in his speech. I had that conversation with GBGB. The 2010 regulations required tracks to record those data as part of the local authority licensing regime and the UKAS regime run by GBGB, but those data were never actually collated centrally by GBGB. When I had that conversation with GBGB to secure its commitment to publish those anonymised data, it undertook to begin collating them forthwith. That happened to be earlier this year, so a full set of annual data will be available at the end of 2017. That is what lies behind GBGB’s commitment to publish the data from 2018. I reassure my hon. Friend that I pressed GBGB to see whether the data could be published earlier, but it explained that it had not yet collated them and they were simply recorded by individual tracks. I took that at face value, and I understand what the board says. If we can get those data published from 2018, that seems an important step forward and will probably achieve things far faster than any regulatory device might.
My hon. Friend also mentioned kennels away from tracks, which I have dealt with already. GBGB is planning to add that to the UKAS accreditation scheme and is developing a BSI standard for it.
My hon. Friend made the good suggestion that it is important that we recognise and give credit to gaming companies that contribute to the voluntary levy. As part of its annual report, the British Greyhound Racing Fund publishes a list of all the bookmakers that contribute to that fund. I do not have a copy of that report with me, but I am reliably informed that it already lists and gives credit to everyone who contributes to the fund. It is open to the industry to name and shame those who do not contribute. Indeed, the industry would probably gain some kudos if it were willing to do that, because I have not heard any Member here express sympathy with people who freeload and do not pay their share. The industry and the racetracks may want to consider that.
Kerry McCarthy
In their response to the Committee’s report, the Government mention encouraging payment of the voluntary levy and naming and shaming, but would it not be a lot easier just to make that a statutory requirement so that everyone has to abide by the same rules and pay their way?
George Eustice
The hon. Lady makes a point that several hon. Members have raised. As she will be aware, this area of legislation is a matter for the Department for Culture, Media and Sport. There is already a statutory horse-racing levy, which has issues of its own. To extend the remit in the way that she and others have suggested would require primary legislation—I do not think we could do that through secondary legislation—and I am told that there may also be EU state aid and competition law issues. Clearly, those types of obstacles will shortly be removed, and in that context the Government may want to revisit and reconsider the issue in the future. I simply say that it would not be as simple as she says to amend the legislation. I am sure that DCMS Ministers will look at this debate, since they are looking closely at these issues in the context of the horse-racing levy.
My hon. Friend the Member for Tiverton and Honiton mentioned rehoming, which is a very important issue. There are estimates—they are only estimates—that around 8,000 greyhounds leave the industry, the sport, tracks and racing each year. The Retired Greyhound Trust and other animal welfare charities do incredibly good work. The Retired Greyhound Trust rehomes between 3,500 and 4,000 dogs, and we think that other welfare groups rehome around 1,500 dogs. Some people say there are therefore between 1,000 and 1,500 missing dogs.
We have got the GBGB to commit to publishing clearer data about dogs that leave the sport, in terms of what happens to them and what leaving means. I think we all agree that we should aim at all costs to avoid the euthanasia of perfectly healthy dogs. Wherever possible, we should try to rehome these wonderful, kind, loving dogs. I met two of them when a constituent brought two greyhounds that had been involved in racing to see me.
The EFRA Committee’s report made it clear in paragraph 60, on page 16, that the
“introduction of microchipping should significantly improve the tracking of greyhounds bred for racing from birth to death.”
Let us hope we get some progress on that.
The hon. Member for Poplar and Limehouse raised the issues of trainers’ kennels, which I have dealt with, and of disappearing dogs, which I believe we can make some progress on. He referred to the £0.5 million welfare initiatives fund that we mentioned in our response to the Select Committee, which I understand was the result of better than expected fund income and an underspend. That is obviously a welcome boost at a time when, as my hon. Friend the Member for Tiverton and Honiton said, funds for this sort of work have generally been declining.
The hon. Member for East Kilbride, Strathaven and Lesmahagow (Dr Cameron) highlighted some appalling cases of animal cruelty. I am as horrified by her examples and anecdotes as any other hon. Member or member of the public would be. I simply point out that every single case she cited is a clear breach of existing animal cruelty laws. Those cases breach the Animal Welfare Act 2006 and would have breached animal welfare legislation predating the 2006 Act.
The hon. Lady also said that we should have a moratorium on the opening of new tracks. I am not sure that that is the challenge we face. We have some 28 tracks in total, 24 of which are under a scheme with the GBGB. Only four are regulated by local authorities, and they are small independent tracks. I am not sure that the challenge we have is dozens and dozens of new tracks opening up and causing new problems. This sport does not seem to be expanding; if anything, it might be losing popularity. I therefore do not believe that we need the type of moratorium she suggests.
The hon. Lady and several other hon. Members, including the hon. Member for Redcar (Anna Turley), raised doping. That is already an offence under the Gambling Act 2005, and people can be prosecuted for it. Depending on what is used, it is also potentially an offence under the Animal Welfare Act 2006. The hon. Member for East Kilbride, Strathaven and Lesmahagow may take the view that there has been insufficient enforcement or that inadequate penalties have been applied in some cases, but the legal remedy for those issues exists.
Dr Cameron
I thank the Minister for clarifying those issues. Is there scope to put more resources into prosecution and ensuring that regulation goes much further?
George Eustice
There may be opportunities to review enforcement. Indeed, in DEFRA at the moment we have concluded another review of animal licensing establishments, where we are looking at getting more consistent enforcement across the piece on animal welfare. I am sure that I can look forward to another debate in this place because the EFRA Committee has also undertaken an inquiry into some of those proposals, which we are considering at the moment.
I may have misunderstood the hon. Member for Redcar, but she appeared to suggest that the Animal Welfare Act does not apply to the independent tracks or all tracks. That is not true. Whether a racing track is covered by the UKAS accreditation scheme or indeed by a licence from a local authority, all tracks and everyone at all times are covered by the Act—there is no exemption. The 2010 regulations supplement our animal welfare legislation; they are not an alternative to it.
The shadow Minister, in that vein, raised the level of inspection of those small independent tracks. That is ultimately an issue for the local authority. There are only four such tracks and only three local authorities are involved in licensing them, so the local authorities tend to be very familiar with the tracks they license and are in a good place to judge the level of inspection that is required. It is often the case that the smaller tracks tend to be for hobby racers rather than the professional industry, and we often have fewer issues with them. Therefore, in some circumstances a local authority may deem that an annual inspection is unnecessary.
I am grateful to the EFRA Committee for both its scrutiny of this matter and its report. The report’s findings support DEFRA’s own review of the 2010 greyhound regulations. Both the EFRA Committee’s report and DEFRA’s review found that there had been a number of successes in the past six years, as well as areas in which the industry could and should have done more. The GBGB is beginning to address those concerns, and we have agreements with it to do so by 2018—a two-year probationary period. Should the board fail, the Government will consider other approaches, including regulation.