Animals (Low-Welfare Activities Abroad) Act 2023

Baroness Hayman of Ullock Excerpts

Monday 1st September 2025 Lords Chamber

[Lord Randall of Uxbridge]

To ask His Majesty’s Government when they intend to introduce activity regulations under the Animals (Low-Welfare Activities Abroad) Act 2023.

[The Parliamentary Under-Secretary of State, Department for Environment, Food and Rural Affairs (Baroness Hayman of Ullock) (Lab)]

My Lords, the Animals (Low-Welfare Activities Abroad) Act 2023 provides a framework for the introduction of future bans on the advertising and offering for sale, in England and Northern Ireland, of low-welfare animal activities abroad. We are currently engaging with both industry and stakeholders to explore the most effective way to protect animals in specific low-welfare activities abroad from considerable suffering and unacceptable practices. We are therefore looking at both legislative and non-legislative options.

[Lord Randall of Uxbridge (Con)]

I thank the Minister for her reply. She said that this is an important piece of legislation, which was piloted through this Chamber by my noble friend Lord Black of Brentwood. It is now two years since this important legislation was passed with strong cross-party support from the then Opposition, and indeed from the Minister herself, and we still have not seen these regulations. Can the Minister now give us a clear and transparent timetable for the introduction of the regulations?

[Baroness Hayman of Ullock (Lab)]

The noble Lord is correct. As he is aware, I strongly supported the then Bill when it went through Parliament, because I do not want to see the abuse of animals in any circumstances. However, having looked at the Act and how to take it forward, there are certain challenges to ensure that it is effective when it is brought in. There is no point having legislation that is not going to do what we want it to do. First, it has to be clear for advertisers and enforcement bodies which activities are in scope, so we are looking at which activities to prioritise and bring into scope. We need to determine whether an advertised activity meets the criteria for being low welfare, because we need to ensure that high-welfare activities are not inadvertently impacted. We also need to ensure that the party placing the advert can be identified. This is complex, because it is about banning advertising only in this country, whereas many advertised holidays are not from organisations based here and the activities are abroad. It is complex, but I am determined that we get this right.

[Baroness Grender (LD)]

My Lords, is the Minister aware of media reports suggesting that this appalling practice is on the increase? In the light of that, what urgent support and guidance can she provide for the UK tourism industry that could be used right now to reduce this immediately, particularly given the current delay that she described in the introduction and implementation of the Act?

[Baroness Hayman of Ullock (Lab)]

One reason I talked about non-legislative options is that we want to stop people buying such holidays in the first place. One problem is that, when people book a holiday with an elephant ride, they simply do not understand what has happened to that elephant and how it has been treated so that it can be ridden—so there is an education piece. It is currently the case that ABTA, which represents around 90% of British travel agents, offers guidance, working with its own members, as to what kind of activities are considered to be unacceptable. That guidance is there and we have been working with ABTA to look at how we can encourage further uptake—90% is a high number, but it is not everybody.

[Baroness Fookes (Con)]

My Lords—

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[Baroness Hayman of Ullock (Lab)]

I am so sorry to disappoint the noble Baroness, but I cannot give her a date. All I can say is that it is something I am actively looking at and working on. We are shortly going to be publishing the animal welfare strategy, which I have been preparing over the last 12 months; that will be out before the end of the year. We are including this within the animal welfare strategy as something that we want to deliver.

[Lord Foulkes of Cumnock (Lab Co-op)]

My Lords, following my almost namesake, since we humans are also animals, is there any way the Government can stop Members of Parliament carrying out low-level activities abroad rather than attending Westminster or their constituency—mentioning no names?

[Baroness Hayman of Ullock (Lab)]

I would imagine that is probably an education piece.

[Lord Roborough (Con)]

My Lords, will the Minister confirm what specific criteria or evidence the Government are using to determine which activities abroad will be considered low welfare under the forthcoming regulations?

[Baroness Hayman of Ullock (Lab)]

I am determined to look at what makes the biggest difference. The whole essence of my approach to animal welfare is what makes the biggest difference, where are the most animals suffering abuse, and what can we do to try to reduce that. Those are the criteria we are looking at.

[Lord Black of Brentwood (Con)]

My Lords, I had the privilege of taking this legislation through this House, with the support of the Minister. I am profoundly disappointed that, two years after it reached the statute book, it has not been implemented, letting down the 150 charities which campaigned for it and the animals it would protect. Does the Minister recall the terrible fate of 20 year-old Andrea Taylor, who was violently killed on a visit to the Nongnooch resort in Thailand when an elephant which had been brutalised charged her? She is one of the many tourists killed or injured because this legislation is not yet effectively in place. Is it not unacceptable that until this law is implemented by regulation, tragically, there will be more Andrea Taylors?

[Baroness Hayman of Ullock (Lab)]

I congratulate the noble Lord on sponsoring the Bill; I was very happy to support him. I point out that it may be two years since the legislation, but I have not been the Minister for two years. That is not to say that it has not been some time. I have met campaigners and stakeholders, and I am determined to take this through. It is, unfortunately, proving to be more complex than I would have liked, and I am absolutely aware of the tragic case he talks about. That is why we need to work not just on the legislation but more broadly than that. People can still buy these holidays online, advertised from other countries. We need to look not just at the legislation we can bring forward through this particular Act but much more broadly.

[Lord Grayling (Con)]

My Lords, there is a pattern emerging from the Minister’s department, in that we continue to have a similar situation around the regulations on deforestation and forest risk products. What can she do to ensure her department turns the will of Parliament into legislation rather more quickly than seems to be happening at the moment?

[Baroness Hayman of Ullock (Lab)]

I am aware of what the noble Lord is talking about regarding deforestation. I have been working with Minister Creagh from the other place on this and we are looking at the best way to take it forward.

[Lord Watts (Lab)]

My Lords, can the Minister tell us whether the civil servants working on this and other issues have timeframes for these decisions? It seems to me that they should know how long it will take to conduct some sort of investigation and come forward with policies, so that the House will have some idea of when things are going to change.

[Baroness Hayman of Ullock (Lab)]

The Civil Service animal welfare team in Defra is extremely committed and works incredibly hard. This is a very broad area, with many areas of animal welfare that we are working on at the same time. This is something that we want to deliver on. I know the team is working very hard with both industry and stakeholders to look at the best way to bring legislation forward.

[Lord Borwick (Con)]

My Lords, will the Minister confirm that the commitment previously given to provide an opt-out for certified zoos will be part of these regulations when they are published?

[Baroness Hayman of Ullock (Lab)]

I assume that the activities the noble Lord is referring to regarding zoos are high-welfare activities. As I said, we are looking at how best to bring legislation forward. For any activity to be exempt, there would need to be compelling, sufficient evidence to demonstrate that the activity was high welfare and therefore not to be constrained by any legislation coming forward. Part of the work in developing future legislation is considering how best to do that.