Bill S-270

Horse Protection Act

An Act to amend the Health of Animals Act and the Agriculture and Agri-Food Administrative Monetary Penalties Regulations (live horses)

This Act amends the Health of Animals Act to prohibit the export from Canada of live horses and other equines for slaughter. It also amends the Agriculture and Agri-Food Administrative Monetary Penalties Regulations to make the administrative monetary penalty regime set out in those regulations applicable to a violation of the prohibition on the export of live horses or other equines for slaughter.

[Alistair MacGregor, NDP, Cowichan—Malahat—Langford, BC]

Thank you, Mr. Chair.

Welcome to the committee, Ms. Mitchell.

In your capacity as the director of legal advocacy.... Well, first of all, I've been very interested in trying to see the different legal forms this policy position would take. We have Mr. Louis and the bill before the committee. We have Senator Dalphond in the Senate with Bill S-270.

I did ask the department whether they made any legislative forays, but they have not yet arrived at that position. It would have been interesting to have seen what the department came up with in terms of legislation.

Mr. Louis has taken the route of creating a stand-alone federal act. There are some pretty detailed requirements for declarations and so on, whereas Senator Dalphond decided to take a route where he's amending an existing act, the Health of Animals Act. His bill is quite simple. It's just simply that no person shall export from Canada a horse or other equine for slaughter.

I'm wondering if you could inform the committee, with your expertise, of your opinion on the different approaches in order to help us better understand whether amendments might be necessary and what legal route might be the best way.

[Alistair MacGregor, NDP, Cowichan—Malahat—Langford, BC]

Thank you.

Ms. Nix, I'd like to turn to you.

Since the ministerial mandate letter at the beginning of this Parliament, your agency has had a lot of time to consider this question and the policy implications of it. You've talked about the consultations.

In the meantime, we have two bills. We have Bill C-355, which is before this committee right now, but we also have a bill from Senator Dalphond in the Senate. We have two different legislative approaches. We have private members' bills looking at this.

In all of the time the department has had to consult the major stakeholders and really dive into the implications of this, the implications of the ministerial mandate letter and now two bills, what was the AAFC's preferred policy approach in dealing with this and executing the ministerial mandate letter? Do you see a path through Bill C-355? Is that what the department was considering? Was it Bill S-270, or was it something completely different?

Committee members would really like to judge this piece of legislation against what the department itself was considering.

[Yves Perron, Bloc, Berthier—Maskinongé, QC]

You just said that the goal is to ban the export by air of horses for slaughter. This concerns only one type of transportation and only one animal. Yet we need to review the rules for all animals, because other animals are also sensitive. The committee should note that another animal won't be given any less consideration.

In your remarks, you spoke of the noble status of the horse. If you want to ban the transportation of horses by air, isn't Bill S‑270 a better solution, because it bans all methods of transportation?

[Alistair MacGregor, NDP, Cowichan—Malahat—Langford, BC]

This is my final question. I do note that Senator Pierre Dalphond has Bill S-270, which he introduced last year. Did you have any conversations with him, and how did you come to the conclusion to draft your bill the way it is compared with how the senator drafted his bill?

Prohibition of the Export of Horses by Air for Slaughter Act

[Blaine Calkins, Conservative, Red Deer—Lacombe, AB]

Madam Speaker, I begin this debate a little heavy-hearted, because this is an issue that is near and dear to me and I just want to reiterate what I just heard.

I just heard the member of Parliament for Calgary Skyview advocate against jobs in his own riding in the Calgary airport, jobs of shipping horses. This is from a bill from the member for Kitchener—Conestoga.

Apparently this is the pressing issue in Kitchener—Conestoga. It is not affordability. It is not any other issue, like day care, crime or violence in our communities and streets or people using food banks; the most pressing issue in Kitchener—Conestoga apparently is what some Métis people in Alberta are doing, and a few farmers in Manitoba, Alberta and Quebec are doing, when it comes to horses.

It is a niche market, as I will freely admit, and my constituents admit that, but it is an important issue. I am referring, obviously, to this notion of somehow singling out horses for export from our agricultural community. In essence, the government and its acolytes in the Senate have launched a two-pronged attack. The first bill here is Bill C-355, which we are debating today, and the second is Bill S-270. Both of these bills would prohibit the export of live horses from Canada for the purpose of slaughter. The primary difference is that Bill C-355 would only restrict that export by air, while the Senate bill would do so more generally and broadly.

Since this issue is not often discussed in the public domain, other than in misinformation campaigns, I would like to begin my speech today with a few statistics and some key information about this valuable industry.

There were only 347 exporting breeders in Canada, and they exported a total of 2,600 animals for slaughter in the last year, 2022. For the education of my colleague for Calgary Skyview who just spoke and said that we used to export 7,000, that was because we used to have PMU barns and we used to produce a lot more horses because of that pregnant mare urine, which is a biotic used for the creation of birth control. As that was phased out in favour of therapeutics, the number of horses has gone down.

However, we still need a market for these animals, but that member would not know that. I do not think there are a whole lot of horse breeders or horse raisers in Calgary Skyview, which is fine. I always find a lot of humour in listening to my Liberal colleagues from urban areas talk about how much they clearly do not know about agriculture. That number is complemented by another 10,840 live horses that are also exported, but not for the purpose of slaughter. Basically, a five-to-one ratio of horses that are actually exported are not for slaughter, but who is going to know what the motives are of the buyer of that particular horse when it is purchased in Canada and shipped on an airplane?

While the distribution of this industry, as I said, is spread across the country, the greatest number of these animals comes from my province of Alberta, as well as Ontario and Manitoba. It should be noted that 25% of these horses come from indigenous herds. I remember when this government used to say that there is no relationship more important to it than the relationship with first nations people; a quarter of this industry is actually providing income and stability to the economic viability of first nations, primarily the Métis in Alberta.

Canada consumes 1,000 to 1,200 tonnes of horsemeat every year. This is mainly in la belle province of Quebec. As well, over a billion people—16%, so almost two in 10 people on this planet—consume horsemeat, so almost 20% of human beings on the planet consume horses. That is an astounding number, but apparently it is not good enough for those who do not know the industry, do not know anything about agriculture and never represented anybody in agriculture, and they are just going to shut down this industry.

It is also very healthy meat, with 20% more protein than beef, 25% less fat, 20% less sodium and double the iron of a beef sirloin, so I do not know why my colleagues across the way are protesting so much.

Now that we have a picture of what this industry looks like in this country, I would like to stay with what the Liberals propose to do with Bill C-355, and it is nothing short of shameful. The bill would require an unreasonable regulatory process to be undertaken prior to any flight being allowed to depart with a horse on board. This includes a signed declaration, to be approved by the Minister of Agriculture and Agri-Food, that the horses are not being exported for slaughter.

Can members imagine? The pilots have about five minutes when the plane pushes back from the gate when the pilots have the authority to get their documentation, get everything signed, push back and take off.

Now, we would have to have an approved letter from the Minister of Agriculture just before push-back. I am sure that would be an interesting bureaucratic hoop to jump through. This declaration must then be in the hands of the pilots of that aircraft and the chief customs officer of the airport. If it is contravened, the consequences of this act would be devastating. On the higher end, fines of up to a quarter of a million dollars, imprisonment for a term of not more than two years or both may result.

One gets less for violating a gun prohibition order in this country. This is the way the folks across the aisle think about these particular issues. There is nothing more damaging to Canada, apparently, than a farmer.

This is not speculation. The Air Line Pilots Association, International, for Canada has expressed concerns. It represents 95% of the unionized pilot workforce employed at 21 airlines.

The result of this bill would be to essentially restrict the air transportation of all horses in and out of Canada for all purposes. Not only would this bill impose an unfair burden of proof on the pilots and exporters, who cannot always be assured of what the end use is of the horse that is on board, but it would also dissuade them from even taking any live horses as cargo because of the overly punitive fines.

As previously mentioned, Canada exports 10,840 live horses for purposes other than slaughter. This bill would inadvertently hurt those producers as well, as it would make it harder for them to find air shippers that are willing to take their cargo.

For example, this may cause delays for those who need to fly horses engaged in Olympic or other equestrian competitions, as well as horses that are simply sold for their genetics and used in breeding programs elsewhere in the world.

These delays could jeopardize their opportunity to compete and represent their country internationally. We would lose things such as the Spruce Meadows and show jumping. We would have all kinds of problems, even applying for an Olympic bid in this country, because somebody would bring their horse here and would like to take it home with them. “Not a chance in Canada,” say the Liberals.

I must say that this bill is not just about the export of horses. It is part of a larger issue, which is the general assault on the Canadian farmer, who is already burdened by costly carbon taxes and excessive regulations.

We saw this disregard for farmers again recently, when the Liberal-controlled independent senators blocked Bill C-234's passage through the Senate. Finally, when they did pass it, they amended it to gut the bill of its impact. Instead of healing the urban-rural divide, the government is still stoking division.

This debate is personal for me. The horse export industry is prominent in my riding of Red Deer—Lacombe. A testament to this importance can be found in some of the feedback I have received from constituents and stakeholders. As one can imagine, in mixed and rural ridings such as mine, the impact of such legislation can be of outsized importance. This includes a member of an Alberta Métis group.

As part of a larger statement to us, they have stated, “There has been no consultation with indigenous producers and people on the plan to ban the export of live horses. The Canadian government has a history of stepping on indigenous farmers.”

There is a duty to consult in the Constitution, and they have not done that with this bill. I would also like to point out that the rationale for banning the bill, based on the so-called premise of animal welfare, is all based on misinformation and untruths.

This is especially the case when it comes to claims of mistreatment and abuse of these animals during their transportation. I can tell members that I grew up on a farm. On the farm, our animals are the most important thing we have. They are part of our business. We have to treat them well and with respect, because our business and livelihood both depend on the health and viability of these animals.

Since 2013, over 41,000 horses have been exported. The mortality rate at all stages of transport, not just on the airplane, is 0.012%. Basically, this is statistically insignificant. I want to highlight that no deaths as a result of the transportation of these animals have occurred since 2014.

We have veterinary oversight. We have very stringent transportation rules for animals. This is a clear campaign by misinformed individuals who simply want to make an emotional argument to try to shut down an industry that they disagree with ideologically.

This is absolutely frustrating, not only for my constituents but also for all farmers. It is a slippery slope. I urge all my colleagues in the House to vote against this bill.

[Ben Carr, Liberal, Winnipeg South Centre, MB]

Mr. Speaker, today I rise to lend my unwavering support to Bill C-355, an act to prohibit the export by air of horses for slaughter and to make related amendments to certain acts. This would be an impactful piece of legislation.

The bill is of great significance for Canadians; it addresses a pressing issue that is top of mind for many, including in my riding of Winnipeg South Centre. I had the privilege to witness the compassion for animal rights and overwhelming support for this bill from constituents during my recent by-election campaign in June. As I went door to door, the issues of horse welfare emerged repeatedly, underscoring the deep concern many Canadians hold regarding the treatment of these animals. This concern knows no party boundaries, and it strikes a chord with all who hold compassion for animals.

I want to express my heartfelt gratitude to my esteemed colleague, the member for Kitchener—Conestoga, for introducing this bill. His dedication to the cause, as well as his commitment to the humane treatment of animals, is truly commendable. Bill C-355 seeks to ensure the humane treatment and handling of livestock, with a special focus on the welfare of horses destined for slaughter or fattening. The manner in which live horses are transported by air, where they are often subjected to cramped conditions during extended flights, raises profound concerns about their well-being and the necessity for stricter regulations.

It is important to recognize that, unfortunately, Canada has one of the weakest records internationally when it comes to humane or even minimally adequate animal welfare legislation. Horses, by their very nature, are predisposed to stress; the conditions they endure during these flights only exacerbate their distress, leading to injuries and immense suffering. The pressing issue at hand is evident in the multitude of articles and reports that have shone light on the hardships faced by these horses before their deaths. The current law allows trips to extend for up to 28 hours, with no provisions for food, water or rest, resulting in a distressing situation for these animals.

The lack of transparency regarding the treatment of these horses once they reach their destination is a deep concern that cannot be ignored. When the horses arrive overseas, they fall outside the purview of Canadian jurisdiction, leaving their well-being in question. It remains unclear when they receive the fundamental necessities of water and food, an omission that likely further extends the already gruelling 28-hour fasting period during transportation. The lack of transparency regarding their treatment and slaughter abroad is particularly troubling given the sensitive nature, physiology and strong flight response of these animals. It is essential that we address this critical gap in our regulations and ensure that the welfare of these horses is protected throughout their entire journey, from start to finish.

While we recognize the importance of trade and international relations, we must not forget our responsibility to protect the welfare of the animals that we export. Our national values and commitment to animal welfare require that we act on this issue. Moreover, Bill C-355 has garnered support from many organizations, including the BC SPCA, the British Columbia Society for Prevention of Cruelty to Animals, which have encouraged citizens to engage by signing petitions and writing letters to their representatives. In fact, a federal e-petition has been tabled with over 36,000 signatures, making it one of the largest petitions of this Parliament. The voices of Canadians on this issue are clear.

The live export of horses for human consumption stands as an outdated and cruel practice, with mounting evidence highlighting the immense suffering and injuries inflicted on these animals. The Canadian Horse Defence Coalition has brought attention to this issue, leaving us to ponder why this practice continues. Recent data revealing frequent live horse shipments from my hometown of Winnipeg, in addition to Calgary and Edmonton, along with a staggering 67% increase in live horse exports in the past year, paints a distressing situation.

In contrast, international developments suggest a growing global realization of the need to acknowledge animals as sentient beings deserving protection. The United States, for instance, took a significant step in 2006 by ending the horsemeat industry through the discontinuation of funding for mandatory USDA horsemeat inspections. This action aims to ensure that no American horses face the grim fate of slaughter for meat, whether within or beyond U.S. borders.

Meanwhile, the United Kingdom has embarked on making positive legislative changes to address this with its “Action Plan for Animal Welfare”. It has introduced an animal welfare bill, established an animal sentience committee, ended live animal export for slaughter and fattening, and committed to considering animal welfare in all legislation.

A related Senate bill, Bill S-270, is also at the second reading stage in the Senate, reflecting the widespread concern for the humane treatment of horses in Canada. The BC SPCA, a strong advocate for animal welfare, emphasizes that no animal should be transported without feed, water or rest for more than eight hours, and horses should not endure such cramped and stressful conditions during air transport. It is vital that we take action to end this practice and to protect the welfare of these animals, ensuring that they are not subjected to prolonged suffering in the name of profit. The BC SPCA supports the Canadian Horse Defence Coalition's efforts to end the live export of horses for slaughter, underscoring the urgency of this matter and the need for immediate action to bring an end to this inhumane practice. Canada has the opportunity to rectify the situation and enforce laws that align with our commitment to animal welfare by passing Bill C-355.

As we advocate for the swift passage of these bills, let us remember that horses cannot afford to wait longer. Their suffering must come to an end. The fate of these horses is in our hands, and we must take decisive action to protect them from further harm. I want to share the following comments made by Mr. Jonas Watson, a highly respected vet in Winnipeg, who happens to be my vet. He said:

“Our 5,000-year relationship with the horse has shaped civilization and constitutes our most meaningful alliance with another species. Without question, the horse represents the most important domestic animal in human history. Their impact on society is almost immeasurable.

“In addition to playing a critical role in both agriculture and warfare, horses provided our first means of travel, trade and communication. Working horses enabled the exchange of ideas, language and culture around the world, leading to widespread social transformation.

“Today, these gentle creatures offer companionship, pleasure and therapy as loyal and devoted pets. Humankind would simply not be where it is today without our reliance on this species.

“It is essential to acknowledge how deeply indebted we are to the horse and, as such, they deserve to be treated with dignity, compassion and respect. The ugly live horse export industry is a black eye for our country and for my city of Winnipeg, and I look forward to its inevitable end. We owe Canadian horses far better than this.”

Those were the remarks of Dr. Jonas Watson in Winnipeg, who is a lead veterinarian.

I want to take this moment before I close to sincerely thank the Winnipeg Humane Society for its ongoing advocacy to help end this practice. Without it, I do not believe it would be possible for us to be here in this moment. I would also like to thank my good friend Jane Fudge. With her strong voice and advocacy, alongside other grassroots members of my constituency in Winnipeg South Centre, she has helped contribute to the progress we are making on this file.

In conclusion, Bill C-355 is an essential piece of legislation that embodies our shared values as Canadians. It reflects the commitment we have to safeguarding the welfare of animals and ensuring that our actions align with our national principles. I encourage each member of the House to support this bill, recognizing that this issue transcends political boundaries and is of the utmost importance to our constituents and the animals who depend on us for their protection and care. Together, we can make a difference and stand up for the humane treatment of horses in Canada.

[Andréanne Larouche, Bloc, Shefford, QC]

Mr. Speaker, I am here today to discuss Bill C-355, a bill that prohibits the export by air of live horses for the purpose of being slaughtered or fattened for slaughter. It enacts new legislation prohibiting the export of live horses.

I will start by carefully explaining the four main reasons why the Bloc Québécois is opposed to the principle of the bill.

First, the bill enacts new legislation, even though it is possible to change the current laws and regulations, in particular the Health of Animals Act, as well as its regulations. Also, it is inconceivable to us that animal welfare be restricted to just one type of animal, in this case equines. Canada and Quebec also export other types of live animals by various means of transportation. It would be worthwhile to consider the other types of transportation, including transportation by road, which is far more common and can also compromise animal welfare. Finally, amending the bill so as to raise standards for animal transportation would expand the scope of the bill and change the principle.

For these reasons, we will vote against this bill at second reading. That said, we find that the bill is well-intended. Animal welfare is an important concern and principle for us all. Without healthy animals, our agriculture and agri-food industry would collapse. Canada and Quebec have laws in place, but there are gaps in the legislation.

We do not want our position to be interpreted as a desire to minimize or deny the facts that led to the introduction of this bill. On the contrary, we are well aware that Canada exports by air live horses to be slaughtered in conditions that, even if they comply with Canadian laws and regulations, are widely criticized. The Bloc Québécois is especially frustrated by the fact that the bill deals solely with horses, when regulations on animal welfare and transportation apply to all animals exported for slaughter. However, should the bill be passed at second reading and amended in committee, the Bloc Québécois remains open to working responsibly.

In the former minister of agriculture and agri-food's 2021 mandate letter, the Prime Minister asked her to “Ban the live export of horses for slaughter.” It seems like Canada intends to ban this practice itself. Why has this not already been done?

I will now address the fact that the CFIA, the Canadian Food Inspection Agency, once had a page on its website dedicated to debunking myths about this industry. First, we have to distinguish between “horse meat” and “live horses”. Horse meat refers to animals slaughtered in Canada and meat being exported, not live animals. For many people, the consumption of horse meat is taboo. Having had horses myself when I was young, I am well aware of that. We have to respect that, but not at the expense of other animals. Abuse is abuse, regardless of the animal.

According to a survey conducted by Research Co. and Glacier Media in early 2021, only 27% of Canadians believe it is appropriate to eat horse meat, even though the percentage is much higher when it comes to meat from other animals. Rabbits and geese are regarded as appropriate food sources by nearly 60% of Canadians, and that number increases to 75% for beef, 79% for pork and 88% for poultry, such as chicken.

One of the arguments presented by the sponsor of Bill S-270, which is similar to Bill C-355, is that horses played a unique role in Canada's history and in the building of the country, which means we could get into the whole issue of the Canadian horse. It is clear that horses are part of our history. Over 36,000 Canadians presented a petition to the House of Commons calling on the government to ban the export of live horses for slaughter. Two-thirds of Canadians are opposed to this practice. According to the same survey, nearly 85% of Canadians were not aware that Canada was engaging in this practice.

In Quebec, the consumption of horse meat is more generally accepted. The government of Quebec has included additional protection in its legal framework for racehorses, horses from riding centres, rodeo horses, horses participating in performances or shows, and so on. During this process, animal welfare groups, in particular the Association québécoise de protection des chevaux, cited the Bloc Québécois’s comment on the special treatment of horses, affirming that “it is self-evident that horses should be treated the same as cats and dogs”, that the “government should not stop there” and that “all farm animals deserved the same consideration”.

The Bloc Québécois believes that banning export by air of just one species is illogical and inconsistent, and that the best way to move forward on animal welfare is to review handling and transportation standards.

Quebec is the second-largest exporter of horse meat in the world, and 85% of our exports are sent to Japan. The United States claims to no longer slaughter horses for human consumption, but it exports its horses to Canada for that purpose. According to a CTV News report, we are talking about 120,000 animals between 2013 and 2018.

Canada is a major exporter of livestock. It exports pigs, sheep, lambs, cattle and horses to various countries. However, the conditions can be inhumane for all animals that are exported. We should therefore ensure better conditions.

According to the Canadian Food Inspection Agency, or CFIA, roughly 45,000 horses have been exported by air to Japan since 2013. That amounts to about 4,500 horses a year, maybe a few more, since animals are exported to countries besides Japan, even if Japan is by far the largest importer. However, every year, Canada also exports hundreds of thousands of other kinds of live animals to all corners of the world.

We think it would be more appropriate to take action on export conditions to make them safer for animals. Specifically, this could mean reducing the number of hours animals must travel without water, food or rest; regulating the size and material of cages used for transportation, or even creating areas especially designed for these animals; and controlling the temperature and ambient noise, considering that horses have much more sensitive hearing than humans. Lastly, we could examine the effects of a general ban on exporting live animals for slaughter abroad. Some countries have already taken this step. These are just ways of broadening the debate. What we have here are other issues that could be raised.

The Canadian Horse Defence Coalition even sued the Government of Canada for failing to abide by animal welfare legislation when shipping horses via cargo plane.

The Farm Animal Welfare Education Center, which is associated with the Autonomous University of Barcelona's veterinary school, stated the following, and I quote:

Despite being a relatively short phase in the process of meat production, the transport of animals to slaughter can cause major economic losses. This is because during transport the animals are exposed to a variety of stressors in a short period of time....[which] in extreme cases can result in the death of the animals.

Stress during transport increases the susceptibility of animals to infections. What is more, “Truck design and the handling of animals have an important effect on the welfare of animals during transport.”

Many animals are similar to humans when it comes to stress. This is particularly true of swine, an oft-cited example. The Ontario Ministry of Agriculture published information on the precautions that should be taken when transporting swine.

That might be worth looking at. It is difficult to believe that all of the guidelines for the export of live swine for slaughter that should be followed are being followed, so we still have a way to go.

Finally, here is a some information taken directly from the CFIA website. I thought it would be interesting to read a few excerpts.

Canadian provinces have the primary responsibility for protecting the welfare of animals, including farm animals and pets. All provinces and territories have laws in respect to animal welfare. Provincial and territorial legislation tend to be general in scope, covering a wide range of animal welfare interests. Some provinces and territories have regulations that govern specific aspects of animal welfare, or are related to certain species.

The CFIA's animal welfare mandate is limited to regulating humane transport of animals and the humane treatment of food animals in federal abattoirs.

Moreover, the CFIA works “closely with the provinces, territories and all stakeholders in the animal care community when animal welfare issues are identified”.

The CFIA is also working with the industry to “establish standards of care and biosecurity”, to establish “the requirements to protect all animals during transport”, and to verify that “humane transport and humane slaughter requirements are respected in all federal slaughter plants”.

The Criminal Code also stipulates the following:

[The Criminal Code of Canada] prohibits anyone from willfully causing animals to suffer from neglect, pain or injury. The Criminal Code is enforced by police services, provincial and territorial Societies for the Prevention of Cruelty to Animals and/or provincial and territorial ministries of agriculture.

Quebec has five laws and regulations in place that already protect farm animals.

In conclusion, even though I grew up with horses, I care about the welfare of all animals.

We will see what happens with this bill. If it does go to committee, the Bloc Québécois will obviously be there to work responsibly. However, at this point, we think this bill needs far too much work.