Hong Kong society often prides itself on being an animal-loving, civilised city. Yet, in the darker corners of our metropolis, an animal welfare crisis enabled by outdated laws plays out daily. The core of Hong Kong’s animal welfare legislation—the Prevention of Cruelty to Animals Ordinance (Cap. 169)—is rooted in principles dating back to 1935. Nearly seventy-five years on, this law proves utterly inadequate in the face of today’s highly commercialised, yet poorly regulated, pet breeding and trade industry. The 2010 Review of Animal Welfare Legislation in Hong Kong report from the University of Hong Kong clearly states that the current legislation can only react to overt acts of “cruelty,” being completely incapable of preventing widespread neglect and systemic exploitation. More shockingly, data cited in the report revealed that at the time, there were only two licensed dog breeders in the entire territory of Hong Kong. This figure stands in absurd contrast to the vast supply of pets on the market, exposing that the overwhelming majority of pet breeding occurs in the grey area of “unlicensed” or “hobbyist” operations. These so-called “backyard breeders” often operate with profit as their sole motive, keeping animals in deplorable living conditions, ignoring their basic physiological and behavioural needs, and mass-producing animals with genetic disorders or behavioural issues. The current legislation is virtually powerless against this.

Fatal Flaws in Industry Regulation: Systemic Failure Across the Entire Supply Chain

At the sales stage, an outdated and ineffective licensing system prevails. Under the Public Health (Animals and Birds) Regulations, pet shops require a licence to sell animals. However, the licensing conditions are severely antiquated, focusing primarily on hygiene and facility size, while remaining silent on crucial requirements such as animal welfare standards, staff training in animal care knowledge, and medical safeguards for sick animals. Even more absurdly, even if a shop owner is convicted of animal cruelty, the Director of Food and Environmental Hygiene has no authority to revoke the pet shop licence as a result. This means a convicted animal abuser can legally continue to run a pet business—a loophole that makes a mockery of the rule of law.

At the consumer end, ignorance and impulse buying create a vicious cycle. A lack of mandatory pre-sale information disclosure means consumers often unknowingly purchase puppies or kittens from cruel breeding operations, animals that may already have inherent health or behavioural problems. This not only condemns the animal to a lifetime of potential suffering but also leads to tragedies of abandonment due to behavioural issues, exacerbating the stray animal problem. Opinion polls indicate that the vast majority of Hong Kong citizens support implementing ethical policies in pet shops to safeguard animal welfare, highlighting the vast chasm between public expectation and policy stagnation.

A Roadmap for Policy Optimisation: Towards a Responsible Pet Supply Chain

To address these flaws, the Research Department of the HKSPCA proposes the following concrete and actionable policy recommendations aimed at building a regulatory system that safeguards animal welfare from the source.

First, a comprehensive mandatory licensing and regulatory system must be established. Legislation should require all commercial animal breeders, regardless of scale, to obtain a licence from the Agriculture, Fisheries and Conservation Department (AFCD). Applicants must pass an animal welfare knowledge test, and their premises must meet statutory minimum standards for space, environmental enrichment, and veterinary care. Concurrently, a mandatory “Breeder-to-Home” animal identification and registration system should be implemented. All dogs and cats sold must be microchipped, with the breeder’s licence number recorded in the registration details, ensuring traceability and enabling consumers to make informed choices.

Second, it is essential to develop and enforce a Code of Practice for the Commercial Breeding and Sale of Animals Informed by international animal welfare science, this should be a legally enforceable, localised operational code. It must explicitly define welfare limits for breeding animals, ensuring adequate rest periods; stipulate a minimum weaning age for offspring, prohibiting premature separation from the mother; and require necessary socialisation training and appropriate environmental stimulation for young animals.

Third, the pet sales licensing regime must be reformed to empower enforcement. The Public Health (Animals and Birds) Regulations should be amended to explicitly incorporate animal welfare standards into pet shop licensing conditions. The licensing authority must be empowered to refuse or revoke a licence if the owner or staff commit acts of animal cruelty or repeatedly violate welfare provisions. Pet shops should be mandated to provide purchasers with a veterinary health certificate, vaccination records, and detailed care guidelines.

Finally, public education and enforcement resources must be strengthened. The government should fund sustained public education campaigns promoting “Responsible Pet Ownership” and “Adopt Don’t Shop,” while educating the public on identifying responsible breeders. Increased resources, specialised training, and effective inspection and complaint-handling mechanisms must be provided to the AFCD and relevant enforcement agencies to ensure new laws do not become mere paper tigers.

Conclusion: Enacting Legislation that Reflects Our Civilised Values

Reforming the pet breeding and trade is not about penalising legitimate businesses, but about eradicating the breeding grounds for cruel exploitation and establishing a fair, humane, and sustainable industry. As an international city, Hong Kong’s animal welfare laws lag far behind jurisdictions like the UK and Taiwan. In 2006, the UK passed the landmark Animal Welfare Act, explicitly introducing the concept of an animal’s “welfare needs”; Taiwan’s Animal Protection Act has also been amended multiple times, imposing strict controls on breeding and sale practices. Hong Kong must not remain stagnant.

We urge the SAR Government to confront this pressing animal welfare and public policy issue and immediately initiate a comprehensive review and amendment of the relevant legislation. We also call on all citizens to leverage their power as consumers to make ethical choices: support breeders and retailers who are open, transparent, and prioritise animal welfare, and give priority to adopting from animal rescue organisations. Only through a tripartite approach of forward-looking legislation, stringent enforcement, and deep-rooted civic education can we end the silent suffering hidden behind cage bars and truly build a compassionate Hong Kong that is kind to all living beings.