• Legal Lag and Disconnection from Reality: An Ongoing Animal Welfare Crisis

Hong Kong society prides itself on being a civilised city that cares for animals; however, in the dark corners of our city, an animal welfare crisis, tolerated by outdated laws, plays out daily. The core animal welfare legislation in Hong Kong—the Prevention of Cruelty to Animals Ordinance (Chapter 169)—dates back to 1935. Nearly eighty years have passed, and this law appears ineffective in the face of today’s highly commercialised yet poorly regulated pet breeding and trade industry. A 2010 legal assessment report from the University of Hong Kong has clearly pointed out that current legislation can only respond to clearly “cruel” treatment of animals, failing to prevent the widespread neglect and systemic exploitation that exist.

Shockingly, a survey conducted in 2006 revealed that there were only two licensed dog breeders in all of Hong Kong at that time. This figure absurdly contrasts with the vast supply of pets available in the market, exposing that the overwhelming majority of pet breeding activities are conducted in the grey areas of “unlicensed” or “amateur hobbyists.” These so-called “backyard breeders” are often profit-driven, placing animals in poor living conditions and disregarding their basic physiological and behavioural needs while massively breeding animals with hereditary diseases or behavioural issues. Existing laws are nearly powerless in addressing this.

• Fatal Gaps in Industry Regulation: A Complete Breakdown from Breeding to Sales

The entire process from the birth of a pet to its entry into a household suffers from a regulatory disconnect.

• Breeding Stage: Legal Vacuums
  Currently, unless a breeding environment is so poor that it constitutes “cruelty,” factors directly affecting an animal’s lifelong welfare—such as breeding density, the frequency of breeding for mother dogs, genetic screening, and socialisation training for puppies—are completely unregulated. Many breeding females are treated as “production machines,” confined for life in small cages, perpetually pregnant until they are physically exhausted.
  
• Sales Stage: Outdated and Ineffective Licensing System
  According to the Public Health (Animals and Birds) Regulations, pet shops must obtain a licence to sell animals. However, the conditions for obtaining this licence are severely outdated, focusing mainly on hygiene and facility size while failing to mention key requirements such as animal welfare standards, staff training in animal care, and medical care for sick animals. Even more absurdly, if a shop owner is convicted of animal abuse, the Director of Food and Environmental Hygiene has no authority to revoke the pet shop licence. This means that a convicted animal abuser can legally continue to operate a pet business, a glaring mockery of the rule of law.
  
• Consumer Stage: A Vicious Cycle of Ignorance and Impulsive Buying
  Due to the lack of mandatory pre-sale information disclosure, consumers often unknowingly purchase puppies or kittens from cruel breeding facilities that already possess health or behavioural issues. This not only leads to a lifetime of suffering for the animals but also triggers tragedies of abandonment due to behavioural problems, exacerbating the stray animal crisis. A 2011 opinion pollshowed that over 90% of Hong Kong residents support the implementation of ethical policies to safeguard animal welfare in pet shops, highlighting the significant gap between public expectations and policy shortcomings.

Policy Optimisation Roadmap: Towards a Responsible Pet Supply Chain

In response to the above gaps, the Research Department of the Hong Kong Society for the Prevention of Cruelty to Animals proposes the following concrete and feasible policy recommendations aimed at establishing a regulatory system that safeguards animal welfare from the source:

• Establish Comprehensive Mandatory Licensing and Regulatory Systems Expand Licensing Scope: Legislation should require all commercial animal breeders, regardless of their scale, to apply for a licence from the Agriculture, Fisheries and Conservation Department. Licence applicants must pass an animal welfare knowledge test, and their facilities must meet statutory minimum space, enrichment, and medical care standards. Establish Traceability Mechanisms: Introduce a mandatory animal identification and registration system, “from breeder to home.” All dogs and cats sold must be microchipped, with their breeder’s licence number recorded in the registration data, ensuring transparency of origins and enabling informed consumer choices.
  
• Formulate and Enforce a Commercial Animal Breeding and Selling Code of Practice
  Drawing from international animal welfare science (such as the UK’s “Five Freedoms” principles), develop a locally applicable code of conduct with legal force. The content must clearly state:
  
  1. Welfare of Breeding Animals: Restrict the breeding age and frequency of mother animals to ensure adequate rest periods.
  
  2. Care of Young Animals: Define a minimum weaning age (recommended to be 8 weeks for puppies) and prohibit premature weaning and mother-young separation.
  
  3. Socialisation and Environment: Require necessary socialisation training and appropriate environmental stimulation for young animals.
  
• Enhance Public Education and Law Enforcement Resources
  
  1. The government should allocate funding for a long-term public education campaign promoting the concepts of “being a responsible pet owner” and “adopt, don’t shop,” educating citizens on how to identify responsible breeders.
  
  2. Increase resources for the Agriculture, Fisheries and Conservation Department and relevant law enforcement agencies to provide specialised training and establish effective inspection and reporting mechanisms, ensuring new laws do not become mere paper promises.

Conclusion: Upholding Civilised Values through Legislation

Reforming pet breeding and trade is not about targeting legitimate businesses but rather about eliminating the breeding ground for the cruel exploitation of animals and establishing a fair, humane, and sustainable industry. As an international metropolis, Hong Kong’s animal welfare laws lag far behind those of countries like the UK and Taiwan. In 2006, the UK enacted the landmark Animal Welfare Act, explicitly introducing the concept of “animal welfare needs”; Taiwan’s Animal Protection Act has also undergone multiple revisions, imposing strict limitations on breeding and trading practices. Hong Kong must no longer delay.

We call on the SAR government to address this urgent animal welfare and public issue by immediately initiating a comprehensive review and amendment of relevant legislation. We also urge all citizens to make ethical choices as consumers, supporting breeders and businesses that are transparent and prioritise animal welfare, and to consider adopting from animal rescue organisations.

Only through forward-thinking legislation, strict law enforcement, and in-depth civic education can we end the silent suffering hidden behind iron cages and truly build a compassionate Hong Kong that treats all lives with kindness.