Beneath the glitzy surface of Hong Kong as an international metropolis lies a dark, unregulated animal production chain. Each day, pet shops showcase adorable dogs and cats, but the origins of these animals often stem from legal and ethical grey areas. The Research Department of the Hong Kong Society for the Prevention of Cruelty to Animals must point out that the regulatory system surrounding pet breeding and commercial sales in Hong Kong has fundamental flaws and loopholes that not only result in unnecessary suffering for numerous animals but also expose consumer rights and public health to risk. The current framework, centred around the “Prevention of Cruelty to Animals Ordinance” and the “Public Health (Animals and Birds) Regulations,” has long become outdated, and a comprehensive system reform is urgently needed.

Legal lag and regulatory vacuum: A breeding ground for animal suffering

The core issue in Hong Kong’s animal welfare legislation lies in its “passive” and “fragmented” nature. The “Prevention of Cruelty to Animals Ordinance,” enacted in 1935, was designed to punish obvious acts of cruelty, yet it is powerless to regulate chronic and systematic neglect and exploitation that do not meet the threshold of “cruelty.” This has allowed the entire pet breeding industry to operate almost in a legal vacuum. A 2006 survey revealed a shocking fact: there were only two licensed dog breeders in all of Hong Kong. This absurdly contrasts with the vast pet supply in the market and implies that the overwhelming majority of dogs and cats traded as commodities have mysterious origins. These unlicensed “backyard breeders” operate solely for profit maximisation, treating breeding animals as production machines, confined for life in small cages and continually forced to breed until their bodies fail. Young animals grow up under harsh conditions devoid of adequate socialisation, medical care, or environmental stimulation, leading to numerous physical and psychological problems.

At the same time, the regulatory oversight of pet sales is similarly nonexistent. Although pet shops require a licence under the “Public Health (Animals and Birds) Regulations,” the licensing conditions are severely outdated, focusing only on basic hygiene and cage size, without any provisions for key animal welfare indicators—such as mandatory training for staff on animal care, the socialisation needs of animals, genetic disease screening, or medical protection for sick individuals. Even more absurdly, if a shop owner is convicted of animal cruelty, the licensing authorities have no power to revoke their pet shop licence. This means that a legally recognised animal abuser can continue to operate their pet sales business legally, a loophole that openly mocks the spirit of the rule of law.

Multiple risks within the supply chain: A lose-lose-lose situation for animals, consumers, and society

This out-of-control supply chain creates a lose-lose-lose situation for animals, consumers, and society. For animals, their suffering spans their entire lives. For consumers, they often end up purchasing young animals from cruel breeding facilities that come with genetic diseases or potential behavioural issues due to severe information asymmetry. This not only results in high subsequent medical costs and emotional trauma but also raises the risk of abandonment due to behavioural problems, creating a vicious cycle. For society as a whole, the unregulated flow of animals increases potential risks of zoonotic disease transmission, while numerous animals abandoned due to health or behavioural issues ultimately become a burden on public resources. A 2011 public opinion survey clearly indicated that over 90% of Hong Kong citizens support implementing animal welfare-protecting ethical policies in pet shops, highlighting a significant gap between public expectations and outdated policies.

Policy reform blueprint: Moving towards a responsible and transparent pet supply chain

In the face of such severe challenges, piecemeal fixes are inadequate. Hong Kong must decisively build a comprehensive regulatory system centred on animal welfare, from source to endpoint. Our research department proposes the following specific policy recommendations as a starting point for reform:

Firstly, a comprehensive mandatory licensing system must be established. The government should immediately legislate that all commercial dog and cat breeders, regardless of scale, must apply for a licence from the Agriculture, Fisheries and Conservation Department (AFCD). The approval of licences must be contingent upon compliance with legal animal welfare standards, including, but not limited to: restrictions on the breeding frequency and retirement age of breeding animals, space and enrichment requirements for living environments, mandatory genetic disease screening, and socialisation training for young animals along with the minimum weaning age (recommended at eight weeks). Any unlicensed breeding activities should be treated as a serious offence and heavily penalised.

Secondly, the pet sales licensing system must be thoroughly reformed and a traceability mechanism established. The “Public Health (Animals and Birds) Regulations” should be amended to explicitly include specific animal welfare standards as part of the licensing and renewal conditions, granting authorities the power to revoke licences for actions harmful to animal welfare. Concurrently, a mandatory microchipping and registration system should be implemented for all animals sold, linking each microchip’s data to the licensed breeder’s number, ensuring transparent sourcing that allows consumers to make informed, responsible choices.

Furthermore, a legally referenced “Code of Practice for Commercial Animal Breeding and Sales” should be developed and implemented. This code should be based on the latest scientific research on animal welfare, providing clear and specific operational guidelines for the industry covering animal husbandry, medical care, behaviour health, and transport, thereby embedding the “Five Freedoms” principles of animal welfare into every aspect of the industry.

Finally, enhancing public education and enforcement resources is crucial. The government should lead a long-term public education campaign promoting the concepts of “being a responsible pet owner” and “adopt, don’t shop,” while educating citizens on how to identify responsible breeders and sellers. Additionally, resources must be allocated to enforcement departments such as the AFCD, providing professional training and establishing effective inspection and reporting mechanisms to ensure that the new laws do not become mere paper provisions.

Conclusion: Showcasing civility through legislation and driving change through choice

As a society that prides itself on being civilised and progressive, Hong Kong cannot continue to tolerate an industry built on the hidden suffering of animals. Reforming the regulation of pet breeding and sales is not only essential for protecting animals but also for safeguarding consumer rights, maintaining public health, and elevating social morality. We urge the SAR Government to immediately acknowledge this systemic flaw and initiate a comprehensive legislative review and amendment process. We also call upon every citizen to vote with their consumer choices by supporting businesses that are transparent, prioritise animal welfare, and consider adopting from rescue organisations first. Only through resolute legislation, strict enforcement, extensive public education, and responsible consumer behaviour can we bring an end to these shadowy production lines and turn a new page in the history of animal welfare in Hong Kong.