A closed truck drives past the border, with the cries of puppies in overcrowded cages drowned by the engine’s roar; a rare bird labeled for ornamental use arrives gasping after a long air transport. These scenes represent the dark underbelly of Hong Kong as an international hub for animal trade and movement.

As cross-border transportation becomes increasingly convenient, the international and regional movement of companion animals (such as cats and dogs) and ornamental animals (such as birds and reptiles) has become more frequent. This includes both legal commercial trade and personal relocations with pets, as well as hidden illegal smuggling and irresponsible transfers. However, the welfare protections for animals during these cross-border journeys often encounter a jurisdictional vacuum— characterized by poor transport conditions, quarantine procedures focusing only on disease and not welfare, and the lack of regulatory oversight at destinations.

As a vital connection between the mainland and the international community, Hong Kong’s existing policies for protecting static animals are already insufficient, and there is an even greater lack of targeted laws and coordination mechanisms for ensuring the welfare of dynamically moving animals. In 2016, it is time to confront and systematically study this issue, to weave an effective protection net for these silent cross-border travelers.

Hidden Risks of Cross-Border Movement: A Welfare Crisis Beyond Disease Control

Currently, societal and governmental attention to the cross-border movement of animals mainly focuses on disease prevention and biosecurity, which is important, but the welfare of animals is often neglected.

For companion animals, inhumane transport methods pose the primary threat. Commercial breeding facilities may transport puppies and kittens in extremely unsuitable environments to cut costs, leading to dehydration, heat stress, and outbreaks of disease. Individuals carrying pets across borders through informal channels may also expose animals to unnecessary risks due to unfamiliar regulations. Furthermore, animals frequently cross borders as gifts or commodities, with little concern for their long-term welfare and adaptability.

The situation for ornamental animals is even more severe. To satisfy a niche market, wild individuals may be illegally hunted and smuggled, with a high mortality rate during transport. Even when legally imported, the lengthy supply chain lacks standards for accommodating their specific needs (such as temperature, humidity, and pressure sensitivities). By the time these animals reach pet stores or owners in Hong Kong, they may have already endured a journey filled with suffering.

Dual Gaps in Law and Coordination: An Outdated Regulatory Framework

Hong Kong’s current animal welfare protection system shows significant shortcomings in addressing cross-border situations.

Firstly, the law focuses on outcomes rather than processes. The core legislation, the Prevention of Cruelty to Animals Ordinance, mainly punishes cruel acts occurring within Hong Kong. For animals suffering before entry or during transportation, enforcement becomes extremely difficult if the abusive behavior does not fall within Hong Kong’s jurisdiction. The law fails to effectively regulate the responsibilities of importers or transporters throughout the whole process.

Secondly, there is a lack of interdepartmental coordination mechanisms. The cross- border movement of animals involves the Agriculture, Fisheries and Conservation Department (responsible for welfare and quarantine), Customs (responsible for smuggling), the Transport Department, and even the police. Currently, each department has distinct responsibilities but lacks a permanent coordination mechanism centered on animal welfare. This leads to fragmented regulation, responding only reactively when severe abuse or smuggling incidents occur, making proactive oversight impossible. The scale of collaboration mobilized by the Hong Kong Jockey Club in 2016 for cross- border horse racing, involving over 20 government departments, underscores the inadequacy of current management levels for the cross-border movement of companion animals and ornamental animals.

Lastly, regional cooperation has yet to be established. The movement of animals between Hong Kong and the mainland is exceedingly frequent, but the two regions differ in animal welfare legal standards and enforcement strength. Currently, there is no established routine reporting, collaborative investigation, or standard matching mechanism specifically for animal welfare protection. While organizations like the Hong Kong Animal Welfare Association engage with mainland groups, this is at an informal level and needs to be elevated to official policy coordination.

Building a Protection Network: Four Pillars from Local Legislation to Regional Cooperation

To address these challenges, we must create a three-dimensional cross-border animal welfare protection system at the levels of law, policy, enforcement, and education.

• First Pillar: Amend Legislation to Introduce Full-Chain Responsibility. Push for amendments to the Prevention of Cruelty to Animals Ordinance to extend the principle of due diligence to commercial animal importation and transport activities. Require importers and transporters to provide transport conditions that meet welfare standards and take responsibility for their supply chains. Additionally, reference international standards to develop Hong Kong’s Animal Cross-Border Transport Welfare Practical Code to provide a clear basis for enforcement.
  
• Second Pillar: Establish a Cross-Departmental Animal Cross-Border Movement Coordination Group. Led by the Environmental Bureau or Food and Health Bureau, integrate departments such as the Agriculture, Fisheries and Conservation Department, Customs, and police to form a permanent coordination mechanism. This group should be responsible for sharing intelligence, monitoring high-risk routes and businesses, developing unified procedures for handling cross-border animal welfare incidents, and establishing an animal welfare inspection mechanism at the border, beyond just quarantine checks.
  
• Third Pillar: Proactively Promote Dialogue on Animal Welfare Policies Between Guangdong, Hong Kong, and Macao. The government should draw on successful experiences from other areas of regional cooperation to proactively establish dialogue channels with relevant departments in Guangdong Province and Macao. Initial goals could include establishing an intelligence reporting mechanism for animal abuse cases (especially those involving cross-border factors), exploring minimum common welfare standards in transport, and conducting joint training for enforcement personnel. This can reduce animal suffering from both the source and the path.
• Fourth Pillar: Enhance Public Awareness and Consumer Responsibility. Many consumer behaviors inadvertently foster inhumane cross-border animal trade. The government and animal welfare organizations should strengthen publicity and educate the public to become responsible consumers: adopt instead of buying, request clear legal provenance when purchasing, and refuse animals of unclear origin or questionable transport conditions. The public’s choices are the ultimate force driving the market toward good.

Conclusion: Ensuring Borders Do Not Become a Terminus for Welfare

Animal welfare should not be interrupted or diminished because they cross an artificially drawn border. The vast scale of global live animal trade and existing regulatory loopholes have sounded the alarm. As an advanced international society, Hong Kong has both the responsibility and capability to set an example in this area.

In 2016, we called on the SAR government to take a forward-looking approach to address the welfare challenges arising from cross-border animal movement. This is not only about protecting animals but also about maintaining public health, combatting illegal trade, and enhancing the civilization and image of our city. Starting from improving local laws and collaborative mechanisms, and actively seeking regional cooperation, we can pave a more humane and safe path for all animal lives entering and exiting Hong Kong.

This work requires determination and wisdom. Let us act immediately to ensure that every animal’s cross-border journey is the beginning of a better life, not a continuation of silent suffering.