Claire Kerrane (Roscommon-Galway, Sinn Fein)
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I move:

That Dáil Éireann shall take note of the Report of the Joint Committee on Agriculture, Food and the Marine entitled "Issues impacting Dog Welfare in Ireland", copies of which were laid before Dáil Éireann on 13th October, 2022.

I am happy to move this motion on the report completed by the Joint Committee on Agriculture, Food and the Marine. In 2021, the joint committee examined canine welfare issues and the existing related legislation. The issues examined at the time in relation to this matter included canine artificial insemination, canine fertility clinics, ear cropping, microchipping, the sale and supply of dogs and dog-breeding establishments. There were six days of hearings and the committee heard from a number of stakeholders in the sector.

I am sorry. This is what happens when you are not fit and you run to the Chamber.

Mary Butler (Waterford, Fianna Fail)
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Take your time.

Seán Ó Fearghaíl (Kildare South, Ceann Comhairle)
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Take a drink of water.

Claire Kerrane (Roscommon-Galway, Sinn Fein)
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The Chairman of the joint committee, Deputy Cahill, left me with this job. He will not be impressed.

Over the six days, the committee was grateful to hear from a range of stakeholders, including Dogs Trust Ireland, the Dublin Society for the Prevention of Cruelty to Animals, the Veterinary Council of Ireland and officials from the Departments of Agriculture, Food and the Marine officials and Rural and Community Development. In the absence of the Deputy Cahill, I thank everyone who came before the committee to share their expertise on all of these matters. On foot of its hearings, the committee published a report containing 13 observations and recommendations. It is good that we are having the opportunity to discuss those recommendations this evening.

One of the main points raised by all of those who attended the hearings - this was also raised by committee members - is the fact that the five existing items of legislation that relate to canine welfare come under the remit of the Departments of Agriculture, Food and the Marine and Rural and Community Development and local authorities. There appears to be widespread acknowledgement of that and support for the view that all policy and legislation should come under one Department. The committee has recommended the Department of Agriculture, Food and the Marine should be given responsibility in this regard, particularly in view of the fact that it is responsible for general animal welfare. That is a recommendation that should be taken on board. That can be done quite easily.

One of the issues the committee considered and received evidence on was that of ear cropping. The committee has recommended that there be a ban on owning dogs with cropped ears. The committee noted there would be a requirement for a time of amnesty in relation to this matter and that the Department of Agriculture, Food and the Marine should run information campaign to inform the public of the impact that this procedure has on the well-being of dogs.

The committee also looked at canine fertility services. Quite serious issues were raised in respect of this matter. Canine fertility services should be regulated in order to prosecute illegal occurrences of such practices. This is an important recommendation and it comes with the committee's call for a complete ban on surgical artificial insemination. The latter is also an important recommendation from the committee.

During the hearings, clear evidence was presented to the committee to the effect that microchipping has made a huge difference in Ireland. The number of dogs being microchipped has been increasing year on year. However, those who appeared before the committee raised an issue regarding information corresponding to dogs on the system and the fact that such information can cause problems in some cases, especially when it comes to efforts to reunite dogs with their families. The committee had heard from a number of organisations in respect of this matter and has recommended that there is a need for standardisation of the quality of information that is being inputted into the microchip system and that all relevant details need to be included. Another point that was made is that the full addresses of dog owners are not being uploaded to the system. We would encourage that full addresses and, where possible, Eircodes be used in order to make it as easy as possible to identify dog owners.

The committee was informed that there are currently four microchip databases in Ireland. The committee has recommended that the information on those databases be collated and stored in one central online portal that would be held by the Department of Agriculture, Food and the Marine and that authorised officers and canine welfare organisations should be able to access this.

The next recommendation is on the dog licensing system. That was described by a number of people who came before the committee as utterly inadequate. We are asking that the Government and these Houses work to pass the Animal Health and Welfare (Dogs) Bill 2022, which will address the issues relating to the current dog licensing system.

On advertisements, in particular those relating to the sale of dogs, the committee has recommended mandating all online platforms that sell dogs to incorporate a two-step verification system in their advertisements and also that an advertisement information campaign would be conducted so that people are better educated on how to spot a verified advertisement and what steps you should take when purchasing a dog to ensure that you are purchasing a dog from a legitimate source.

Local authorities are responsible for the operational oversight of the Dog Breeding Establishments Act 2010. Each local authority maintains its own register in that regard. The committee has looked at this and recommends that all local authorities make their register of dog-breeding establishments readily available online and accessible to the public. It was stated that some local authorities do not have this database easily accessible on their websites. This was an issue of importance to those who appeared before the committee. It is a recommendation that can be easily implemented by local authorities to make sure that everyone in the local authority has the database readily available and that those who need to can access it.

The committee also looked at the issue of the current ratio when it comes to breeding in dog-breeding establishments. In that regard, the committee has recommended that there be a maximum limit on breeding permitted in these establishments and that should be introduced to ensure a better quality of life and better quality of welfare for the dogs. It was also recommended in relation to those establishment that the Department of Rural and Community Development guideline to ensure the human interaction and socialisation of the dogs is enforced. It was stated that this is not happening in some cases.

Of importance, albeit not a recommendation in this report but having become more of an issue, is the number of sheep being attacked by dogs. There has been a growing number of dog attacks. The Irish Farmers Association, IFA, has stated that every year between 3,000 and 4,000 sheep are killed in dog attacks. There is very much a feeling out there, particular among the farm organisations and sheep farmers, that not enough has been done in order to make sure that this is wiped out as much as is possible. The IFA has repeatedly called for changes to legislation, tougher sanctions for those who fail to have their dog under control at all times and a single national database for all dogs in the country that identifies the person responsible for the dog.

That is why it is so important those changes are made to licensing. We have been told the existing licensing system is inadequate. That is why it is important that we make the necessary changes and pass legislation that can make the system more efficient. The passing of the Animal Health and Welfare (Dogs) Bill will also seek to address the issue of dog attacks insofar as possible. I understand it is currently in the Seanad. I ask the Government to consider moving it along more quickly than it has been moving to date.

The committee report contains 13 recommendations and observations. I think everyone in the House will agree, especially those who have a dog at home, that dogs are an important part of households and families. It is important that their welfare is looked after, the existing legislation is enforced and the welfare of dogs and other animals is to the fore for those who are lucky enough to own a dog.

I am glad to have had the opportunity to speak about this report and I hope its recommendations will be taken on board, primarily the recommendation that overall oversight, legislation and policy be the responsibility of one Department. We are seeking that it would be the Department of Agriculture, Food and the Marine. That is one recommendation that could be implemented easily. Rather than having two Departments and local authorities throughout the State involved, one Department should take responsibility. That would mean we would work much more effectively on dog welfare legislation and policy.

Seán Ó Fearghaíl (Kildare South, Ceann Comhairle)
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I thank Deputy Kerrane for that comprehensive overview of the report.

Mary Butler (Waterford, Fianna Fail)
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I thank Deputy Kerrane and all the members of the committee for all their work. I also thank the Deputy for giving such a comprehensive overview of the report. She simplified it. It was great to hear that.

Given that I am here on behalf of the Minister for Agriculture, Food and the Marine, Deputy McConalogue, I think that answers the first question set out by the committee. The Minister is on a trade mission in China, so I am here instead and I am delighted to be.

I start by acknowledging the value dogs bring to the homes and families of Ireland. They are more than pets. They are fantastic loyal companions and valuable friends to many people. The report on issues impacting dog welfare in Ireland, which was published by the Joint Committee on Agriculture, Food and the Marine in October 2022, is of particular interest to the House today given the recent tragedies relating to dog attacks. As we have sadly seen in the past few months, dog attacks can cause serious injury or even death and these attacks can affect people and animals. It is clear that work needs to be undertaken to strengthen the position relating to the control of dogs. The Government is aware of this and is taking proactive steps to address the issue.

The welfare of dogs is of increasing importance to us all. Animal welfare is a key priority for the Minister, Deputy McConalogue, and the Government. Considerable funding is provided to support animal welfare charity organisations. In December 2022, the Minister announced the allocation under the animal welfare grant programme of a record amount of more than €5.8 million in funding to 99 animal welfare charities. This marks the largest award of grant funding to animal welfare bodies ever made by the Department. A common theme, including in the most recent year’s funding, is a recognition of the importance of education and dissemination of knowledge to improve animal welfare. Imparting knowledge on animal welfare plays a crucial role in improving standards nationally. For example, raising awareness on responsible pet ownership can help to prevent dogs subsequently being abandoned or surrendered to charities for re-homing, thus helping to reduce the pressure that dog shelters and charities come under. Unfortunately, dogs being abandoned or surrendered to charities is a trend we are seeing a lot of recently, especially since the Covid-19 pandemic.

In December, the Minister took a leading role in co-ordinating Government actions in this area, in particular by examining what measures are in place for the control of dogs, both nationally and at local authority level. In January, he established a working group on the control of dogs with the Minister for Rural and Community Development, Deputy Humphreys, who holds responsibility for the Control of Dogs Act 1986 and the Dog Breeding Establishments Act 2010. Following a number of meetings, the working group submitted its report, which was brought to Cabinet by the Minister and approved by the Government on 28 March. The report, which contains a number of recommendations relating to matters discussed in the joint committee’s report, has been published on the Department’s website along with the minutes of the working group meetings. Work has now commenced on implementing the recommendations of the report. In implementing the report’s recommendations, it is proposed that draft legislation will be brought forward.

I recognise and pay tribute to the effort and thought the Joint Committee on Agriculture, Food and the Marine put into its report. The report considered a number of dog welfare issues and contains a number of recommendations in respect of legislation relating to dog ownership, welfare and breeding. The working group on the control of dogs took the report of the committee into consideration in its deliberations and the observations and recommendations in that report informed the working group’s report.

The Department of Agriculture, Food and the Marine continues to consider the report of the committee and its recommendations. In early 2022, the Departments of Agriculture, Food and the Marine and Community and Rural Development launched a new awareness campaign highlighting the responsibilities of dog owners with respect to dog control and sheep worrying. Two years ago, the Department of Agriculture, Food and the Marine launched Ireland’s first national animal welfare strategy 2021-2025, titled Working Together for Animal Welfare. This strategy takes a one-health, one-welfare approach, acknowledges and values the interconnections and inter-dependencies between human, animal and environmental health, and takes an evidence-led approach to policymaking, target-setting, monitoring and evaluation. The strategy sets out broad principles to improve animal welfare in the coming years. It sets out a framework for engagement and collaboration that will direct future activities benefiting both animals and society. The animal welfare strategy includes a commitment to establish an advisory council on companion animal welfare. This council has now been established and independent members with a range of expertise and experience have been appointed. The council is operational and several meetings took place last year and this year. It will advise on policy matters and, where appropriate, issue guidelines and recommendations on companion animals, including on some of the issues under discussion this evening.

The Department of Agriculture, Food and the Marine has primary responsibility for the Microchipping of Dogs Regulations 2015 and data received on compliance are encouraging. According to the latest figures available, 124,408 dog microchips were registered during 2020. This represents a 24% increase on the total number of dog microchip registrations in 2019.

Regarding the safe sale and supply of dogs, the Department has introduced SI 681 of 2019 which requires anyone selling or supplying pets to keep records, including a record of from whom the pet was obtained and to whom the pet was sold or supplied. These regulations also prohibit the advertisement of a dog for sale or supply without providing minimum information about the seller, origin and age and microchip number of the dog. This applies to all forms of advertising.

Unfortunately, not all dog owners act responsibly. Some dogs are kept in conditions without adequate space or exercise. This can lead to problems with temperament. It can create a welfare problem for the dogs concerned and a risk to people and other animals if the poor treatment and management of these dogs lead to aggression. For this reason, one of the priorities for the Department in working with the advisory council on companion animal welfare is to develop and promote a responsible pet ownership campaign. Responsible pet ownership is about educating people on what they need to consider before deciding whether to get a dog; how to keep and manage a dog appropriately; breeding healthy dogs with the right characteristics and healthy conformations; and the responsibilities of dog owners towards others, especially with regard to issues such as aggression and sheep worrying. The Department has also been engaging with stakeholders and dog welfare charities on many of these issues, including those relating to the welfare of dogs.

Turning to some of the specific recommendations contained in the report, I will take this opportunity to provide an update on the actions under way which touch on these points. The ear cropping of dogs is a cruel practice which is prohibited under the Animal Health and Welfare Act 2013. Following stakeholder feedback and informed by the observations in the committee’s report, the Minister proposes to introduce a statutory instrument soon, which will strengthen the law in this area and enable more effective action to prevent dogs being subjected to this cruel act. The committee’s report recommends a prohibition on the practice of surgical artificial insemination in dogs.

Taking account of the committee’s reflections on this subject and its recommendation, and considering the links between this practice, dog welfare and the control of dogs, the working group on control of dogs included in its own report a recommendation that this practice be banned. As the committee heard, the Veterinary Council of Ireland is also considering this issue.

The committee highlighted a number of areas where the current dog microchipping system could be more effective, with stakeholders describing particular gaps and issues. The working group has built on this recommendation and has included a number of specific recommendations to address these points. Work is under way to implement these recommendations, including updating the relevant regulations.

The committee considered the difficulties encountered when dogs are seized by authorised officers to rescue them from situations where their welfare is seriously compromised or threatened. These relate to the provisions of the Animal Health and Welfare Act 2013 under which animals may be seized by authorised officers. These points were considered by the working group and it has brought forward recommendations relating to this issue.

On responsibility for dog legislation, the committee called for joined-up thinking on dog welfare. The working group on control of dogs is a tangible example of responding to this recommendation. It continues to meet regularly and provides a way for the various Departments and agencies to ensure a coherent, whole-of-government approach to dog issues, from policy through to implementation and enforcement. I re-emphasise that the Department of Agriculture, Food and the Marine operates a confidential, dedicated animal welfare helpline, through which members of the public can report, by phone or by email, concerns about the welfare of any animal. The helpline can be contacted at 01 6072379, or by email at animalwelfare@agriculture.gov.ie. The Department received 1,251 animal welfare reports in 2022. Each report is followed up by a Department official or an Irish Society for Prevention of Cruelty to Animals, ISPCA, or Dublin Society for Prevention of Cruelty to Animals, DSPCA, authorised officer. As can be seen, the Department operates a proactive approach to this issue, and we will continue to work to ensure we have the laws in place to encourage responsible dog ownership while also making sure the enforcement capacity is there in the system.

I acknowledge the value dogs bring to the homes and families of Ireland. We all know the importance of dogs in supporting those who may be visually impaired, children with additional needs such as autism, and even supporting people’s mental health and emotional well-being. As a family, we took ownership of our very first dog last year. It is the first time I ever had a dog in all my life. Our doggie, Ozzie, is now part of the family and we would not be without him. I thank the committee members very much for all the work they did.

Jennifer Whitmore (Wicklow, Social Democrats)
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I thank Deputy Kerrane and the committee for this really important work. Sometimes in politics, I find it quite interesting that it can be the simplest things that do not get done. This is one of the issues where I could never understand why it had not been regulated and why we were not stronger in maintaining good robust regulations, legislation and enforcement. If you talk to 99% of people out there, this is an issue they care very deeply about and an area in which they know there are real needs. They also question why politics has not caught up with their passions and interests in seeing animal and dog welfare take priority and for it to be regulated. People see that it is a relatively easy thing to do, that it is within Government's remit and that it could do quite quickly. It is great to see this report and the recommendations, and I hope the Government progresses them. The Animal Health and Welfare (Dogs) Bill 2022, in particular, needs to be progressed through the Houses with some urgency.

When I was thinking about what I was going to talk about tonight, I said I would talk about the impact. If we do not get a good system of regulation in place, we have to consider what this will look like on the ground for people. Unfortunately, what we, and what our rescue staff, are seeing is a huge increase in dogs being surrendered, dumped, abused, and ending up many times being tied to the rescue gates overnight and the rescue staff having to deal with them with they come in. I have spoken to a lot of rescue staff over recent days to get a sense of how they are finding it and how they are coping. They are really at breaking point. They are completely overflowing with dogs. Some of them are at the point where they cannot take in any more and are having to send dogs away knowing what will end up happening to some of those dogs. They are in an extremely difficult position. The people who get involved in dog rescues have such passion and compassion in this area and this really impacts them. It impacts on their mental health and on their family lives. It is something in which they believe so strongly and you can get that sense from talking to them.

We are where we are at the moment because a lot of breeders - I am not saying everybody as we have some very good breeders in this country - either do not know what they are doing or essentially just see dogs as a product from which they can make a profit. They do not see them as the feeling, loving animals we all know and love. This has meant, unfortunately, that we essentially have too many dogs in Ireland and we have not regulated the number of dogs we have. When I spoke to the rescue staff today, they said they were getting dogs because of Covid-19 and because of mental health issues with people who bought dogs over recent years and can no longer cope with them. The cost-of-living crisis is really hitting dog owners badly. Whether it is food or veterinary costs, people cannot afford them anymore. One rescue centre said it gets a lot of animals that still have the bandages on. The staff know the dogs have been with a vet, but the owners cannot bring that dog back to the vet because, if they do, they will be charged, they cannot afford to pay the price, and so they bring the dog to a rescue instead. Indeed, the housing crisis has had multiple impacts, one of them being that people have to give up their dogs, whether it is due to the eviction ban being lifted or having to move around in rentals that are not accepting dogs. These are many of the issues and reasons dogs are ending up in these rescues. Primarily, it is because we are breeding too many dogs. That is the main reason.

In Wicklow, there are a number of really excellent rescue centres as there are throughout country. However, just as an example, one such rescue centre, Wicklow Animal Welfare, had 28 dogs surrendered to it in a 16-hour period -a huge number of dogs. Another rescue centre had 28 phone calls yesterday from people who wanted to surrender their dogs. That rescue centre is no longer taking in dogs. It cannot. We can see how difficult and how bad it is for the rescue centres. It is really important we get this regulation right and it is done properly, that there are strict controls on the number of dogs that are bred, the way they are bred, and indeed, things like the human interaction those dogs get. When they are finally dumped, and dogs are being dumped, they end up without homes and it can often be difficult to find new homes for them.

I am now going to talk about my dog. Two weeks ago, I rescued a dog from Wicklow Animal Welfare. Daisy is my third rescue dog. She was a breeding bitch. She is three years old, a setter, and the gentlest dog you could ever come across, but she had never been inside a house. She does not know how to behave inside a house. It is clear she is absolutely terrified. Gaining her trust has been difficult and we are still trying to do it. It is difficult and we see the impact of this. It is really important, therefore, that we get this issue right. I wanted to raise that to explain how difficult it is for the rescue centres.

I ask the Minister of State to pass one thing on to the Minister, Deputy McConalogue. Some of the rescue centres I have been dealing with do not take grants. My understanding is that if they take a grant, they have to have a policy whereby they will euthanise dogs within a certain period of time. Many of these rescues do not want to sign off on that. They have no-kill policies. They believe, and I agree, that there is a home for every dog and what needs to be done is to find the right home. Sometimes it can take some time to find the right home and family for each dog.

I ask that the Minister of State mention to the Minister that it is putting additional pressures on these rescuers that they have to fundraise entirely themselves and cannot access any grant funding. I thank the committee for this report. I hope we see progress in this area shortly.

Bernard Durkan (Kildare North, Fine Gael)
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A Aire Stáit, you have five minutes more if you want to take them.

Mary Butler (Waterford, Fianna Fail)
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No, I think we have said it all.

Bernard Durkan (Kildare North, Fine Gael)
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Deputy Kerrane has ten minutes.

Claire Kerrane (Roscommon-Galway, Sinn Fein)
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I will not need ten. I think everything has been said that needs to be said. I welcome some of the updates the Minister of State has provided. I am positive and hopeful that the recommendations will be taken into account. It is important that what has been put forward in this report is heeded. There are many reports from committees and everywhere else and many recommendations, and the work does not end when the report is finished and published.

I failed to mention dog wardens and it is important to give them a mention. They work really hard in all our local authorities across the State. Some local authorities are under-resourced and dog wardens are under pressure, particularly in rural counties, where they have to drive miles from one are area to another. We have said two Departments and the local authorities should not have oversight of policy and legislation but that it should be left to the Department of Agriculture, Food and the Marine. That is one of the recommendations. However, there is a role for local authorities, particularly for dog wardens. We need to ensure local authorities are resourced properly and have an adequate number of dog wardens. That needs to be looked at.

I am the only Deputy here, though there are not many of us present, who has spoken on this and not mentioned my dog. We have a lovely collie at home. I always say to people that dogs are so clever and our dog is a prime example of that. We called her Lassie, which I know is not original. She can open and close the back door, which I find incredible. When I say it to people, they do not believe me. When dad goes in for the tea and sits at the table, she comes in a biscuit or two. Sometimes we have to tell her to close the door and she goes back to close it. They are very clever and provide an awful lot of love. For older people and people who live alone who have dogs, they are incredible company and they provide support to people who sometimes are not recognised by others.

We have a job of work here. The report is done but the work does not finish there. I hope we can work together because I think there is cross-party support in the Chamber across the board in relation to animal welfare and, in this case, dog welfare. The recommendations are there, they need to be implemented and I think it is fair to say we will all work to make that happen.