Part of the re-election campaign Prime Minister Trudeau included a commitment to ending the trade of horses for the production of horsemeat for export. The 2021 Mandate Letter to then-Minister Bibeau stipulated that she be committed to fulfilling this ban, but she failed to execute the ministerial mandate letter. The government has acknowledged that it has been stung by criticism for its inaction on this mandate. The lack of fulfilment has since been identified as a trade irritant (any issue or policy that creates tension or friction in international trade relations between countries) between the EU and Canada through a little-known mechanism of the Comprehensive Economic and Trade Agreement (CETA).
Further embarrassment for the Liberals continued – in December of 2022, the Globe and Mail published an article that highlighted the inaction by the government in fulfilling this election promise, while underscoring calls for action by public figures. Another such piece the Globe and Mail published further condemned the practice and called for the realization of this campaign promise. The failure to implement this commitment was interpreted by the federal government as a future issue in the next election cycle.
For more than two years, the Government of Canada has been reviewing (at a glacial pace) the legal and policy framework to address the Liberal mandate to ban the live export of horses for slaughter. Unfortunately, much of this 1,200+ page series of FOIA documents has highlighted the degree of obstruction due to the complexities and inefficiencies of bureaucratic systems within government agencies. Disappointingly, an entire team from the CFIA/AAFC/Legal Services, and Canadian Border Services Agency crafted the typical self-congratulatory response letter we’re all too familiar with, about the CFIA maintaining high standards, The Health of Animals Act (HAR) ensuing humane transport, variations of which was sent to Japanese agencies.
Agriculture and Agri-Food Canada also endorsed and disseminated misleading information from pro-slaughter individuals and organizations that has been debunked more than a decade ago. One wonders why so much effort has gone into this analysis when the trade largely benefits only a few individuals, and the government’s own legal analysts have stated that the process to end trade seems reasonably straightforward and a decision not necessarily requiring bilateral agreement:
“Article 12.1 of the WTO agreement on agriculture provides that a member must notify in writing and in advance of implementing an export restriction or prohibition, as well as consult with another Member that has a substantial interest as an importer (e.g. Japan) that requests it. The notification is the include the rationale and duration of the measure.”
Excessive redaction of the most important information in this FOIA will raise questions about transparency and accountability. Notable redactions include the certification process to export horses, any information about the exporters themselves, and perhaps most importantly, Japanese response to the prospect of ending the trade. There have been some Japanese media reports about reports made in Canadian and UK media regarding the concerns over transportation of these animals but there is no Japanese opinion provided anywhere.
History of Trade Relations with Japan:
• Japan is the fifth largest importer of agri-food and seafood products in the world, and Canada’s third largest market for agri-food and seafood.
• Horse meat is a traditionally eaten food in Japan. In particular, in Kumamoto Prefecture where horse meat is considered a centre of local cuisine that has been part of the culture for over 400, consumption is focused on fresh horse meat. MAFF promotes horse meat as a low-fat, low-calorie, high-protein food rich in minerals such as iron,calcium, and zinc.
• Since 2012, Canada’s exports of live horses for slaughter have been almost entirely destined for Japan, and Canada has been Japan’s largest supplier in most years with a market share ranging from 29% to 46% over the years. Japan receives about two shipments per month of live horses for slaughter from Canada, and on average, a shipment contains 100-125 horses. Foals from 6-9 months are transported to feedlots where they remain until the age of 2. Then they are flown overseas from Edmonton, Calgary, and Winnipeg.
• With the lowest food self-sufficiency level ratio among G7 countries (38% in FY 2021/22), food security is a major concern for Japan. This concern was further aggravated by the spate of export restrictions on agricultural goods that governments implemented as supply chains were roiled by COVID-19 and Russia’s invasion of Ukraine.
• Canada and Japan are both members of the Comprehensive and Progressive Agreement on Trans-Pacific Partnership (CPTPP) and share a likeminded view regarding an international rules-based trading system.
• Any Canadian exporter who has successfully negotiated a commercial contract with an importer in Japan and who can comply with Japan’s import conditions (as specified in an established health certificate) may export horses to Japan. What is required to meet these expectations was redacted from the FOIA.
• In 2021, Canada was the world’s eighth largest exporter of horse meat, with exports valued at $28.6 million.
Understanding and mitigating unintended consequences is important for effective governance and policymaking. Whenever you read any claims about horse slaughter from the following groups, you know they are going to be about as impartial as David Duke’s critical review of Alex Haley’s “Roots.” Most exasperatingly, AAFC included numerous references to outdated and debunked articles, from as far back as 2006 (preceding the cessation of horse slaughter in the US). It’s unclear why promotional material for horse slaughter was included at all, since most horses shipped for export are purpose-bred or are “byproducts” of an industry that breeds horses for other purposes.
These supplemental materials included:
• A 2006 document from Animal Welfare Council, Inc. Colorado Springs, Colorado.
• Unintended consequences of horse slaughter, by Sara Wyant of Agri-Pulse, who promoted the 2012 horse slaughter plant proposal by United Horsemen.
• An assortment of refuted references and pro-slaughter organizations who want to convince you to upgrade to a new $5,000 AQHA horse, but need to provide you with a pathway to dispose of your $500 horse who is stubbornly clinging to life.
• Canadian Meat Council, prepared in consultation with Bouvry Exports and Jennifer Woods of J. Woods Livestock Services.
• The inclusion of an article from BEEF magazine blaming horses for irreversibly damaging rangelands, and proclaiming slaughter as needed for “good horse welfare.” The author, Courtney L Daigle, an Assistant Professor of Animal Welfare at pro-slaughter Texas A&M University, claims that horse slaughter is “doing the right thing for the animals.”
These pro-slaughter articles, which somehow found their way into a discussion on live horse export, are very familiar to those of us who have been advocating against slaughter and live export for years. Over time, the purported claims became truth to many in the horse industry who were saddened to hear of such reports, and while conflicted about slaughter, began to believe that it was the better alternative for horses facing such neglect and abuse.
The “Horse Welfare” Alliance of Canada, which churns out its own brand of pro-slaughter propaganda and receives hundreds of thousands of dollars in grants from the Canadian government, asserted that live export is needed to enrich 347 breeders who provide purpose-bred horses, 25% being indigenous. A request for clarification on the number of indigenous exporters was answered by the CFIA National Issues Manager, who stipulated that there are no known indigenous producers of horses for export. While 347 breeders seems like a huge number of suppliers in this industry, the reality is that there are only 4 active exporters and the 2 largest breeders for export are in Ontario. The bulk of the profit from this industry goes to Ontarians, including WillJill Farms.
These primary exporters purchase horses from a few hundred producers (the remaining 343 approved “exporters”) from different farming situations. Most horse breeders supplying this market breed horses for other purposes and comprise a very small secondary market in an industry that is less than 20 years old.
There is little support by humane agencies and the general public for the continuation of this barbaric trade. A poll conducted by the BCSPCA found that only 22% of those polled want to continue the export of live horses. Equestrian Canada was approached as part of the stakeholder communication process and acknowledged that most of their members opposed horse export for slaughter. The BCSPCA also weighed-in with their opposition to the transport of horses overseas. Katherine Curry – President Racetracks Canada, announced full support for the Bill. Toolika Rastogi, PhD, senior manager, policy and research for Humane Canada, also reached out to decry the trade. Other stakeholders included the Winnipeg HS, The Canadian Horse Defence Coalition, and Animal Justice, who has recently carried out a successful private prosecution of live shipper Carolyle Farms (a legal avenue that would not be necessary had the CFIA decided to take action themselves). The government also acknowledges receiving letters in the “tens of thousands,” from individuals opposed to live export. Also included in the FOIA documents were several redacted letters from the general public.
Reading the contents of the FOIA and watching debates of the Standing Committee on Agriculture and Agri-Food, reminds us of how vigilant we must be challenging propaganda. At numerous points in the aforementioned debate, groups and individuals needed to correct the record on horse transport and the HAR as being some sort of divine document that ensured humane treatment. It’s exasperating to hear that politicians believe the standard of care for high-value, competitive horses is to ship them 4 at a time in flimsy wooden crates without food or water, just like slaughter-bound horses. Refuting incorrect information is essential for combating deliberate disinformation campaigns aimed at manipulating public opinion and sowing division. It requires vigilance, transparency, and a commitment to accuracy from all stakeholders, including governments, media organizations, educators, and individuals. Many groups and private individuals have written to correct the public record on predatory horse industries, including John Holland of the Equine Welfare Alliance. If you’re new to this discussion, please read some of his analytical writings, which directly address many of the falsehoods perpetuated by the above groups.
There is a growing international movement to end live export of animals, driven by concerns for animal welfare, ethical treatment, and environmental sustainability. Canada implementing a ban would signal its commitment to aligning with these global trends and adopting progressive policies:
• After 6,000 cattle and 41 crew members drowned in a typhoon, New Zealand banned live export.
• A Bill introduced in the UK commons would ban live export of certain livestock.
• Germany will withdraw export certificates for cattle, sheep, and goats, to countries outside the EU.
• The Australian government has committed to phase out live export of sheep by sea.
• In 2023, a Brazilian judge banned live cattle exports.
“Animals are not things. They are sentient living beings…
~Judge Djalma Gomes
individuals who feel hunger, thirst, pain, cold, anguish, fear.”
For further reading – entire FOIA package available on ScribD – https://www.scribd.com/document/719022114/A-2200-00120-Release-Package
and here – https://heatherclemenceau.wordpress.com/wp-content/uploads/2024/04/a-2200-00120-release-package.pdf
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