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Horse Welfare in North America IntroductionThere is considerable diversity in use, housing, management and local climate for horses in North America. The simple definition of horse welfare is not clear, and varied regions or cultures do not always agree on what is acceptable use versus an unacceptable welfare problem. The American Veterinary Medical Association states animal welfare is, "a human responsibility that encompasses all aspects of animal well‑being, including proper housing, management, nutrition, disease prevention and treatment, responsible care, humane handling, and, when necessary, humane euthanasia." If you presume that raising and using horses for varied purposes is acceptable, given appropriate management, oversight and veterinary care to minimize injuries, illness and discontent, then questions still remain regarding the level of acceptable risk, the normal incidence of disease, the tolerable threshold of discomfort, or even the definition of discomfort. For the purpose of discussion at this workshop, this presentation will review selected example horse welfare issues in current discussion or legislation in North America. Selected Horse Welfare Issues in Current Discussion or LegislationHumane Transport to Slaughter Equine slaughter facilities are located in both Canada and the United States (US). There is both ethical objection to slaughter of horses for human consumption, and acceptance of slaughter if managed humanely. Humane commercial transport of equines to slaughter was included in the US Farm Bill in 1996. The United States Department of Agriculture (USDA) recently established the specific regulations with input from the public, veterinarians, humane organizations, equine organizations and related industries (Cordes, 2001). The regulations address many issues, including the provision of food, water and rest; banning the use of electric prods; banning the use of double‑deck trailers after 5 years; provision of veterinary assistance by an equine veterinarian when indicated; access by USDA representatives to the conveyance or horses; and assessment of civil penalties of up to $5000 per violation. It is important to note the need for objective, science-based data when addressing welfare and management issues. Several of these transport regulations are based on data collected from USDA sponsored research on transported horses. It is particularly important to note an emphasis on performance-based standards instead of engineering based standards. Rather than define specific parameters for endpoints such as ventilation (engineering-based standards), the regulations rely on whether the conveyance results in injury or disease in transported horses (performance-based standards). For example, the continued use of double-deck trailers for 5 years was intended to minimize the economic loss to operators with this equipment. While this may seem contradictory to the regulations requiring humane transport and use of appropriately sized conveyances, using performance-based criteria the owners/shippers using these conveyances are still held responsible for any injuries that may occur during transport. Wild Horses and Burros Since 1971, wild horses and burros in the US have been protected by federal law from capture, branding, selling, harassment or death. The Bureau of Land Management (BLM) manages public rangelands to support all rangeland values and determines the appropriate number of horses that the range can support. Excess horses and burros that pose a threat to themselves or their habitat are removed. Unadoptable horses are not sent to slaughter. Old, sick or lame horses, and adoptable horses for which there is no adoption demand by qualified individuals, are "destroyed in the most humane and cost efficient manner possible." Healthy, excess horses are adopted through adoption centers. Requirements include that the title remain with the Federal Government for one year, horses can not be transferred without approval, horses are available for inspection, and all care is the responsibility of the adopting individual. A certificate of title is issued to the adopter after one year, and at this point the horse is no longer considered wild and is no longer regulated by the federal government. An adopter can obtain title to no more than 4 horses in a 12-month period (BLM, 2002). There is some question whether the adoption program can keep up with the reproduction rate and the need to remove horses from the range. In FY 2000 there were an estimated 43, 629 wild horses in the US, and a 5-year removal of 33,676 and adoption of 31,146 horses. The numbers of excess horses that are adoptable and simply maintained versus unadoptable and destroyed are not available. There have been concerns raised regarding the care of wild horses that are being maintained by the BLM following removal from the range. Establishing appropriate oversight criteria, and obtaining accurate data regarding horse numbers and outcomes is vital to the success of this program. Other options for population control, such as immunocontraception, may prove more satisfactory. Pain-Induced Accentuation of Gait The Horse Protection Act was enacted in 1970 specifically to prohibit the exhibition or sale of horses exposed to pain-provoking practices known as soring, used to accentuate a performance gait (USDA, 2002). The practice affects a small percentage of horses, so it is interesting that it gained such notoriety to result in federal legislation. While the mandate seems clear and the issue seems simple, disagreements occur regarding the identification of pain or soring, and means of USDA enforcement. USDA veterinarians are capable of inspecting only a fraction of relevant gaited horse shows, therefore they partner with horse industry organizations. Designated Qualified Persons inspect horses at shows for compliance with the Horse Protection Act. USDA veterinarians' activities include auditing records, participation in training courses, oversight of Designated Qualified Persons and direct evaluation of horses. They determine whether a horse is sore by following a uniform guideline for evaluating locomotion, general appearance, and palpation of the lower front limbs. Debate occurs regarding the thoroughness of the exam, the consistency or meaning of any observed responses, and the qualifications or priorities of the person conducting the inspection. Ongoing refinement in regards to enforcement of the Horse Protection Act might include research into improved examination and diagnostic techniques, and improved methods of training and oversight of USDA veterinarians and industry Designated Qualified Persons. While there may be continued debate regarding the effectiveness of the enforcement of the Horse Protection Act, the industry role in self-regulation is an important consideration. Pregnant Mares' Urine (PMU) Industry PMU ranching is a significant equine industry in the Canadian prairie provinces and the United States state of North Dakota involving approximately 33,000 mares annually. The industry is based on the collection of urine of pregnant mares from which estrogen conjugates are extracted for manufacture of hormone replacement therapy for treatment of post‑menopausal symptoms in women (recently reviewed by Freeman, 2000). Management includes stabling in group tie-stall barns from October through March (mid gestation) and pasturing for the remainder of the year (foaling, breeding and early gestation). Welfare issues that have been raised include schedules of intermittent watering when in barns to prevent soiling water, feed and bedding; schedules of turnout from the barn for paddock exercise; and sale of foals. The PMU industry has demonstrated “buy in” to issues and has developed programs of oversight and research initiated from within the industry. Oversight has included a multi-level system of industry and non‑industry inspections by field inspectors and veterinarians. The industry has also sponsored ranch reviews by external organizations and veterinarians including the Canadian Farm Animal Care Trust, the American Association of Equine Practitioners, the Royal Society for the Prevention of Cruelty to Animals, and the International League for the Protection of Horses. The industry has also created advisory groups for the purpose of making recommendations on PMU issues and for collaborating on industry supported research into husbandry and well-being. The industry initiated a research program to address questions relevant to PMU mare management, and data have been published in peer reviewed professional veterinary journals. Ranchers utilize a Code of Practice for guidelines on ranch management, barn design and horse care. This Code was written by a committee from various backgrounds and is appended to the Canadian National Equine Code of Practice. The PMU ranchers' association, the North American Equine Ranching Information Council, has worked to increase education to ranchers regarding issues of PMU management and has developed novel programs to improve the quality of foals in the industry and expand foal markets. The research, oversight and education programs developed in the PMU industry have become models for other animal industries regarding self‑regulation, recognizing the role of internal as well as external reviews, addressing questions of horse care using research based data versus experience-based data, and enlisting the involvement of veterinarians and welfare associations. Horses as Livestock Versus Companion Animals The definition of horses as livestock versus companion animals has important ramifications on many aspects of equine care and welfare in Canada and the US. Defining horses as livestock may adversely affect the eligibility of horse owners and breeders for federal assistance in cases of emergency or disaster. Other potential adverse effects include programs managed by agriculture departments, livestock-specific anti-cruelty laws, and limited liability laws written to include all livestock. Important tax relief applied to livestock could be lost. Debate over the definition of horses as livestock should include the magnitude of the horse industry in the agriculture arena, and the related effects horse farms have on other agricultural industries such as feed and barn construction. Furthermore, in some areas it is horse farms that are primarily responsible for keeping land in agricultural use instead of development. Discussion The need no doubt exits for many equine industries to discuss issues, improve oversight programs, and support research into related horse management and use. Rodeo has been criticized as inhumane and has been banned in some localities. Yet, the Professional Rodeo Cowboys Association was a leader in developing welfare standards for their sport (Schonholtz, 2000). Carriage horses work in numerous metropolitan areas (Merriam, 2000). Are they an example of classic horse use at its finest or of misuse and inhumane treatment? The horse racing industry must address questions related to catastrophic injuries, racing two-year olds, and the use and regulation of therapeutic or performance-altering substances (Mundy, 2000). Olympic style competition, endurance riding and similar events have been criticized for pushing horses to extreme limits, with the resulting potential for injury. These varied equine activities and the related issues have several common themes. An industry or group must be able to document whether or not a problem exists, and they must be able to objectively justify the answer. Certain core questions need to be addressed. These include whether the risk of injury is too high, whether the extent of potential injuries is too great, whether appropriate safeguards can be adopted, and whether the activities can be regulated or safeguards enforced. Similar discussions could be applied to many equine activities and issues. Certainly, the answers to these issues should include scientific study and performance-based standards. The benefits of making management decisions based on sound scientific research were clearly demonstrated by the concerted, international effort to address the problems of Olympic competition in hot humid weather prior to the Atlanta games. The research led to improvements in techniques for managing this extreme competition and addressed the well-being of the horses. Many equine industries are responding. Canada has developed a national code of practice for general equine management. Endurance associations follow regulations and guidelines for race management and horse care, including parameters for mandatory veterinary checks throughout the race (Frazier, 2000). The Professional Rodeo Cowboys Association utilizes a welfare committee that actively addresses humane issues in rodeo. They have developed a Code of Practice and require veterinarians at each event. Carriage horse management is typically regulated by local ordinances. In all these cases, it needs to be determined whether more work in research, regulation and education is needed. What are the risk factors and incidence rates for injury? Which management practices reduce these rates, and which do not? How do you gain industry support, and provide current information? These are not always easy to answer, but this author would propose that the following key concepts should be considered: 1) Decisions regarding care and management in equine husbandry and associated activities based on sound scientific principles; 2) Oversight and regulation of the care and management should be clearly defined. Oversight both from inside as well as outside the industry and based on performance standards will likely be most efficient in achieving solid objectives; 3) An industry’s “buying in” to the process will likely be most productive. To move beyond the issue of whether or not horses should participate at all, industries must demonstrate the ability to answer these questions and safeguard the well-being of the horse. Given that horses will participate, what is best for the horse? References BLM (2002) http://www.wildhorseandburro.blm.izov/ Cordes T (2001) Commercial Transportation of Equines to Slaughter. Federal Register 66(236): 63588‑63617. Frazier DL (2000) Who Speaks for the Horse-the Sport of Endurance Riding and Equine Welfare. J Am Vet Med Assoc 216(8): 1258-1261. Freeman DA (2000) The Pregnant Mare’s Urine Industry – Management and Research. J Am Vet Med Assoc 216(8): 1239-1242. Merriam JG (2000) Urban Carriage Horses 1999-Status and Concerns. J Am Vet Med Assoc 216(8): 1239-1242. Mundy GD (2000) Racing. J Am Vet Med Assoc 216(8): 1243-1246. Schonholtz CM (2000) Animals in Rodeo-A Close Look. J Am Vet Med Assoc 216(8): 1246-1249. USDA (2002) http://www.usda.gov. |
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