Horses are historical icons of the United States. Before there were trains, planes and automobiles, horses carried people on their back across the country and helped people plow their farms. The image of the American cowboy is usually seen sitting on a horse. Horses also helped the first United States postmen deliver mail. Even today, there are a substantial amount of horse owners in America though they are mainly used for recreational purposes.[1] Horses are also currently used for companionship, farm labor, horse shows, horse races, walking in parades,caring policemen, and pulling carriages in places like Central Park.
Horses are legally considered livestock by the United States federal government.[2] Benefits of this classification include emergency disaster relief for horses, tax advantages for horse owners, equine limited-liability laws, and tracking and containment of equine diseases.[3] However, owning a horse is still very expensive. The American Association of Equine Practitioners estimates that the minimum yearly cost to care for a horse, not including veterinary and farrier expenses, is $1,825.[4]It is likely that the current cost of care is much higher than this due to drought conditions and recent increases in the price of gasoline and hay.[5] Include veterinary and farriercosts, as well as boarding expenses in some cases, and the yearly cost for keeping one horse can be over $5,000.[6]
Many horses live for 20 years and some can live for more than 30 years[7] though their useful life may be substantially less than that which results in a large population of unwanted American horses.According to the Unwanted Horse Coalition, horses that are unwanted include those that are sick, injured, old, outgrown (too small, not advanced enough), dangerous, too expensive, or burdensome.[8]Additionally, a substantial portion of the unwanted American horse population is linked to industries that create foals as a by-product. One example is Wyeth Pharmaceuticals which breeds mares in order to collect pregnant mare urine, the main ingredient in the medication Premarin used to treat menopausal symptoms.[9]The Nurse Mare Farm Industry is another example as it breeds mares in order to produce milk to feed foals other than their own.[10] In these two industries, foals are often born as unwanted by-products and the mares become unwanted when they are no longer useful. For many reasons, there are a substantial number of unwanted horses in America.
In an age where globalization is evident, the demand for horse meat in Europe and Asia can be met by the supply of unwanted horses in theUnited States.Predominantly English speaking countries such as the United States, Canada, and England do not eat horsemeat but other cultures use it as an excellent source of protein.[11]The leading horsemeat consumers appear to be the Chinese, who annually process an equivalent of 15% of the total United States horse population to provide their population with protein.[12] Other countries that process horsemeat include Italy, Mexico, Kazakhstan, Kyrgyzstan, China, Brazil, Argentina, and Mongolia.[13] The demand for horsemeat in Europe is increasing due to consumer concerns about bovine spongiform encephalopathy, also known as BSE or mad cow disease.[14]In 2006, the main importers of American horsemeat wereBelgium and France.[15] Another demand for horsemeat comes from zoos as large carnivores, such as lions and tigers, require a lot of high-quality protein in their diets.[16]Horsemeat is often preferred because it has more protein, less fat, less cholesterol, less sodium, and more iron than the same amount of high-quality beef.[17]
Recognizing the supply of unwanted horses in America and the demand for horse meat overseas, foreign owned companies opened slaughterhouses in the United States. As mentioned earlier, horses are considered livestock according to the constitution though horsemeat is not consumed by humans in the United States. Therefore, horses are sold at livestock auctions which are where slaughterhouses obtained horses. These slaughterhouses would buy live horses from auctions, transport them to the slaughterhouse, process the horsemeat and export it. The records of America horses that were slaughtered domestically can be found on the United States Department of Agriculture’s (USDA) website dating back to 01/05/1980.[18]Among many US laws that these slaughterhouses have to follow,horsemeat,like beef,must be inspected before shipping.[19]
There is a large history of federal legislation relevant to the horse slaughter industry. The 1996 Farm Bill declared it the Animal and Plant Health Inspection Service’s (APHIS) responsibility to regulate the commercial transportation of horses to slaughter[20] and the final rule on guidelines for the humane transportation was approved by the USDA in 2002.[21] The guidelines prohibit commercial shipment of a horse that is unable to bear weight on four limbs, unable to walk unassisted, blind in both eyes, a foal under 6 months, a pregnant mare that is likely to give birth during the trip. They also ensure that each equine has enough floor space to avoid injury or discomfort, that stallions or any aggressive equines are completely segregated,and that horses are provided access to food, water, and rest, 6 hours before loading on the vehicle. Additionally, federal guidelines for horse slaughter were established by the American Veterinary Medical Association (AVMA) to ensure that horses are euthanized in a humane manner.[22]The process is called penetrating captive bolt euthanasia and involves firing a rod/steel pin through the skull and into the brain, producing instantaneous brain death.[23] USDA inspectors (veterinarians) supervised the killing of all horses to ensure that horses were rendered insensible.[24]
There are many other federal laws protecting American horses. The Animal Welfare Act protects horses from research experiments.[25]The Horse Protection Act made soring show horses illegal.[26] The Wild Free-Roaming Horses & Burros Act prohibits slaughtering of wild horses.[27]
There have been several unsuccessful attempts to federally ban domestic horse slaughter. The Helping Out to Rescue and Save Equines Act (H.R. 2622) was introduced by Reynolds July 25, 2001 (107th Congress).[28] The American Horse Slaughter Prevention Act (H.R. 3781) was introduced on Feb. 14, 2002 by Rep. Connie Morella (107th Congress).[29] The American Horse Slaughter Prevention Act (H.R. 857/S.2352) was introduced February 13, 2003 (108th Congress).[30]
In 2005, US horse slaughter was successfully stopped. In June, the Sweeney-Spratt Amendment to U.S. House Agriculture Appropriations Bill suspended funding for fiscal year 2006 for inspections at horse slaughter plants (109th Congress).[31]Therefore, the slaughterhouses could not operate without inspections because according to US law, horsemeat must be inspected. The only remaining US horse slaughterhouses, located in TexasIllinois, petitioned the USDA and the Food Safety and Inspection Service(FSIS) to pay for their own inspections in November 2005.[32]The slaughterhouses opened again when the USDA and FSIS agreed to allow fee-for-service inspections at all U.S. horse slaughter plants starting March 2006.[33] The appropriations amendment worked temporarily to stop US horse slaughter but failed ultimately.
There have also been several unsuccessful attempts to ban horse slaughter on the state level. In January 2005, Arizona State Senator Mitchell introduced S.B.1288 prohibiting the slaughter of Horses.[34] Also in January 2005, Connecticut’s State Representative Diana Urban introduced H.B.6395 banning the slaughter of horses for exportation.[35] S.B.67 that prohibits the slaughter of horses and the possession or importation of horse meat intended for human consumption was another bill introduced in January 2005 by New Mexico’s State Senator Steve Komadina.[36] In February 2005, New York’s assembly member Deborah J. Glick and Senator Frank Padavan introduced a bill that prohibits the slaughter or sale of horses for human consumption as well as importing horse meat into the state for human consumption.[37]None of these were passed.
Currently, six states have successfully banned slaughtering horses or selling their meat. These states are California, Oklahoma, Ohio, Arizona, Texas, and Illinois.[38] As of 2007, there were only three slaughterhouses still operating in the US. The two in Texas were closed when a Texas court upheld an old law.[39] The remaining plant in Illinois was closed after a state decision on September 22, 2007.[40]When Texas and Illinois declared slaughtering horses was illegal, the only remaining horse slaughterhouses in the US had to close in 2007. Therefore, there are currently no horse slaughterhouses operating in the USthough one could legally open in 44 states.
This has resulted in an increase in the number of American horses being transported to Mexico[41] and Canada to be slaughtered. This is not a desired result for those who are pushing to make horse slaughter illegal because American horses are still being slaughtered, just not in the United States. This situation is actually worse than having slaughterhouse operating in America because the time that horses have to travel from auction to a slaughterhouse is dramatically increased. This is also worse because the US has no control of how horses are treated in other countries. In Canada, there are guidelines, inspections and even a national debate concerning horse slaughter[42] just like there is in America. However, the conditions that horses are experiencing in Mexico are much different as there have been recent reports of inhumane practices in Mexico.[43]
In response, a bill was introduced to the 109thCongress on February, 1, 2005 that would amend the Horse Protection Act to prohibit the shipping, transporting, moving, delivering, receiving, possessing, purchasing, selling, or donation of horses and other equines to be slaughtered for human consumption, and for other purposes.[44] This bill is known as HR 503 and S 311, which is the Senate equivalent. Since an export ban could be construed as a violation against North American Free Trade Agreement (NAFTA) and other trade agreements, this bill proposes a federal law banning the sale of horses for slaughter. If passed, this bill would essentially prohibit horse slaughtering in all US states and prohibit exporting horses to be slaughtered. On September 7, 2006, the US House of Representative voted 263 to 146 in favor of this bill, also known as the Horse Slaughter Prohibition bill.[45] Though the House passed this bill, it never became law because the Senate failed to vote on it before the 109th Congress adjourned. HR 503 and S 311were introduced to the 110th Congress on January 17, 2007. Though the House has not yet taken any further action, the Senate scheduled it for debate as of Nov 14, 2007.[46] However, there is currently a very active public debate about the issue.
Those who do not support slaughtering American horses do so for many reasons. As stated earlier, a horse is an American icon. HR 503states that“horses and other equines play a vital role in the collective experience of the United States and deserve protection and compassion.”[47] It simply does not settle well with many Americans that a symbol of their country can be slaughtered and eaten by people in other countries. Such an end does not seem fitting to an animal that serves as an American icon. A big part of the debate has to do with cultural preference. Americans do not eat dog meat though some cultures do and it does not allow dogs to be slaughtered so their meat can be exported. Similarly, Americans do not eat horsemeat though some cultures do and some people believe it should not allow horses to be slaughtered and their meat to be exported.[48] HR 503 goes on to say, “horses and other equines are domestic animals that are used primarily for recreation, pleasure, and sport; unlike cows, pigs, and many other animals, horses and other equines are not raised for the purpose of being slaughtered for human consumption.”[49] This alludes to the argument that, since American horses are not raised for their meat, they should not be slaughtered so that their meat can be processed for human consumption.
A large argument used to support ending American horse slaughter focuses on the manner in which slaughterhouses obtain horses. In order for an animal to be slaughtered for human consumption, the USDA has to inspect the animal before slaughter to make sure that it is healthy. This means that the animal has to arrive at the slaughterhouse alive and healthy which means that horses that are slaughtered are alive and relatively healthy.[50]This fact is upsetting for many Americans. Slaughterhouses obtain horses at livestock auctions where they bid against people who could provide a good home for a horse. HR 503 points out that “individuals selling horses or other equines at auctions are seldom aware that the animals may be bought for the purpose of being slaughtered for human consumption.”[51] It does not seem right that a horse owner can be unaware of their horse’s fate if they unknowingly sell it to a slaughterhouse buyer.
The main concern to American supporters of HR 503 seems to be the conditions horses find themselves in when sent to slaughterhouses. Though there are federal guidelines meant to insure the humane treatment of slaughter-bound horses, many people feel that the traveling and slaughtering conditions endured by horses are not acceptable. The Humane Society says, “Transport guidelines… are wholly inadequate and allow extreme suffering in transport to continue.”[52] Groups such as this also criticize the traveling regulations because enforcement only occurs once the truck reaches the slaughter plant.[53] This does not ensure that the guidelines are followed throughout the whole journey especially if the horses are transferred between different trucks before reaches the slaughterhouse.
Some supporters of HR 503 also believe that the way which the horses are slaughtered is far from humane. The Humane Society claims that “horse slaughter is a death fraught with terror, pain, and suffering.” They claim that the penetrating captive bolt used to render the horse brain dead before its throat is slit is not always effective. “Because horses are skittish by nature, it is particularly difficult to align them correctly and ensure the captive bolt stun gun renders them unconscious…Undercover footage obtained by The Humane Society of the United States demonstrates that fully conscious horses are shackled and hoisted by the rear leg and have their throats slit.”[54] Those supporters of HR 503 concerned with the travel and slaughter conditions that horses endure feel that the established guidelines are insufficient and there is a lack of enforcement.
Many people are recognizing environmental benefits since the closing of all US slaughterhouses. “The operation of the horse slaughterhouses in theUnited Stateshad a very real negative environmental impact- two out of the three were in violation of current environmental law related to the disposal of blood and other waste materials. Prior to its closure, Mayor Paula Bacon of Kaufman, Texas—the home of one of the three formerly-operating horse slaughter plants in the United States—desperately stated "Dallas-Crown is operating in violation of a multitude of local laws pertaining to waste management, air quality and other environmental concerns...Residents are also fed up with the situation. Long-established neighbors living adjacent to the plant cannot open their windows or run air conditioners without enduring the most horrific stench." These people are also not worried about the effect of increased horse carcasses on the environment. Approximately 950,000 horses die annually and are safely disposed of by means other than slaughter, and the infrastructure can absorb an increase in numbers.
People who support stopping horse slaughter also say that the horses that were being bought by slaughterhouses at auction will not suffer lives of abandonment if HR 503 becomes law. Because of state animal cruelty laws, it is illegal for a horse owner to allow their horse to starve. If a horse owner no longer wants their horse, they can sell it, lease it, donate it to a worthy organization, or have it humanely euthanized by a veterinarian.[55] There are also more than 400 horse rescue and sanctuary facilities in the United States that provide horses with homes, all of which must comply with state and local animal welfare statutes. According to the Humane Society, “in California, where horse slaughter was banned in 1998, there has been no corresponding rise in cruelty and neglect cases... Horse abandonment and abuse is a sad reality whether or not slaughter is an available option. There is no causal connection between the two issues. High hay prices, drought, poor economic conditions and owner education are all driving forces for horse abuse. Continuing horse slaughter—a form of horse abuse in itself—does not alleviate these problems.”[56]Additionally, they claim that a decrease in horse theft will result as the market for live horses decreases.In California, “horse theft dropped 34 percentafter the ban.”
Conversely, those who do not want to ban US horse slaughter believe that unwanted horses will indeed suffer if HR 503 becomes law. Though there are anti cruelty laws meant to prevent horse neglect, many states lack the manpower and financial resources necessary to monitor and investigate neglectful and abusive situations. There is not adequate enforcement of these laws. There is also not adequate funding available to deal with neglect situations in which abused horses must be collected and euthanized as this process is expensive. There are no pounds or public euthanasia funding for horses like there are for dogs and cats.Therefore, horse suffering is likely to increase as horses are left to starve in their fields following a ban on horse processing. “Local and state governments will be adversely impacted by increased costs of regulation and care of unwanted or neglected horses… Communities will expect these agencies to respond and be responsible for abandoned and neglected horses on a level equivalent to current dog and cat programs. Most agencies will need to generate larger resources, educate their personnel, acquire facilities for housing horses, and reallocate their limited funds to include horses and support veterinary services to properly care for abandoned and neglected horses in their communities… Without the option and economic incentive to process horses, the number of animal neglect cases may double or triple in local communities.”[57]