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The Journey of Animal Welfare Law in Hong Kong – Then and Now

With the introduction of the first piece of animal protection legislation in the world originating in the United Kingdom in 1822 (The Cruel Treatment of Cattle Act) the impetus to legally protect animals started. Through the humane movement the same principles gradually extended globally.  In Hong Kong the initial approach was piecemeal with inclusion of anti-animal cruelty elements in some general Ordinances in the 1800’s such as CAP 5 The Good Order and Cleanliness Ordinance (1844).

Hong Kong - The Beginning

The SPCA was founded in August 1903 as a humane organisation by a group who were interested in protecting animals. Later in the same year, the Livestock Import and Export Ordinance was enacted with some regulations that aimed to safeguard animal welfare. The SPCA was officially established as a non-profit organisation in 1921 and started advocating for the introduction of specific animal cruelty legislation.

Following active lobbying efforts by the SPCA, Hong Kong officially introduced Cap.169 in late November 1935, referencing the British Law written in 1911. 

Action and Progress

For decades, the SPCA took ongoing actions to fight for the humane treatment of animals. Whilst taking action in investigating animal cruelty cases around Hong Kong, we successfully advocated for more humane treatment of livestock and other animals and continuously educated different parties, including the general public, on animal welfare and the need to have a humane approach to animals.

Different pieces of legislation were gradually introduced that often had elements that helped to protect animals in certain instances such as Cap. 167, which protected dogs and cats from being slaughtered for food and Cap. 170 that regulated the hunting of animals.

Outdated and Stalled Progress

From the 1960s onwards, advances in animal welfare science greatly improved our understanding of animals’ needs and their capacity to suffer. As a result, laws focused only on punishing cruelty were increasingly seen as inadequate.

Around the world, animal protection legislation began shifting from a narrow anti-cruelty, deterrence-based model to a more proactive approach that promotes better animal welfare.

By the end of the 20th century, reform of Hong Kong’s legislation had been proposed, and drafting instructions were developed with input from the Animal Welfare Advisory Group (AWAG). However, the Government decided not to take the proposal forward in the early 2000s.

One Step Forward

In 2006, in response to public outcry related to some high-profile animal cruelty cases, a major milestone was reached when the maximum penalty for animal cruelty was increased from a HK$5,000 fine and six months in prison to HK$200,000 and three years in prison. Unfortunately, the actual legislation itself was not amended, leaving it deficient.

Gathering Momentum

The SPCA has continued to advocate for stronger animal protection and better welfare safeguards through the reform of Hong Kong’s legislation.

In partnership with the Law Faculty in the University of Hong Kong, a report published in 2010 assessed and compared Hong Kong’s animal protection laws with those of other jurisdictions, helping to build the case for reform.

In 2019, the Agriculture, Fisheries and Conservation Department (AFCD) finally moved to update Cap. 169. A public consultation received over a thousand submissions, with 88% of respondents supporting amendments to the Ordinance.

In 2020 the SPCA assisted with research by the University of Hong Kong that analysed animal cruelty cases that occurred over a 5 year period. The paper (An Empirical Study of the Nature of Animal Abuse Cases in Hong Kong from 2013-2019) published in 2021 highlighted the types of abuse that occurred in Hong Kong and some areas for concern and action.

We continue to strongly advocate for reforms that would close existing loopholes and introduce important missing elements — including a legal duty of care and the power for authorised personnel to issue improvement notices to negligent owners. These measures would allow earlier intervention to protect animals before suffering occurs.

The Final Push

Unfortunately, whilst momentum stalled, we continued to educate stakeholders on the need for improved animal protection – submitting our views to AFCD, the Legislative Council and during the annual consultations on the Chief Executive’s policy address and more recently for Hong Kong’s first Five-Year plan – asking that there be immediate action in relation to reviewing and updating Cap. 169.

Recently there is hope – the Secretary for the Environment has committed to providing an update by the end of 2026. In 2026 Policy Address, the Government also pledged to step up efforts to combat animal cruelty and complete the legislative amendment exercise by 2027. However, the current focus appears to be on increasing penalties and enforcement powers and potentially introducing some new specific offences while broader modernisation — including transforming the law into a true animal welfare protection framework with the introduction of a “Duty of Care” — remains uncertain.

This matters because as we understand animals better and they are more integrated into our daily lives, there is growing public concern for them making Hong Kong’s legislation seriously out of step with public opinion. As highlighted in a 2010 legal review by HKU and the SPCA, the law falls well behind modern standards. With the current Legislative Council term (2026–2029) now underway and the Government’s recent commitments, this is a critical window to push for meaningful reform.