A report on Ireland’s controls on horses and food safety has made several recommendations to improve the system with the relevant authority pledging to make changes.
Professor Paddy Wall, who is a veterinarian and food safety expert, was commissioned by the Department of Agriculture, Food and the Marine to carry out a review of the equine traceability system. This followed an “RTE Investigates” documentary in June 2024 highlighting the potential entry of misidentified horses into the food chain.
The program alleged that the one slaughter facility in Ireland, Shannonside Foods, had processed horses that were not for human consumption. It appeared that horses stamped out of the food chain were being given new identities to gain approval for slaughter. The broadcast raised concerns about the export of potentially ineligible horses for slaughter outside Ireland.
It also alleged that some riding horses may have been exported with falsified passports that altered their identities, including changes to their age. If substantiated, such practices would compromise traceability and food safety, according to the report.
Wall said issues highlighted in the program underscored the need for reforms in Ireland’s equine identification, traceability, and registration systems to address vulnerabilities that could allow for criminal activity and fraudulent practices. He said if existing loopholes are not addressed, the issues exposed could easily reoccur.
Main recommendations
Horses excluded from the food chain and unfit for other purposes are effectively rendered valueless at the end of their lives. This creates opportunities for fraudulent and illegal activity, said the report. Illegal slaughter in unauthorized facilities is also a concern as meat may find its way into the supply chain, bypassing traceability, and food safety standards checks.
Horse slaughter is banned in the United States on welfare grounds but many horses are shipped to Mexico and Canada for slaughter. In Canada, they are often held in feedlots for a six-month washout period, after which their meat can be exported to the European Union.
Wall listed eight main steps including enhancing data integration; strengthening reporting and oversight; improving accessibility and transparency; building awareness; enhancing compliance and strengthening enforcement; and promoting a Europe-wide approach.
“By implementing these measures and fostering cross-border and EU-level cooperation, Ireland can not only strengthen the integrity of its equine sector but also position itself as a leader in pan-European improvements,” said Wall.
“While horse traceability, identification, and horse meat issues may not currently be a priority for many member states, they must recognize the potential threat to the integrity of the entire EU food control system, as highlighted by the 2013 horse meat scandal.”
Agency action plan
In response to the report, the Department of Agriculture, Food and the Marine published an action plan that included pursuing legislative changes at EU level in 2025 for residue testing at slaughter and equivalency of standards for EU produced and imported horse meat.
A new equine inspection regime of random and risk-based inspections will be established and by 2026, checks on all live horses from EU member states or those imported from other countries through Irish border control posts will be increased toward 100 percent.
Martin Heydon, Minister for Agriculture, Food and the Marine, welcomed the report.
“I look forward to acting on these proposals so that we can ensure the horrific scenes broadcast in last June’s documentary can never happen again. Professor Wall’s review highlights the broad range of stakeholders involved across our equine sector; from owners and breeders to vets and regulators,” he said.
“Implementing a new traceability system fit for a sector committed to high welfare standards and a bright future will be dependent on the willingness of everyone connected to horses engaging with this plan and accepting their responsibilities to ensure their horses are traceable and safe.”
The report recommends strengthening identification, traceability, and welfare. The aim is to ensure owner accountability through better traceability, stricter enforcement of the law on equine identification and the use of science and technology for improved traceability and food safety.
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