Animal protection legislation 動物保護立法

1. Animal protection legislation 動物保護立法 Module 27 模組27

2. The basis of legislation立法基礎 • 從法律可以看出社會的倫理。 • 歐盟國家之動物法律是按照動物別來立法。計有：食用動物、伴侶動物、實驗動物等。歐盟的細部指令，又再進一步管理各種經濟動物，在農場、運輸及在屠宰場予以保護。又有法條保護實驗動物，以及特殊規定禁止為了皮草使用捕獸夾捕獸，禁止進口鯨魚和鯨類製品。 • 然而並非所有的人對動物之定位都一樣，而立法過程是正反辯論之結果。

3. Definitions定義 Law(法律): a rule established in the community by authority or custom; a body of such rules法律:是一個社群靠著權威跟傳統建立的規則；一個具有這種規則的主體 Legislation(立法): law making; the body of law立法:建立法律，法律的主體 Statute(成文法): a specific law passed by a legislative body 成文法: 一個經過立法單位通過的法律 Offence(犯法): an act contrary to the law反對法律的行為 Defendant(被告): a person accused of an offence in a court of law被告: 一人在法庭被控告犯法 Plaintiff(原告): a person or body bringing an action in a court of law 原告: 一個人或主體在法庭提出告訴

4. A model law法律規格 • Identify aspects of the legal system within which it must work 從立法系統之各層面去確認法律的規格。例如歐盟之法規(directive)是由歐盟各會員國執行，但亦同時屬於歐盟聯邦之法律系統。聯邦和各國政府共同決定立法責任的歸屬，由此可知法律系統的效果。 • Understand the different types of legislation瞭解不同種的立法形式。 • Identify characteristics of different types of statute 辨別不同成文法的特色。

5. Legal system characteristics法律系統特性 • Courts use both Statute and Case (Common) Law法院同時使用成文法與判例(普通)法 • E.g. UK, Commonwealth & former Commonwealth countries例如英國, 英國聯邦 • Romano-Germanic Law, using solely Statute Law大陸(日耳曼)法系, 僅使用成文法 • E.g., Continental European countries例如歐洲大陸的國家 • Theocratic Law, derived purely from religious texts神權法條的取得來自信仰 • E.g. Saudi Arabia and Iran如阿拉伯、伊朗。

6. Legal system - basic principles法律系統之基本原則 (1) • Status of the accused – presumptionof innocence or guilt 控告的狀況–無罪或有罪之假設(定罪之原則) • 在英屬殖民地的國家裡，被告在被證明有罪之前，都可能被視為無罪； • 而日耳曼法系之原則則是，被告在被證明無罪之前，都可能被視為有罪。

7. Legal system - basic principles法律系統之基本原則 (2) • 在刑法中之條文，其證明原則是「超越合理的懷疑beyond reasonable doubt」； • 在民法，則採「可能性的平衡on the balance of probability」的證明方式。 • 何種證據是可接受的，從第三者而來的證據是可接受的嗎？ • 何種身分的人(如從小孩或婦女)提供的證據方可接受？法律上幾歲才算是成年？

8. Interpreting statute: the basis of statute條文解釋：法條基礎 • Prohibitivee.g. The Animal Welfare Act 1966, USA - what you must not do 禁止性的條文，如美國之動物福利法(1966) -什麼是你不能做的。 • Prescriptive e.g. The Laying Hens Directive 99/74/EC, EU - what you must provide 規定性的，如歐盟蛋雞指令(99/74/EC, EU) -你應提供什麼給動物。 • Cost/Benefite.g. The Animals (Scientific Procedures) Act 1986, UK - is the likely benefit justified by the harm caused 成本/利益性的，如美國之科學程序法(1986) –因造成之傷害反過來證成可能的利益

9. Interpreting statute: identify the offence條文解釋(1)：犯罪之認定 • The Prevention of Cruelty to Animals Act 1960, India - “to cause unnecessary pain or suffering” 印度之動物防虐法：導致不必要的痛苦或傷害 • Code of Federal Regulations Chapter III, Part 313, USA - “cause inhumane treatment”美國聯邦法第三章313款：導致不人道對待 • Council Directive 91/630/EEC – the “Pigs Directive” - “Member States shall ensure that conditions for rearing pigs comply with….” 歐盟指令91/630/EEC：會員國要確保該國之養豬業者需遵守…

10. Interpreting statute: to which animals is it applicable and where?條文解釋(2)：[哪些動物]與[哪裡之動物] • [哪些動物][哪裡之動物] The Agriculture (Miscellaneous Provisions) Act 1968, UK, applies only to farmed livestock on agricultural land 英國1968農業(其他規範)法案，只施行在農場的家畜 • [哪些動物] The Animal Welfare Act 1966, USA, does not apply to farmed animals 美國1966動福法：不實施在農場動物 • [哪些動物] The ‘Laying Hens Directive’, 99/74/EC, EU, does not apply to: 歐盟蛋雞指令不實施於：(1)establishments with<350 hens 低於350隻之規模；(2)breeding laying hens 種用母雞

11. Interpreting statute: the nature of the offence條文解釋(3)：犯罪的性質 • Defendant’s mental state? 被告的心理狀態? • Subjective mens rea 主觀的犯罪意圖 • Objective mens rea 客觀的犯罪意圖 • Strict liability 嚴格義務 • Mental state is not considered • 心理狀態不列入考慮 • (續)

12. The nature of the offence- Subjective mens rea犯罪的性質(1)：主觀意圖 • The UK’s 1996 Wild Mammals Protection Act英國1996年野生哺乳動物保護法案： • ‘If any person mutilates, kicks, ….any wild animal WITH INTENT to inflict unnecessary suffering’假如任何人意圖殺傷、踢任何野生動物導致不必要的受苦。 • The offence is tested in terms of the intention of the defendant此罪行將[以被告的意圖定罪]。

13. The nature of the offence- Objective mens rea犯罪的性質(2)：客觀意圖 • 以社會行為準則的比較來決定他是否犯罪(whetheran offence has been committed) • The Animal Welfare Act 2006 (England and Wales).英格蘭和威爾斯的新動物福利法案(2006) • An offence to cause ‘unnecessary suffering’ 導致沒有必要痛苦的犯罪 • The offence is tested against 5 points including定罪準則五點包括：Whether the conduct was that “… of a reasonably competent and humane person” 此行為是否是 [一個具有理性的人，在任何情況下都不會做的。]

14. The nature of the offence- Objective mens rea犯罪的性質(3)：客觀意圖 • Was the conduct for a legitimate purpose?如果行為有合法之目的? • To benefit the animal?對動物有利? • To protect a person, property or another animal?保護個人、財產或另一個動物? • Was the suffering proportionate to the purpose of the conduct concerned? 動物所受的苦楚是否與此人的行為之目的一致？

15. The nature of the offence- Objective mens rea犯罪的性質(4)：客觀意圖 • Additional legal tests of “unnecessary suffering” under the Animal Welfare Act 2006 (England and Wales).英格蘭和威爾斯的新動物福利法案(2006)指出的增加合法試驗的不必要痛苦 • Could the suffering have been avoided or reduced?這個痛苦是否是可以避免或是減低的 • Was the conduct which caused the suffering in compliance with any relevant enactment?這個行為所導致的痛苦是否遵守了相關的法令

16. The nature of the offence- Strict liability犯罪的性質(5)：嚴格的義務 • The UK’s 1997 Welfare of Animals (Transport) Order英國1997動物運輸規定 • An offence to transport an animal “in a way which causes, or is likely to cause, injury or unnecessary suffering”運送途中發生或可能導致不必要的傷害或痛苦之罪 • The views of the defendant and society are irrelevant被告和社會的觀點不一致 • If an animal is injured an offence has been committed動物受傷則可確定犯罪

17. Interpreting legislation: the status of the legislation法律之解釋(1)：法律狀況 • Primary legislation基本立法 • enacted through repeated debates in the National Legislative body經過反覆的辯論制訂國家立法主體 • Secondary legislation次要立法 • enacted by a Department of Government with authority from primary legislation由政府機關依照基本立法制訂 • Guidance documents指令文件 • Codes of Practice法規執行

18. Interpreting legislation: relevance of status to effective protection法律之解釋(2)：有效保護之相關狀況 • Primary legislation 被列入基本立法 • Expensive and time-consuming to amend in the light of new scientific evidence and changing public attitudes to welfare當科學新知與公眾態度改變時需要耗時耗資修訂 • Secondary legislation 被列入次要立法 • Readily amended可以節省時間立即修正

19. Interpreting legislation: relevance of status to effective protection法律之解釋(3)：有效保護之相關狀況 • Guidance documents and Codes of Practice指令文件和法規習慣 • May be used in the interpretation of statute but failure to comply does not constitute an offence可用在法條的解釋但不遵守並不構成犯罪

20. Interpreting legislation: what powers are authorised?法律之解釋(4)：有效保護 • Use of force 權力(主管機關) • Access 進入他人產權 • Stop and search 停止和尋找 • Seizure 扣押 • Detention 拘留 • Arrest 逮捕

21. Interpreting legislation: what penalties are available on conviction?法律解釋(5)：定罪時如何罰？ • Monetary fine - what level? 罰款-罰多少? • Imprisonment監禁 • Prohibition of ownership 禁止所有權 • Prohibition of care禁止照護 • Prohibition of production禁止生產

22. Interpreting legislation:The legal status of animals? 法律解釋(6)：動物之法律狀況 • Property in all countries所有國家視為 [物 / 財產] • EU Protocol on Protection & Welfare of Animals歐盟的動物保護和福利協議 • Recognises animals as ‘sentient beings’承認動物為”有感知存在體” • Requires Member States to “pay full regard to the welfare requirements of animals” when formulating and implementing legislation要求會員國在制定及實行法律時盡全力關切動物福利之需求 • No requirement to take account of economics不體諒經濟因素 • Enforceable in law可實施之法律

23. 歐洲國家規定，豬隻運輸的最高合法乘載密度是每100公斤0.42平方公尺。The reality - pigs packed into lorries at less than 0.35 m2 per 100kg 事實是：豬被塞入貨車裝在每100公斤不到0.35平方公尺的擁擠狀況

24. 最高29小時之運輸規定：運輸14小時(包括上下車)後休息一小時，然後繼續14小時之運輸。倘若運輸時數超過24小時，牛隻必須要在獲認可的驛站休息與供應食物及飲水，在休息24小後方可繼續運輸。事實是：很多國家都不理，造成疲憊的牛最高29小時之運輸規定：運輸14小時(包括上下車)後休息一小時，然後繼續14小時之運輸。倘若運輸時數超過24小時，牛隻必須要在獲認可的驛站休息與供應食物及飲水，在休息24小後方可繼續運輸。事實是：很多國家都不理，造成疲憊的牛 Reproduced with permission of CBS Press

25. Reasons why animal welfare legislation may not be effective動物福利法律可能無效的理由 - 1 • Legal status of animals as property法律視動物為財產(沒有生命的物品) • Prohibitive legislation not indicating the provisions expected禁止性的法律未指出應該做到的指標 • Dependence on the status and circumstances of the animal 保護動物要看動物的地位和情況而定

26. Reasons why animal welfare legislation may not be effective動物福利法律可能無效的理由- 1 • 寵物兔地位高待遇佳 實驗兔可憐

27. Reasons why animal welfare legislation may not be effective動物福利法律可能無效的理由 - 2 • Compromises in wording of text due to single interest lobbying during consultation • For example, "a lying area which is clean….., and eitherhas well-maintained dry beddingoris well drained"由於單方面之利益遊說，使法律用語妥協 – 例如：躺的地方要乾淨…，且床要維持乾燥抑或排水良好

28. Reasons why animal welfare legislation may not be effective動物福利法律可能無效的理由 - 3 • Reinterpretation of terms by industry bodies企業團體曲解法律條文： • 在丹麥有一條法律，當被重新解釋後立即扭轉了當初立法的本意。顯然，法律原本是打算給母豬實心的躺臥地。豬商藉著重新定義，將”實心”解釋成為包括”開口”，創造法律漏洞讓老舊的封條狀地版豬舍可以繼續使用。 • Danish ‘Enlandsgriseproduktion’ Scheme

29. Reasons why animal welfare legislation may not be effective動物福利法律可能無效的理由 - 4 • Responsibility for enforcement being spread between government departments, so reducing co-ordination執法責任分散至很多政府部門，減少力量 • Poor statute enacted in haste in response to political pressure, e.g.匆忙的立法只為了回應政治壓力The Dangerous Dogs Act, UK (1991)如英國之危險狗法律

30. Reasons why animal welfare legislation may not be effective動物福利法律可能無效的理由 - 5 • The subjective nature of the offences causing different interpretations between courts犯法之主觀性質造成各法院不同之解釋 • 如：農村出身與都市出身的陪審團與法官對例行豬隻的閹割看法不同

31. Reasons why animal welfare legislation may not be effective動物福利法律可能無效的理由-6 • Poor enforcement due to執法不力之無效之可能原因： • Limited resources 動保員不足資源有限 • Variable enforcement 畜牧生產與動物福利衝突 • Enforcement body sharing interests with those policed執法主體與警方分享利益 • Limits to powers of access, stop and search, seizure and detention限制公權力進入、停止和尋找，逮捕和拘留的權力 • Commercial confidentiality商業機密

32. Reasons why animal welfare legislation may not be effective動物福利法律可能無效的理由-7 • Statute has no provision for:法律沒有提供 • Power of seizure - defendants keep ownership of animals during proceedings扣押的權力：被告在審判過程中仍有動物之所有權 • Prohibition of ownership - convicted party permitted to retain animals所有權的禁止：已經被判有罪者仍准許保留動物 • Prohibition of care - ownership may be transferred but care is still by convicted party照護權的禁止：所有權可能轉移但已經被判有罪者仍有照護權

33. Reasons why animal welfare legislation may not be effective動物福利法律可能無效的理由- 8 • May have to accommodate可能受制於： • Domestic, economic and political pressures國內政治經濟壓力 • International agreements on trade • 國際貿易約定 • Other, conflicting legislation • 其他法律不協調 • See Module 28看模組8

34. Summary: A model welfare law摘要：一個模範法律 • A single Statute, single Department 單一法律，單一主管機關 • Strict liability offences 嚴格義務之犯罪 • Prescriptive 遠見 • Comprehensive and coherent 整合協調 • Powers of stop, search, seizure, detention制止，尋找，扣押，拘留的權力 • Penalties of prohibition of ownership and care禁止所有權和照顧的處罰 • National enforcement body國家級執法主體 • In a form most readily enacted and amended立即實行和修正之精神

35. Animal protection legislation (2):Enforcement and political pressure 動物保護立法 2:執法與政治壓力 Module 28 模組28

36. This module will enable you to此模組將能夠使你 Identify obstacles to the effective enforcement of statute辨別有效執法的阻礙 Describe methods by which some of these obstacles may be overcome敘述克服這些阻礙的可行方法 Outline ways in which pressure might be applied to governments to improve列舉如何促使政府加強執法的決心enforcement Understand the role of an expert witness專家證人的角色

37. Click here for more details about taking an animal welfare case to court 按此得到更多細節，得到動物福利例子供給法院 Practical enforcement of statute實用的執法

38. But sometimes statute can’t be enforced但有時候無法執法

39. Why some statute may not be enforced為何有些法令可能不被實行 • International agreements on trade (World Trade Organisation)世界貿易協定（世貿組織） • Clashes with other legislation其他法令衝突 • Domestic economic and political pressures境內政治與經濟壓力

40. WTO rules世界貿易協定 • Encourage free trade by reducing import tariffs or export subsidies *鼓勵自由貿易藉著使進口設立關稅或出口予以補貼為非法 • Discrimination between goods on the grounds of production methods is not generally permitted – although there is discussion on whether labelling is allowed商品立基於不同的生產方式的歧視是不被容許的-不論在價格上或貼標籤上 * Agreement on Agriculture – Fixed, progressive reduction in existing subsidies農業協定：現存的補貼以固定的比例逐漸縮減

41. WTO rules世界貿易協定 • Currently no exceptions for animal welfare目前沒有為了動物福利之例外 • Render unilateral legislation or rigorous enforcement to improve animal welfare, which increases production costs, economically non-viable 單方面的實施立法或嚴厲促進動物福利，導致增加生產成本，經濟無力

42. WTO rules: Current exceptions世界貿易協定：目前之例外 • Article Twenty of GATT (General Agreement on Tariffs and Trade)關稅暨貿易總協定(GATT)第二十條 • Allows exceptions for measures to protect human, animal or plant life under certain conditions在某些情況下，容許因保護人類、動物或植物措施的例外。 • ‘Sanitary and Phytosanitary Agreement’食品安全檢驗及動植物防疫檢疫措施協定 • Allows exceptions to protect health where these are based on science容許基於充分的科學基礎和不充分的科學基礎而暫行的例外措施 • Allows interim action where there is insufficient science在合理的期間認真的給予嘗試之機會，冀以建立更充分的行動基礎

43. WTO rules: Current exceptions世界貿易協定：目前之例外(續) • Biosafety protocol生物安全議定書 • Exceptions for Genetically Modified Organisms容許基因改造生物的例外 • Some payments to producers allowed: • ‘Green Box’ measures – payments are production-neutral and/or do not distort trade綠盒措施---產品對國內外貿易均無影響津貼 • ‘Blue Box’ measures – linked to reduced production藍盒措施---減量生產津貼

44. WTO rules: Current exceptions – example世界貿易協定：目前之例外(舉例) Production neutral and/or non-trade distorting 生產中性或非貿易扭曲 Linked to reduced production 連結至減少生產

45. Overcoming obstacles:Required changes to WTO rules (1)克服障礙：要求WTO規則的改變(1) • Recognition of distinction between production methods 辨認不同生產方法間之差異 • Permission of total import restrictions under Article Twenty of products from unacceptable production systems在第二十條下，從不被接受的產品系統生產的產品，容許所有進口限制 • Provision for mandatory labelling by production system生產系統規定強制標籤

46. Overcoming obstacles:Required changes to WTO rules (2)克服障礙：要求WTO規則的改變(2) • Permission of preferential market access for welfare friendly producers – quotas or preferential tariffs對動物福利友善產品給市場進入優惠許可–配額或優惠關稅 • Permission for import border tariffs to offset increased cost of welfare measures允許進口關稅以抵銷動物福利措施所增加的成本

47. Overcoming obstacles:Required changes to WTO rules (3)克服障礙：要求WTO規則的改變(3) • Permission of current export subsidies to be redirected towards welfare promotion (and these subsidies to be excluded from the ‘Agreement on Agriculture’ reductions)最近出口補貼的許可改變動物福利提升走向(且這些補貼被從”農業條約”排除 • Reclassification of these payments to support welfare as ‘Green Box’ measures將這些付款重新分類以支持動物福利的「綠盒」措施

48. Export subsidies to be redirected towards welfare promotion出口補貼可以提升動物福利

49. Potential clashes with other laws和其他法律的潛在衝突 • Human Rights law人權法 • access to premises for inspection purposes如進入房舍檢查 • Health and Safety law健康和安全法 • banning goads如禁止刺激棒(電極棒) • Environmental law環境法 • nose rings in sows如豬的鼻鐶 • Employment law就業法 • frequency and adequacy of inspection of broiler chickens如檢察肉雞場的頻率和適當性

50. Potential clashes with other laws和其他法律的潛在衝突 • Food Safety law食品安全法 • fasting stock prior to transport to slaughter plant家畜於運輸到屠宰場之前需禁食 • Planning law計畫法 • prohibition of free range units如禁止自由飼養單位 • Product Safety law產品安全法 • legal requirement to test medicines on animals合法要求以動物測試醫藥產品