Regulatory oversight for live horse exports to Japan

Applicable Canadian regulations

Canadian Food Inspection Agency (CFIA) veterinary inspectors are present for each air shipment to certify the export as required by the Health of Animals Act.

CFIA inspectors work diligently to enforce the Health of Animals Act and Regulations and to verify that the horses are fit to travel and will be transported humanely. Additionally, the container and stocking density requirements of the Live Animal Regulations of the International Air Transport Association are incorporated by reference into the Health of Animal Regulations and must be met.

Any Canadian exporter who has successfully negotiated a commercial contract with an importer in Japan and who can comply with Japan's import conditions (as specified in an established health certificate) may export horses to Japan. Exporters and carriers must also comply with the humane transport requirements of the Health of Animals Act and Regulations.

The CFIA does not have the authority to deny export shipments that are in compliance with Canadian humane transport regulations at the time of export and meets the animal health requirements of the importing country.

Summary of the export process

On farm

CFIA collects blood samples for lab testing and verifies that pre-export conditions are met
Exporters assess and remove any animals not fit for transport
Horses have access to feed and water until loaded for transport to the airport

Ground transport in Canada

CFIA veterinarians verify compliance with humane transport requirements when the horse transport trucks arrive at the airport
Most export shipments come from premises that are located within a 2 to 3 hour drive from the departure airport

Crate and aircraft loading

Horses are loaded into crates with CFIA veterinary oversight
Transporters use foam pool noodles and flexible poles with rags on the end to start horses down a ramp into the crates
Prods are not used and any physical contact with the horses does not inflict pain or suffering
A visual inspection verifies that the horses can stand in their preferred position and do not come into contact with the container cover when calm but alert
The crate is weighed to further verify that it is not overcrowded.
CFIA inspectors are on-site when the crates are loaded onto the plane and verify that no horses are down or showing signs of distress that would make the horse unfit for transport.

Flight requirements

The majority of export shipments are flights from Edmonton and Winnipeg. Flights can be non-stop or have a fuel stop in Alaska which normally adds 2 to 2.5 hours to the travel time.

Canadian requirements for feed, water and rest must also be met.

Transporters must have a transport contingency plan which includes anticipated travel times that can be provided to the CFIA.
The contingency plan must also establish measures to be taken to reduce or mitigate avoidable suffering if
- there are any unforeseen delays or circumstances that could cause avoidable suffering, injury or death
- an animal becomes compromised or unfit

Requirements for feed, water and rest (FWR) during transport

28 hours is the maximum time without FWR for horses. Ground transport in Canada, air transport, and ground transport in Japan must be completed within 28 hours to comply with Canadian regulations. If horses are provided with the required feed, water and rest during their transport journey, then the 28-hour time would restart.

At destination

Once in Japan, Japanese authorities are responsible for regulatory oversight
- This includes the off-loading of horses from the aircraft and ground transport to the quarantine station.
Air carriers must meet the Canadian requirement to report any deaths or serious injuries that occurred during their transport

Transport outcomes (deaths and serious injuries)

Between 2013 and 2020 there were approximately 40,000 horses exported to Japan, with 3 deaths during transport in Canada and 2 deaths in Japan reported to the CFIA.

New Information on flights

The CFIA was recently provided with new information on the export of approximately 2,500 horses to Japan between June 2023 and June 2024.

A CFIA review of this data and additional information provided by Japan's Ministry of Agriculture, Forestry and Fisheries (MAFF) for those months found that there was 1 death and 8 serious injuries that happened in flight or were observed upon arrival. The information provided noted other deaths and serious injuries that occurred during the quarantine period in Japan. This data is not included in the CFIA reporting.

Section 155 of the Health of Animals Regulations requires transporters departing from Canada to report all serious injuries and deaths during air transport to the CFIA. The reporting requirement does not apply to deaths or injuries that occur after the horses are transferred to ground transport or during quarantine in Japan. The CFIA does not have the regulatory authority to require reporting of incidents that occur after transfer to ground transport and during quarantine.

The Agency is currently working to obtain data about animal health outcomes at arrival for flights from January 2021 to May 2023.

Improved compliance data

The CFIA has taken several measures to strengthen documentation and reporting requirements.

The CFIA has strengthened its documentation controls for exporters and air carriers to verify that the reporting requirements for air carriers are being met. This is in addition to collaboration with Ministry of Agriculture, Forestry and Fisheries (MAFF) officials who are proactively providing information on horse shipments arriving in Japan.
The CFIA will continue to analyse any new information that is provided by exporters, air carriers, and MAFF.
The agency will regularly update its website with information any additional deaths and serious injuries on arrival that are identified.
Canada and Japan's Chief Veterinary Officers will continue their collaboration on this important issue through their regular bilateral engagement.

Sources of the horses being exported to Japan

Japan requires that horses being exported to Japan originate from Canada. To meet Japan's requirements, horses must be born and raised in Canada or have been kept in Canada for at least 6 months prior to the start of pre-export isolation.

All horses exported to Japan require several vaccinations and blood tests. The horses are also required to be isolated from animals that are not being exported. The animal disease history of the premises where horses are kept prior to export must be known to complete the export certification.

Given Japan's animal health requirements, companies supplying the Japanese market raise horses specifically for export purposes. It is not practicable for exporters to use wild horses or horses from auctions in Canada or the United States for exports to Japan.

Subsidization of live horse exports

The CFIA does not provide subsidies or financial assistance to any exporter.

The CFIA provides inspection and certification services to food, plant and animal exporters and charges cost-recovery fees at rates established by the Canadian Food Inspection Agency Fees Notice.

Additional information about horse meat and live horse exports

Horse meat is eaten in Canada and various countries in Europe, Asia and South America.

Horse meat is exported to Japan and other countries from facilities that are licensed by the Canadian Food Inspection Agency (CFIA) under the Safe Food for Canadians Regulations. The CFIA provides inspection services as required for horse slaughter as it does for other food animals.

There is also market demand in Japan for fresh horse meat that is partially filled by live horse exports from Canada. Exported horses are fattened in Japan before being slaughtered.

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