Scottish Animal Welfare Commission: welfare of animals as sentient beings - activity review 2025

4. Members’ Bills

Welfare of Dogs (Scotland) Bill The Welfare of Dogs (Scotland) Bill, introduced by Christine Grahame MSP in June 2023, was passed on 23 January 2025 and came into force on 19 March 2025. The Act requires the Scottish Ministers to make a code setting out good practice in relation to acquiring a dog or transferring a dog to another person. It includes seven specific questions on suitability and commitment that prospective new owners must consider, and which are to be included in the code. Additional provisions are made for the acquisition of puppies.

The Act also includes novel provisions for a joint certificate to be signed by both the supplier and the acquirer. The prospective acquirer must commit to meeting the suitability requirements and must also be satisfied that the dog is at least eight weeks of age. The certificate must also include details of prior health provision and microchipping and must be kept throughout the entire period of ownership – which in most circumstances will mean for the dog’s whole life.

The Scottish Ministers are also required to take reasonable steps – with advice from welfare organisations – to ensure public awareness and understanding of the code of practice, particularly among school pupils. The Scottish Government is currently working on the Code of Practice for buyers of puppies and raising awareness of the Code amongst the public including school children. Work is proceeding with stakeholders to finalise the wording of the Code, with the intention that the language should be as clear and straightforward as possible.

Greyhound Racing (Offences) (Scotland) Bill

The Greyhound Racing (Offences) (Scotland) Bill, introduced on 23 April 2025 by Mark Ruskell MSP, aims to make it illegal for a person (including racetrack owners and managers) knowingly to use, or permit the use of, greyhounds in racing at oval racetracks in Scotland. (All UK tracks are currently oval in design.)

As stated in the Policy Memorandum, “The offence applies to any racetrack used for the purpose of racing greyhounds that is oval in shape, and therefore applies to greyhound racing at licensed and unlicensed racetracks and covers both commercial and non-commercial activities. The offences cover any racing activity, and as such apply to races, as well as time-trials and sales-trials taking place on racetracks. The racing of one or more greyhounds at a racetrack in Scotland, for whatever purpose, will be an offence.”

The Scottish Government took a neutral position on the Bill until it had sight of the detailed proposals. The Minister for Agriculture and Connectivity had previously stated, in response to a Petition to the Scottish Parliament PE1758 End greyhound racing In Scotland, that the Scottish Government remained to be convinced that complete prohibition would be proportionate. However, on 29 August 2025, the Minister informed the Rural Affairs and Islands Committee of the Scottish Parliament that, while seeking some technical amendments, the Scottish Government would support the general principles of the Bill:

“The Scottish Government acknowledges that there are genuine risks associated with racing greyhounds around tracks of oval design and this is supported by evidence and reinforced by the SAWC. We further accept that while the introduction of a statutory licensing framework would undoubtedly improve aspects of greyhound racing, it would not prevent the primary animal welfare concern that this Bill now focuses on and seeks to eliminate. For this reason, the Scottish Government will support the general principles of the Bill.”

SAWC reported on the welfare issues surrounding greyhound racing in Scotland in 2023 and is pleased to note that this report has been of assistance both to the Member and to the Scottish Government in their development of policy.

Dog Theft (Scotland) Bill

The Dog Theft (Scotland) Bill introduced on 17 February 2025 is a Member’s Bill aiming to make dog theft a distinct legal offence. The Member in charge, Maurice Golden MSP, argues that a specific statutory offence of dog theft is necessary because the common law offence places insufficient focus on the emotional importance to the owner of a sentient being. During Stage 1 proceedings at the Rural Affairs and Islands Committee, animal welfare NGOs and Police Scotland agreed that the current common law crime of theft fails to reflect sufficiently the impact of dog theft on both families and pets; conversely, however, enforcement agencies including the police stated that in practice a statutory offence would not change their approach to investigation or prosecution of the offence. The Minister for Victims and Community Safety informed the Committee that the Scottish Government is establishing an expert advisory group on dog control and dog welfare, which could include issues around dog theft. The Committee supported the general principles of the Bill in its Stage 1 Report, which will be debated in autumn 2025.