LCQ17: Strengthening dog management regime and enforcement operations
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Question:
In light of the recent spate of dog attacks in Hong Kong that have caused injury or loss of life to humans and other dogs, public concern has been raised over the identification and control of dangerous dogs, the responsibility of dog owners to keep their dogs under proper control, and the management of stray dogs. In this connection, will the Government inform this Council:
(1) given that Schedule 1 to the Dangerous Dogs Regulation (Cap. 167D) currently specifies four categories of "fighting dogs", and that a dog may only be classified as a "known dangerous dog" on the basis of its previous attacks on humans or domestic animals, whether the Government will, as part of the ongoing review, study (i) expanding the statutory categories of "fighting dogs"; and (ii) reviewing the existing classification and control system for "known dangerous dogs", including examining the inclusion of factors such as a dog's previous attack records, behavioural history and other risk indicators, with a view to identifying at an earlier stage dogs that may pose a higher risk to public safety; if so, of the details; if not, the reasons for that;
(2) whether it will review Cap. 167D and the Rabies Ordinance (Cap. 421) to strengthen the provisions and penalties relating to the abandonment of dogs, the keeping of dogs at large, and the failure to keep dogs under proper control, including examining an increase in the maximum fines and terms of imprisonment, as well as enhancing the legal liabilities of dog owners who repeatedly contravene the relevant requirements or whose dogs are involved in incidents resulting in serious injury or loss of life; if so, of the details; if not, the reasons for that;
(3) given that the Agriculture, Fisheries and Conservation Department (AFCD) has formulated the code of practice for keeping dogs on construction sites, and that dogs may also be present at certain car parks, open working areas, logistics sites, container yards and brownfield operational areas, whether the Government will study extending to such premises the dog control requirements currently applicable to construction sites; if so, of the details; if not, the reasons for that;
(4) over the past five years, of the respective annual numbers of stray dogs captured by the AFCD, and among those dogs, how many were reclaimed by their original owners, transferred to animal welfare organisations, adopted by members of the public, or euthanised on humane grounds; and whether the Government will study the expansion of animal accommodation facilities and increase the number of places available through collaboration with animal welfare organisations for boarding, fostering and rehoming, with a view to arranging adoption for as many adoptable dogs as possible; if so, of the details; if not, the reasons for that; and
(5) in view of the recent spate of incidents involving dog attacks resulting in injury or loss of life to humans and animals, whether the Government will review its existing stray dog inspection strategy, and proactively step up inspections in areas where dog attack incidents have occurred or where stray dogs are known to be prevalent; if so, of the details; if not, the reasons for that; whether it will review how the practice of registering dog microchips on behalf of others should be regulated, with a view to strengthening the management of dogs and clearly identifying the persons responsible for them; if so, of the details; if not, the reasons for that?
Reply:
President,
The Government attaches great importance to the recent dog attacks on people and animals. The Agriculture, Fisheries and Conservation Department (AFCD) and the Police are conducting a comprehensive investigation into the causes of the incidents and have taken appropriate enforcement action and control measures. It is the unequivocal statutory obligation of dog keepers to keep their pets under proper control. To enhance the protection of public safety, the Government is conducting a comprehensive review of the existing legislation on dog control, will consult the Legislative Council Panel on the proposed amendments by the end of this year and strive to complete the legislative amendment exercise within next year.
Having consulted the Development Bureau, a reply to the question raised by Professor the Hon Priscilla Leung is as follows:
(1) The Dangerous Dogs Regulation (Cap. 167D) (the Regulation) stipulates that Pit Bull Terrier, Japanese Tosa, Dogo Argentino and Fila Braziliero, as well as any crossbreed of these four types of dogs, are "fighting dogs". In addition, a magistrate may classify a dog as a "known dangerous dog" if it, without provocation, bites or attacks a person or a kept animal, causing death or serious injury, or if it repeatedly attacks people or causes people to fear that they may be attacked.
As to whether the above definitions should be updated, the Government is listening to the views of different stakeholders and will also make reference to the regulatory experience of other countries and regions, with a view to formulating an appropriate proposal based on the risk-based principle.
(2) The current Rabies Ordinance (Cap. 421) and the Regulation contain clear requirements on the proper control of dogs, and also specify the penalties for offences such as abandonment of animals.
In view of the general public view that the existing penalties for abandoning animals and failing to keep dogs under proper control are not sufficiently deterrent, the Government will study increasing the penalties for such offences.
(3) Whether in public places or workplaces (including construction sites, car parks, open-air workshops, logistics sites, container yards and brownfield sites), dog keepers are required to keep their dogs under proper control, and to ensure that their dogs are licensed and vaccinated against rabies regularly. The AFCD will make reference to the existing "Code of Practice for Keeping Dogs on Construction Sites" to draw up educational materials suitable for rural environments, explaining to site operators and dog keepers their responsibility to keep dogs under proper control, with a view to reducing potential risks to public safety.
(4) After capturing unattended dogs, the AFCD will try to locate the keepers and contact them to reclaim the dogs. For unclaimed dogs that are in good health with a gentle temperament, the AFCD will transfer them to animal welfare organisations (AWOs) for rehoming by members of the public. Dogs that are aggressive or otherwise unsuitable for adoption may eventually be euthanised. The figures on unattended dogs handled by the AFCD in the past five years are set out at Annex.
The Government has been actively assisting AWOs in expanding their animal accommodation and adoption facilities. The AFCD operates an annual Subvention for Animal Welfare Organisation Subvention to support animal welfare organisations in organising activities relating to animal management and welfare, including adoption services, education and publicity programmes, and preventive veterinary treatments (including neutering).
AWOs seeking land for the operation of animal rehoming centres may consider applying for the lease of vacant government sites (including vacant school premises) published by the Lands Department (LandsD) on the "GeoInfo Map" website and made available for application by non-governmental organisations (NGOs) by way of short-term tenancies for community, institutional or non-profit making purposes. NGOs which have obtained policy support from the relevant bureaux and have secured in-principle approval from the LandsD for the grant of short-term tenancies may apply to the Development Bureau (DEVB) for funding under the funding scheme to support the use of vacant government sites by non-government organisations (the Funding Scheme) to support one-off, basic and essential restoration works required for taking forward worthy projects for the community. To date, among the projects funded under the Funding Scheme that have been completed and have commenced operation, three are animal rehoming centres. The applicant organisations are all partnering AWOs of the AFCD. These facilities could accommodate a total of approximately 450 animals (including stray dogs). In addition, one animal rehoming centre project is currently undergoing detailed design and site investigation works, with a target completion date of end-2027. For the aforesaid four animal rehoming centre projects, funding approvals under the Funding Scheme amount to approximately $135.6 million in total to date. The Government will enhance support along the aforesaid directions as necessary.
The Government will continue to strengthen collaboration with its partner AWOs in providing accommodation and adoption services, and to promote the message of "adopting rather than buying" to members of the public who intend to keep dogs, so that more unclaimed dogs can find new homes.
(5) The AFCD has analysed recent cases of dog attacks on people and animals based on the risk-based principle. It will accord priority to stepping up patrols and capturing unattended dogs at high-risk locations where incidents have occurred or where there are larger numbers of stray dogs, so as to eliminate potential safety risks in the community. If dog keepers are found not to have properly controlled their dogs, the AFCD will take stringent enforcement action.
The existing legislation does not provide for any arrangement of "registering dog microchip on another person's behalf". As a registered dog owner, a person must assume all the responsibilities of a dog keeper prescribed by law, and properly care for and control the dog registered in his or her name. Abandoning a dog or allowing it to wander without control in a public place is an offence. The AFCD is studying the updating of the dog licence application form, using clearer wording to remind keepers of their responsibility for proper control.
Ends/Wednesday, October 14, 2026
Issued at HKT 14:55
Issued at HKT 14:55
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