Ombudsman Jack Chan on Thursday questioned whether the authorities take reports of animal cruelty seriously, after uncovering inconsistent and ineffective investigations into suspected abuse.

Announcing the findings of a direct investigation, Chan issued 45 improvement recommendations to the Agriculture, Fisheries and Conservation Department (AFCD).

The probe – launched to “give a voice to the voiceless animals” – found that AFCD staff repeatedly abandoned follow-up actions when unable to access private flats and lacked basic operational guidelines.

Site inspections at animal management centres and a review of 200 randomly selected case files revealed that AFCD investigators often stopped working when flat occupiers refused consent to enter – because the department cannot seek court warrants.

In one case cited by the Ombudsman, AFCD staff negotiated repeatedly with the owner of a dog suspected of being abused.

The owner kept postponing inspections, and ultimately no inspection was carried out. Although the owner admitted to not having a dog licence – an offence in itself – the AFCD merely issued a reminder and took no enforcement action.

Chan said such approaches “call into question whether the department has handled reports seriously and properly”, adding that they are “ineffective against offenders intending to conceal evidence” and directly undermine prosecution efforts.

The investigation also found that the AFCD had no written guidelines for handling general animal cruelty reports – only for large-scale incidents requiring substantial manpower.

Staff therefore, he said, adopted inconsistent practices, undermining enforcement effectiveness. The department only began formulating new guidelines after the Ombudsman launched the direct investigation.

Between 2020 and 2025, reports to the AFCD and police both showed an upward trend. In the first six months of 2025 alone, the AFCD received 251 reports – close to the annual average of previous years.

“Many recent cases of animal cruelty are horrifying, leaving the public shocked and heartbroken,” Chan.

“Atrocities of this kind amount to a deliberate trampling on the dignity of life and run wholly contrary to the very conscience of a civilised society.”

Among his 45 recommendations, the Ombudsman called for the Prevention of Cruelty to Animals Ordinance to be amended to allow entry into a private premises without the occupier's consent, and the strengthening of case monitoring, staff training and collaboration with police and the Society for the Prevention of Cruelty to Animals.

“We understand the government is actively exploring amending the ordinance... to give more power for AFCD staff to take enforcement action, including entering premises for an investigation,” Chan said.

“The proposal has to be discussed within the community and also in the Legislative Council. The balancing act has to be done by our society as a whole.”

The AFCD has accepted all the recommendations and has already begun implementing some of them.



Edited by Thomas McAlinden