Press release

Minister Heydon confirms substantial progress in implementing the recommendations of the Wall Report to improve Equine Welfare and Traceability

From: Department of Agriculture, Food and the Marine
Published on: 20 August 2025
Last updated on: 16 September 2025

Minister for Agriculture, Food and the Marine, Martin Heydon, has today published a status report on his action plan to deliver the recommendations of the Wall Report. The plan, published five months ago in March of this year, set out an ambitious roadmap of 37 actions under five headings to rebuild Ireland’s equine traceability system in line with the proposed reforms of Professor Wall. The headings are:

ensure owner accountability through better traceability
stricter enforcement of equine identification and registration legislation
highest level of protection for horses at end of life
maximising the benefits of scientific and technology innovation
strong communication and influence

The status report shows that all 37 actions have been advanced with particular progress made towards a new IT system to support the proposed changes, as well as the initiatives on education and grant aid for modernisation. In announcing the update, the Minister emphasised that the driving factor of the project is to protect equine welfare:

“Traceability is essential to the protection of horses. Gaps in traceability allow for neglect and mistreatment without accountability. I am committed to implementing a new equine traceability system which will ensure our horses’ health and welfare are protected throughout their lives. The progress evidenced in the status report is the result of close cooperation and consultation with equine stakeholders and I would like to thank them for the positivity with which they have engaged with this reform.”

Better traceability

The report states that the IT project to build a new equine traceability system is at an advanced stage and on track to conclude by the end of the year. The foundation of the new system is the 2024 census returns and these have already been converted into equine herd profiles, similar to the cattle system.

The Minister singled out the key role IT solutions will play in improving equine traceability:

“We have seen how continuous IT development of our cattle traceability system has allowed it to evolve to meet market and consumer demands. My department has prioritised the design of an IT system that will allow high levels of traceability while also providing for flexibility in recognition of the frequent movement of horses.”

The report states that by the end of the year, equine keepers will be given online access to see the horses registered to their premises profile and the ability to move horses on and off their profile.

Another key IT development is the integration of equine exports into the central equine database. Currently equine exports are recorded on the EU TRACES system which does not interact with the central equine database. Ensuring the accurate recording of equine exports will ensure consistency between the two systems.

2. Stricter enforcement

Stricter enforcement is being actioned through a new inspection regime for equine holdings which is near conclusion. Work is also ongoing to strengthen oversight of assembly centres and enforce registration requirements.

3. Protection of horses at end of life

Measures to protect equine welfare at the end of life are progressing. Teagasc training for advisors has been carried out and new procedures are in place to ensure prompt return of equine passports from animal collectors.

4. Maximising technology and innovation

Integration of the National Veterinary Prescription System with the equine database is expected by end of quarter three 2025. This will see horses prescribed with medicines that make them unfit for human consumption being automatically marked out of the food chain on the central equine database.

A pilot project using smart trackers is underway, and an aid scheme to support innovation by passport issuing organisations (PIOs) was launched earlier this month.

5. Communication and influence

The Department of Agriculture, Food and the Marine has actively engaged with a broad range of equine stakeholders, including PIOs, veterinary practitioners, sales companies, and animal welfare organisations.

A new booklet outlining equine owner responsibilities has been published and will soon be issued to approximately 22,000 Equine Premises Registration Numbers (EPRNs). A public consultation is underway and will close for responses on 8 September 2025.

6. Establishment of an equine slaughter facility

The Department of Agriculture, Food and the Marine is committed to the establishment of an equine slaughter facility. Approval to operate as an equine slaughter premises, similar to all meat food business operator applications, is a two-stage process. The first step is the submission of a Notification of Intent. If all of the documentation is correct, and the site is deemed suitable, then the process moves to the second stage with the submission of a formal application.

Notes

Following the broadcast of the RTÉ Investigates documentary in June 2024 highlighting issues with equine traceability, the department asked Professor Patrick Wall to undertake a root and branch review of the whole traceability system.

Professor Paddy Wall, who is a veterinarian, a medical doctor, knowledgeable in the equine sector and a food safety expert, engaged with stakeholders across the whole equine sector and proposed several wide-ranging and impactful recommendations. The Wall Report was published on 20 March 2025 along with Minister Heydon’s action plan and both can be viewed at www.equineid.ie.

The full text of the status report is below.

Implementation of Wall Report Action Plan

Project Update – August 2025

Owner Accountability through better traceability

Action points	Action	Update
1 & 25	New legislation to strengthen Central Equine Database and make mandatory DNA genotyping of foals	13 new obligations have been identified with input from industry. DNA testing for identity confirmation discussed with Passport Issuing Organisations (PIOs). Meetings have been held with Forensic Science Ireland and independent equine geneticists.
4 & 5	Increase annual equine census returns	22,248 responses have been received covering 118,948 equines – the best response since the Census started. Reminders have issued to approximately 9,000 census non-respondents. This is the third correspondence on the 2024 census. Census returns will be the foundation for equine herd profiles.
6	Engage with NI on data sharing	Regular contact between DAERA and DAFM. In person N/S meeting held in May 2025. Recent announcement by DAERA that all premises in NI registering foals from 01 Feb 2026 must quote an Equine Establishment Number will ensure consistency in both jurisdictions.

Stricter Enforcement

Action points	Action	Update
9, 12 & 15	New inspection regime for holdings and dealers and penalties to issue for breaches	Holdings have been selected and trial inspections have taken place. SOP and inspection form have been finalised. Training in relation to safe horse handling for RVO staff, in conjunction with Teagasc, Kildalton, scheduled for mid-September.
11	Registration of current assembly centres	Letter issued to 59 establishments detailing application process.
13	Review penalty provisions	Review completed – Ireland’ s system on a par if not better than other Member States.
16 & 17	Introduce measures to encourage registration of foals on time and encourage completion of census	Meetings held with PIOs in April 2025. Views sought through public consultation published on Monday 14 July, 326 responses received so far.

Protecting Equine End of Life

Action points	Action	Update
20	Knowledge transfer and training to educate horse owners	Teagasc advisor training held in June.
21 & 37	Enhanced controls at category 2 animal by-products plants (knackeries) and investigation of scanners capturing dead animal collection	Information gathering visit has taken place. New procedure put in place whereby stamped, addressed jiffy bags issued to all animal collectors to facilitate timely return of passports for dead equines. This has elicited a good response. Trader Notice requiring use of same has issued to the animal collectors.
22	Facilitate the establishment of a horse slaughter facility. Any new horse slaughter facility must have a level of oversight that gives a very high level of assurance in relation to the welfare of horses, to include the use of CCTV and oversight of assembly centres supplying horses for slaughter.	Two Notifications of Intent have been submitted to DAFM. This is the first stage of a two-stage process, the second stage being a formal application. Neither of the parties have as yet progressed to this formal application stage. With effect from May 2025, where a Food Business Operator (FBO) is seeking approval to operate a slaughter premises, applicants are required to undergo the ‘Fit and Proper Person’ process. This process will be completed in advance of any consideration being given to an application to slaughter.
23	Investigate grant aid to assist in the establishment of a horse slaughter facility.	The investigation into the granting of state aid has commenced and involves a number of considerations.

Maximising Technology and Innovation

Action points	Action	Update
27	Pilot project on smart trackers	Equipment required for the pilot has been sourced. Trackers placed on a small number of horses so far – project ongoing.
29	Aid scheme for technology development by PIOs	Aid scheme launched 24 July 2025.

Communication

Action points	Action	Update
31	Influence at EU level	Presentation to World Horses Identification, Registration and Data Exchange Committee took place on 22 April. Presentation to EU fraud network took place on 20 May.
32, 33, 34, 36, 37	Establish working groups and engage with stakeholders, PIOs and PVPs	Working group with PIOs established and first meeting held. Working Group with PVPs on track for first meetings in Sept. Meeting with Weatherbys in April 2025 Meeting with PIOs in April 2025 Meeting with DSPCA in May 2025 Meeting with IHRB in May 2025 Meeting with HRI in June 2025 Meeting with several private sales houses took place in July 2025 Meeting with ITBA in July 2025 All have expressed an eagerness to engage and share information on movements of horses. PVP Working groups independently chaired by Dr Joe Collins President at FEEVA, the Federation of European Equine Veterinary Association scheduled for September 2025 at venues across the country.
35	Publication of detailed booklet on owner responsibilities	Information booklet published on 7 August.

Minister Heydon confirms substantial progress in implementing the recommendations of the Wall Report to improve Equine Welfare and Traceability

Notes

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Minister Heydon confirms substantial progress in implementing the recommendations of the Wall Report to improve Equine Welfare and Traceability

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