What are the animal welfare issues with greyhound racing?

The RSPCA considers that there are significant ongoing animal welfare problems in the greyhound racing industry. These include but are not limited to, that too many dogs are bred and subsequently passed on which overwhelm rehoming groups; unacceptably high rates of injuries and deaths; and continued incidents of live baiting and lack of transparency and accountability. Recently, due to ongoing welfare issues, the New Zealand government announced the phase out of greyhound racing.

Although the greyhound racing industry has been acknowledged as a contributor in terms of economic benefits, there has also been an increasing level of concern regarding both significant animal welfare issues [1,2] and societal impacts related to gambling [3]. If these concerns are not addressed adequately there is a serious risk to the future sustainability and community acceptability (social licence) of greyhound racing in Australia [4]. A consequence of this is the threat that the industry will no longer be able to operate, as has happened in New Zealand [5].

Overbreeding and oversupply of greyhounds

Due to the need to breed enough greyhounds to ensure sufficient dogs who are suitable for racing, each year, it is inevitable that many dogs are bred who will never race and therefore require rehoming. It has been estimated that 40% of greyhounds will never race [1]. Unless breeding rates match the capacity for dogs leaving the industry to be rehomed, many healthy dogs will face an uncertain future where they may experience suffering. This oversupply problem can be exacerbated by financial incentives for breeding, appearance fees and the lure of prize money.

The racing career for a greyhound is very short. Dogs who begin a racing career usually start racing at about one-and-a-half years of age and are generally retired by two to five years of age, or earlier if they develop injuries or do not perform well. The high turnover of dogs places a very high demand for rehoming. Although industry-based adoption groups operate, the majority of greyhounds leaving the industry are rehomed through formal adoption processes undertaken by private volunteer rescue groups, many who rely solely on community support. It should also be noted that many adopted greyhounds may be returned. For example, in South Australia this is estimated to be up to 25%, which is a significant number of dogs further exacerbating the challenges for adoption groups to find suitable homes [2].

There is an ongoing lack of transparency and whole of life tracing with incomplete and inconsistent reporting on the outcomes for every greyhound. However, from the statistics available, significant concerns remain as to the fate of many greyhounds no longer required by the industry. There is no independent verification of who and how these dogs are cared for, including the number and length of time that healthy dogs are kept in facilities awaiting adoption. Concerns remain that many of these dogs may be killed but without auditable whole of life tracking, there is no assurance that every greyhound assessed as suitable, leaving the industry, is able to fulfil a healthy and happy life.

The routine use of surgical artificial insemination (AI) methods on female breeding greyhounds has been an additional animal welfare problem associated with breeding. Surgical AI is highly invasive involving surgery and general anaesthesia and causes significant pain to the female dog. In some EU countries, surgical AI is banned as it is considered ethically unacceptable, given more humane options are available. Fortunately, in September 2024, Greyhound Racing Australasia announced that surgical AI would be banned from 1st January 2026.

High rates of injury and death suffered by racing greyhounds

Injuries are very common in greyhound racing and are a major animal welfare issue as they cause pain, suffering and distress to the affected animals. Various types of injuries are regularly reported including serious bone fractures, lacerations and muscle injuries [6]. Other injuries sustained relate to physical over-exertion such as hypoxic fits (seizures due to a lack of oxygen), heat stress-related injury and collapsing post-race.

Serious injuries can lead to death on the track or euthanasia, i.e. 373 race fatalities were recorded nationally from 2021–2024. Of these, 83% of greyhound deaths involved fractures or multiple fractures and 8% were due to the greyhound collapsing (calculations based on analysis of industry steward’s report). The first turn of the racetrack is a common site for accidents or collisions, however many injuries also occur within the ‘catching pen’ – this is an enclosed area located just beyond the finish line with the aim of safely containing greyhounds after a race and facilitating their retrieval by handlers.

Injury and deaths statistics are not published for all tracks nationally by the racing industry but based on available industry figures, hundreds of greyhounds are injured every year on greyhound tracks during races across Australia. Injuries also occur during pre-training, training, trialling and non-TAB races; however, these statistics are generally not published. It is important to note that injuries may be detected post-race-day and these injuries may not be formally recorded.

Research conducted in Western Australia over a seven-year period (2017-2023) reported 281 race fatalities [6]. This gives an average of 40 dogs participating in races dying every year which equates to an average death rate of 4.5% of the number of dogs who raced. This study also found that 58% of fractures occurred in the right hindlimb which is believed to be due to the increased force associated with curves when running in an anticlockwise direction. Younger dogs were more likely to suffer forelimb fractures which were thought to be associated with increased risk of collision with other dogs, likely to be due to their relative inexperience.

Track design and maintenance are critical factors influencing the nature and severity of injuries, although the fundamental nature of greyhound racing involving multiple dogs racing at speed are also significant risk factors. There is a significant body of evidence on risks for greyhound injury and strategies to reduce injuries to greyhounds [7] but many of the evidence-based recommendations have either not been widely implemented by the industry or have been found to be ineffective in reducing injuries. For example, changing the track shape including reducing the camber or using straight instead of curved tracks; using grass tracks surface and reducing the number of dogs in each race.

Many of the greyhound racing authorities in Australia have tried to implement different forms of rehabilitation/recovery schemes for greyhounds injured on the track to provide and fund care for recovery and improve rehoming prospects through veterinary treatment and post-injury therapies [e.g. Greyhound Recovery Initiative – Greyhound Care & Standards, Greyhound Care Scheme 2.0]. However, these programs face significant limitations, including high costs and resource constraints, which can reduce access to adequate care. Long-term rehabilitation, on-going medical costs and/or behavioural changes further hinder successful rehoming, leaving many injured greyhounds at risk of euthanasia or prolonged institutionalisation in rehoming facilities. The industry does not provide publicly available comprehensive data regarding what these rebate schemes achieve in terms of greyhound welfare outcomes.

Inadequate socialisation and inadequate environmental enrichment

Many greyhound puppies and adult greyhounds are never adequately socialised, either with other dogs or with humans or to the different sights, objects, surfaces, sounds, experiences which companion dogs are likely to encounter in their lives [8]. Dogs who are socially deprived are more likely to develop fearfulness and antisocial behaviour which impacts negatively on their welfare. Lack of adequate socialisation may also make it more difficult to rehome retired or unwanted greyhounds.

Inadequate housing conditions and a lack of environmental enrichment is another key animal welfare issue for many greyhounds as many are kept in small, barren, single-dog kennels for prolonged periods of time [8].

Administration of banned substances

Various pharmaceutical substances have been administered to racing greyhounds in the quest for enhanced performance to win races. Racing authorities maintain a list of banned substances and run drug testing programs; however, drug use still occurs. Administration of banned substances is a serious animal welfare issue as many of these drugs can have serious physical and psychological effects on greyhounds. Dogs have tested positive to a range of substances including amphetamines, methamphetamines, caffeine, anabolic steroids, and Erythropoietin (EPO) [1].

Training

Live baiting refers to the practice of using live animals for the purpose of training greyhounds. This practice is illegal in all states and territories in Australia. The animals involved experience significant pain, fear, injury and distress and will eventually die. The same animals may be used repeatedly, suffering a very long and painful death.

For many years, the RSPCA has held serious concerns about live baiting. These concerns were confirmed in the Four Corners ABC program which exposed live baiting in three states in 2015 [9]. Multiple greyhound trainers including those with a high profile in the industry were directly implicated in live baiting practices, indicating that animal cruelty was widespread and entrenched in the industry. Although steps have been taken to eliminate live baiting, including strengthening of penalties and increased surveillance, there continues to be reports, allegations, investigations and convictions of live baiting occurring in the greyhound racing industry.

Inadequate regulation or enforceable standards

In some jurisdictions, the greyhound racing industry is still overseen by the greyhound racing authority which is responsible for both the regulation of the industry and its commercial development, promotion and marketing. This self-regulatory model fails to ensure that the welfare of greyhounds is prioritised and can lead to serious conflicts of interest, such as the use of financial incentives to promote greyhound breeding which in turn increase the number of dogs unwanted by the industry. There is also a lack of specific mandated animal welfare standards for greyhounds in some jurisdictions. Where a separate integrity body exists, there are significant challenges in their capacity to monitor and enforce standards to adequately protect greyhound welfare.

Lack of industry transparency and accountability

There is a lack of comprehensive published data on the lifetime outcomes for greyhounds born into the greyhound racing industry in most jurisdictions. This lack of transparency has significant ramifications in terms of tracking animal welfare outcomes in the industry. There is also a lack of effective oversight of the whole of life and post-racing outcomes for greyhounds, which can result in an inability to verify the status and whereabouts of greyhounds. This results in a lack of transparency and unreliable data which creates uncertainty about the fate of greyhounds who leave the industry.

Inquiries and Reviews

Several jurisdictions have undertaken reviews or inquiries into greyhound racing over the past decade. In 2015, following a horrific exposé of live baiting by an ABC Four Corners program [9], a special commission of inquiry was set up in NSW to investigate the industry. The findings from the inquiry were extremely disturbing including that at least 50% of greyhounds who were of no value to the industry were killed – an estimate of at least 48,000 dogs (but could be as high as 68,000) would have been killed between 2003-2015 [1]. The report acknowledged that it would be impossible for the industry to find homes for the estimated 3,000 greyhounds exiting the industry every year. Other problems highlighted included poor rearing and socialisation practices which caused fear and anxiety in young greyhounds, thus affecting their potential to be rehomed. In terms of live baiting, leading up to and at the time of the inquiry it was estimated that up to 20% of trainers in NSW engaged in live baiting, that it was an accepted practice by industry participants and that the governing body, Greyhound Racing NSW took no steps to stamp it out.

The report from the 2023 inquiry held in South Australia is also extremely damning and included over 70 recommendations [2]. The report noted that the industry had failed to implement reforms, lacks transparency and requires independent oversight in addition to the ongoing and significant animal welfare issues which must be addressed. The South Australian government appointed a reform inspector to oversee implementation of the recommendations – a progress report has not yet been made publicly available.

A parliamentary inquiry into greyhound racing in Western Australia in 2024 also revealed serious animal welfare concerns within the industry, including a 155% rise in on-track greyhound deaths between the 2022 and 2023 financial years, despite significant investments in welfare measures [10]. Additionally, the inquiry identified a lack of transparency in the reporting and overall tracking of greyhound deaths and serious injuries. The inquiry recommended that a select committee be established to further investigate and report on animal welfare issues in the industry. This recommendation emphasises the need for a thorough review of current practices to ensure they align with community expectations and uphold animal welfare standards.

International trends

Commercial greyhound racing continues in few countries including the United States, the United Kingdom, Ireland, Mexico and Vietnam (currently, there are no operational tracks in Vietnam, although plans have been approved to develop a racetrack in Lam Dong Province).

There has been a decline in the industry worldwide through pressure from animal welfare and community groups due to cruelty concerns and the negative societal impacts due to gambling. Globally, this trend is evident, with only two operational tracks remaining in the US and a 61% reduction in licensed tracks in the UK since 2000, leaving just 19 nationwide, including only one track remaining in Greater London [11].

In December 2024, the New Zealand government announced that due to ongoing serious animal welfare concerns, the greyhound racing industry would be phased out with an end date of July 2026 [5]. This has been followed by an announcement in February 2025 that greyhound racing will cease in Wales [12]. These announcements mean that by 2027 Sweden, Denmark, Germany, Netherlands, Mexico, Vietnam and Australia will be the only countries in the world where greyhound racing is permitted.

What needs to change

Given the numerous unresolved animal welfare concerns associated with the sport, the RSPCA does not support greyhound racing. Where greyhound racing continues to be conducted, the RSPCA advocates the following:

• The comprehensive regulation of greyhound racing by an independent body with a formal and complete separation of the integrity and regulatory functions from the commercial functions.
• The adoption of compulsory and enforced animal welfare standards for greyhounds at all life stages to eliminate practices that cause injury, pain, suffering or distress, and to ensure all greyhounds have a good quality of life.
• The adoption of formal processes to address oversupply and ‘wastage’rates. There should be an expectation and formal processes in place within the industry that greyhounds will be rehomed as a companion animal on retirement and provisions made to ensure their welfare.
• The mandatory collection and publication of comprehensive lifecycle data on lifecycle (birth to death records) and injury statistics and the development of a national identification and traceability system for all greyhounds to ensure each greyhound born can be accounted for.
• Systems must be implemented to ensure the robustness and transparency of the data gathered (e.g., independent auditing and regular inspections rather than a reliance on self-reporting).
• Continued investigations and surveillance for live baiting and other serious animal welfare offences, and enforcement of strong penalties for any animal welfare offences.
• Increased checks for banned substances and enforcement of strong penalties must be implemented and sustained.
• Injury rates need to be effectively addressed, racetrack safety improved to reduce injuries, and systems implemented to ensure greyhounds receive adequate treatment and rehabilitation if injured.
• Greyhounds must not be exported to other countries for racing.

‘Wastage’ refers to animals bred for a specific purpose who are no longer required or used by the industry or owner of the animal. These animals may remain in facilities for an extended period due to lack of suitable homes being available or, in some situations, may be killed.