S. HRG.

109338

PET AMIMAL WELFARE STATUTE OF 2005 (PAWS)

HEARING
BEFORE THE

SUBCOMMITTEE ON RESEARCH, NUTRITION, AND

GENERAL LEGISLATION
OF THE

COMMITTEE ON AGRICULTURE,
NUTRITION, AND FORESTRY
UNITED STATES SENATE
ONE HUNDRED NINTH CONGRESS
FIRST SESSION

NOVEMBER 8, 2005

Printed for the use of the

Committee on Agriculture, Nutrition, and Forestry

(
Available via the World Wide Web: http://www.agriculture.senate.gov
U.S. GOVERNMENT PRINTING OFFICE
WASHINGTON

26594 PDF

2006

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COMMITTEE ON AGRICULTURE, NUTRITION, AND FORESTRY

SAXBY CHAMBLISS, Georgia, Chairman
RICHARD G. LUGAR, Indiana
TOM HARKIN, Iowa
THAD COCHRAN, Mississippi
PATRICK J. LEAHY, Vermont
MITCH MCCONNELL, Kentucky
KENT CONRAD, North Dakota
PAT ROBERTS, Kansas
MAX BAUCUS, Montana
JAMES M. TALENT, Missouri
BLANCHE L. LINCOLN, Arkansas
CRAIG THOMAS, Wyoming
DEBBIE A. STABENOW, Michigan
RICK SANTORUM, Pennsylvania
E. BENJAMIN NELSON, Nebraska
NORM COLEMAN, Minnesota
MARK DAYTON, Minnesota
MICHEAL D. CRAPO, Idaho
KEN SALAZAR, Colorado
CHARLES E. GRASSLEY, Iowa
MARTHA SCOTT POINDEXTER, Majority Staff Director
DAVID L. JOHNSON, Majority Chief Counsel
STEVEN MEEKS, Majority Legislative Director
ROBERT E. STURM, Chief Clerk
MARK HALVERSON, Minority Staff Director

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CONTENTS
Page

HEARING(S):
Pet Animal Welfare Statute of 2005 (PAWS) ........................................................

01

Tuesday, November 8, 2005

STATEMENTS PRESENTED BY SENATORS
Santorum, Hon. Rick, a U.S. Senator from Pennsylvania, Chairman, Subcommittee on Research, Nutrition, and General Legislation ...........................

01

WITNESSES
Amundson, Sara, Legislative Director, Doris Day Animal League .....................
Childers, Henry, President, American Veterinary Medical Association .............
Hoffman, John E., Dog Fancier and Lawyer .........................................................
Maddox, Michael, Legislative Director, Pet Industry Joint Advisory Council ...
Menaker, Ron, Chairman, American Kennel Club ...............................................
Pacelle, Wayne, President and Chief Executive Officer, the Humane Society
of the United States .............................................................................................
Worley, Norma, Director, Animal Welfare Program, Maine Department of
Agriculture ............................................................................................................

20
08
10
11
07
17
22

APPENDIX
PREPARED STATEMENTS:
Stabenow, Hon. Debbie and Durbin, Hon. Richard .......................................
Amundson, Sara ...............................................................................................
Childers, Henry ................................................................................................
Howard, Deborah A. .........................................................................................
Liss, Cathy ........................................................................................................
Hoffman, John E. ..............................................................................................
Maddox, Michael ...............................................................................................
Menaker, Ron ....................................................................................................
Pacelle, Wayne ..................................................................................................
Worley, Norma ..................................................................................................
DOCUMENT(S) SUBMITTED FOR THE RECORD:
Letters of support for PAWS ...........................................................................
Letters of opposition towards PAWS ..............................................................

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80
86
89
93
104
107
110
123
128
129

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PET ANIMAL WELFARE STATUTE OF 2005

(PAWS)
TUESDAY, NOVEMBER 8, 2005

UNITED STATES SENATE,

SUBCOMMITTEE ON RESEARCH, NUTRITION, AND GENERAL
LEGISLATION, OF THE COMMITTEE ON AGRICULTURE,
NUTRITION AND FORESTRY,
Washington, DC
The subcommittee met, pursuant to notice, at 2:31 p.m., in Room
SDG50, Dirksen Senate Office Building, Hon. Rick Santorum
(chairman of the subcommittee) presiding.
Present: Senator Santorum.
STATEMENT OF HON. RICK SANTORUM, A U.S. SENATOR FROM
PENNSYLVANIA, CHAIRMAN, SUBCOMMITTEE ON RESEARCH, NUTRITION, AND GENERAL LEGISLATION, OF THE
COMMITTEE ON AGRICULTURE, NUTRITION AND FORESTRY

Senator SANTORUM. I will hit that a little harder next time.

Thank you all for being here. Let me welcome everybody to this
hearing and thank all of you in attendance and particularly our
witnesses for being here. The committee will come to order, and we
just want to again thank everyone.
Over the past several years, since the original piece of legislation
that was focused on revising the Animal Welfare Act to deal with
changes in the buying and selling of animals, of dogs and cats in
particular. It came to the farm bill and was stripped out of conference. I have been working with a variety of different groups,
many of whom are represented here today, to try to get at a serious
problem that exists that we will hear described in more detail
today.
This has been a work in progress, and if there is one message
that I want to leave with people who are here today is that it continues to be a work in progress. One of the reasons I wanted to
hold this hearing is because we have seen, I even noticed in the
paper today, in the Roll Call today, there is an effort out there on
the Internet and other places to put out misconceptions about what
this legislation does, and it is important to get on the record not
only what this legislation does but those who are in support of this
legislation, what our intent is, so we can continue to work together
to work on the problems that we confront.
And those problems are serious. They are as a result of the
changing economic situation with respect to the selling of dogs and
cats and in particular with the advent of the Internet, the advent
of sales from overseas into this country, the direct marketing of
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2
those animals by Internet businesses and others. It is important for
us to make sure that animals are treated humanely and that we,
in fact, have proper consumer protections. These are animals that
are in most cases, not in all, but in most cases are going to be in
the homes and interacting with people, and we want to make sure
that these animals are, in fact, healthy and, in fact, what people
are paying for and not something that is going to cause not only
an economic harm for people but, as we all know, those of us who
are dog owners and cat owners, emotional harm to individuals.
I strongly believe that this legislation is important. I also strongly believe that we can arrive at a bill that will bring people together who in many cases have not worked together on issues because of the important problem that we are facing. And again, I
want to reiterate, I want to thank all of the groups that are here
today, our first panel and our second panel.
Working very closely with us, we have been able to make some
major changes just in the last several months since we put forth
the PAWS legislation that has gotten so much attention, we have
worked with the pet stores who I know are represented here
todaythat is PIJAC as well as the AKC and other organizations
who have expressed concern about various provisions of this legislation, the Veterinary Medical Association, all have expressed concern, have come to my office, and we have worked to try to sort
through those. We will have a discussion about some of those, but
candidly, we may not even discuss and bring up some of them, because they are issues that are now resolved.
My hope is that as a result of this hearing and the discussions
that we have had leading up to this hearing that I can put out a
discussion draft in the coming weeks so we can get further feedback and input from the public, those who are interested to make
sure that we are all headed in the right direction, which is a good
piece of consumer protection legislation as well as a strong animal
welfare piece at the same time.
With that, I just, again, want to reiterate that it is my intention
to work together to have all the responsible groups represented
here today and others to be on the same page to make sure that
this legislation is adopted. I have no intention, and I know, and I
will ask, I have no intention of putting folks like me who have a
dog and have bred a dog under Federal Government control, I have
no intention of, and I think the people here have no intention of
making sure that folks are hobby breeders or show breeders or fanciers or the like who do not breed lots of dogs and have lots of litters as defined in the bill; we are very clear about that, that we
are talking about folks who are in large, in a sense, if you will, of
production of dogs and cats for sale.
These are the folks that we are looking at. These are the folks
who are, in many cases, already covered under the Animal Welfare
Act. We want to make sure that that act, which was written a long
time ago with terms that no longer apply has a modern interpretation and one that we will have consensus on.
So I again appreciateI cannot tell you how much work has
gone into it by the organizations represented here today to find
common ground. We will continue to search for that common

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ground, and I am hopeful that we will have a strong piece of legislation that deals with the problems that we confront.
Senator SANTORUM. With that, let me introduce our first panel.
We have Ron Menaker, who is the chairman of the American Kennel Club. He is with us today; Dr. Henry Childers, who is the president of the American Veterinary Medical Association; Mr. John
Hoffman, who is a dog fancier; and Mr. Michael Maddox, who is
the legislative director of PIJAC, which is the Pet Industry Joint
Advisory Council.
Let me go first to you, Mr. Menaker, and Mr. Menaker is the
Chairman of the Board of the American Kennel Club. He is from
New York, and I want to in particular thank you for the various
meetings that we have had over the past few months and the
amount of time and effort that you and the AKC have spent in
making sure that this legislation will have the kind of broad support that is needed to address the problems that we have and be
able to be successfully passed here in the United States Senate and
signed into law.
Mr. MENAKER.
STATEMENT OF RON MENAKER, CHAIRMAN, AMERICAN
KENNEL CLUB

Mr. MENAKER. Thank you, Mr. Chairman. I am the Chairman of

Board of the American Kennel Club. The AKC is the largest and
only significant not-for-profit dog registry and sanctioning body for
competitive dog events in the United States. We register nearly 1
million pure-bred dogs and over 400,000 litters of pure-bred puppies every year.
Almost 17,000 competitive dog events are held nationally each
year under AKC rules attracting more than 2.5 million entries. I
cite these statistics to emphasize the importance of the sport of
pure-bred dogs. Selling puppies is a business for some, but for
many Americans who breed and raise pure-bred dogs it is a hobby,
a family sport and a labor of love.
The AKC was founded in this spirit 121 years ago, and this passion is still alive today. The AKC, however, also provides registration services to all dog breeders who meet our standards, including
mandatory inspections of high volume breeders, dog identification
and recordkeeping, care and condition standards for dogs and kennels, and DNA testing to check parentage of litters. This year, we
are on target to conduct approximately 5,000 kennel inspections.
The AKC encourages puppy buyers to buy from responsible resources. We believe the vast majority of high volume breeders as
well as smaller breeding establishments do a conscientious job of
breeding and raising quality puppies and care passionately about
their animals. However, we also know from our first-hand experience in the field that in spite of our efforts and the efforts of the
USDA, there are still significant problems that need to be addressed for the sake of both the dogs and the pet-buying public.
Some of these are deficiencies in the Animal Welfare Act and
some result from changes in the marketplace and marketing techniques for dogs that have occurred in the 30 years since the act
was extended to dog dealers. That is why we are pleased that you

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have focused your attention and the attention of Congress on the
need to strengthen the act.
We are pleased to be working with you in this effort. As you
know, we did not support your previous legislation intended to address the problems of so-called puppy mills, because we felt that
Federal regulation of practices for breeding and socialization of
puppies was the wrong approach. However, PAWS takes a different
approach. It gives the USDA access to source records of persons
who acquire dogs for resale, provides a more efficient time frame
for dealing with violators who have been suspended, and gives the
USDA authority to close down egregious violators.
These are essential tools for the USDA to effectively enforce the
Act. We do not expect the USDA to have to use these tools often,
but the fact that the USDA has these tools will create an incentive
for persons to obtain licenses and quickly correct violations. We
also know from the AKCs own experience that the time has come
to bring under regulation high volume breeders and brokers who
sell at retail or who import puppies in volume for resale. However,
it is also essential that we maintain the sport and hobby of purebred dog breeding and exhibiting as it is today, a sport regulated
by our own rigorous compliance requirements.
PAWS should focus the Federal Governments regulatory resources on realistic targets and goals. We appreciate the dealer
provisions of PAWS as you have clarified them. We especially appreciate the addition of the provision that will exempt retailers
based on kennel inspection standards of not-for-profit organizations
certified by the Secretary of Agriculture. This will focus enforcement on the high volume retail breeders and importers whom it is
appropriate to regulate without imposing Federal regulation on
hobby and show breeders.
Mr. Chairman, we thank you for your hard work and leadership
on this important issue. We thank you for your flexibility and openness to new approaches. We look forward to continuing to work
with you to develop and secure legislation that will be good for all
of our beloved dogs.
Thank you very much.
[The prepared statement of Mr. Menaker can be found in the appendix on page 107.]
Senator SANTORUM. Thank you very much, Mr. Menaker.
Dr. Childers, thank you for being here.
STATEMENT OF HENRY CHILDERS, PRESIDENT, AMERICAN
VETERINARY MEDICAL ASSOCIATION

Mr. CHILDERS. Thank you, Mr. Chairman and Members of the

subcommittee for giving the American Veterinary Medical Association the opportunity to speak in support of the Pet Animal Welfare
Statute. I am Dr. Henry Childers, President of the AVMA and a
companion animal practitioner from Rhode Island. The AVMA represents 73,000 veterinarians. Fifty-five percent of us are companion
animal practitioners who commit our expertise and energy to ensuring the wellbeing of the nations pets.
Unfortunately, veterinarians are regularly confronted with pets
that suffer the ill effects of irresponsible breeding and inappropriate transport over long distances. Animal suffering compounds

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human suffering when heartache and financial burdens are thrust
upon pet owners who have purchased these unfortunate animals.
Large scale puppy and kitten dealers who escape regulation
under the current Animal Welfare Act are a significant source of
these problems. Overbreeding, inbreeding, inadequate veterinary
care, poor quality food and shelter, overcrowding, poor socialization
and stress due to prolonged transport are the hallmarks of these
operations. These operations escape regulation because they sell directly to the public, either from their facilities or by way of the
Internet, and are therefore classified as retail pet stores.
Retail pet stores are not required to be licensed under the Animal Welfare Act. As veterinarians, we see the shortened life
expectancies and the years of impaired function that the affected
pets must endure. Sometimes, when our most valued efforts cannot
resolve the problem, families must be forced to make yet another
difficult decision, euthanasia.
The burdens created by irresponsible breeders who escape regulation are not limited to those affecting the pet and its family.
When owners can no longer care for their pets and cannot bear the
idea of euthanasia, they often surrender their pets to animal shelters. Whether these animal shelters are publicly supported or privately supported, the cost of caring for these animals is now borne
by the community.
The high volume breeders and importers that this statute will affect have profit as their only goal. They do not care if the animals
they deliver are healthy. They do not care what effect this will
have on the purchasers or the shelters. To date, they have been excepted from the law. The AVMA believes this must be corrected.
Congress has the power to do that. Passing the Pet Animal Welfare
Statute will provide USDA with the tools it needs to bring these
high volume breeders and importers under a mandate that requires
a viable health plan for their animals and holds them accountable
when their efforts do not meet the standards.
The AVMA has a strong professional and public education presence. Veterinarians possess up-to-date and scientifically rigorous
information about animal health care and welfare which they pass
along to their clients on a daily basis. These clients include breeders, pet owners, and an increasing number of prospective pet owners who are seeking the advice of a veterinarian.
Ensuring pet welfare is at the heart of what we do. Ensuring the
welfare of the American public is at the heart of what you do. Together, we can help ensure that Americas pet owners and pets are
afforded the protection they deserve. The Pet Animal Welfare Statute is an important step in the right direction. While we have included comments in our written testimony that we urge the subcommittee to consider, the AVMA appreciates the opportunity to
publicly express our support for this legislation.
I thank you very much.
[The prepared statement of Mr. Childers can be found in the appendix on page 80.]
Senator SANTORUM. Thank you very much Dr. Childers.
Mr. HOFFMAN.

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STATEMENT OF JOHN E. HOFFMAN, DOG FANCIER AND
LAWYER

Mr. HOFFMAN. Thank you, Mr. Chairman.

Senator SANTORUM. If you can pull the microphone up so peoplethank you.
Mr. HOFFMAN. I am a business litigation lawyer, the owner of
three miniature schnauzers, and an occasional dog breeder and exhibitor. I own dogs for the same reason most people do. They are
wonderful companions. Over the years, I have provided pro bono
legal services to dog clubs and rescue organizations. A year ago, the
French Bulldog Rescue Network asked me to help Willa Bagwell,
the humane officer for Lake Elsinore, California. An importer there
was selling sick and dying puppies from Eastern Europe. Many
buyers were incurring huge veterinary fees within a week after
buying the puppies. Some puppies were dying despite the veterinarians best efforts.
After months of work, we were able to have the bankruptcy court
bar the importer from buying and selling puppies while she pays
off her creditors but only because she foolishly filed for bankruptcy.
If she had not done so, she would probably still be in business.
When I began investigating the scope of the commercial puppy
importing business, I found dozens of kennels advertising imported
Bulldog and French Bulldog puppies on their own Websites and
also on Websites containing classified ads for puppies. Some importers sell through newspaper ads. Some sell through pet shops.
Some do not disclose before sale that they are selling imported puppies. Most of them began as domestic breeders. Many continue to
breed domestically as well as importing. It just depends which
costs less.
Exporters abroad gather puppies from breeders in rural areas,
ship them by truck or rail to the capital cities, from where they are
shipped by air to the U.S. and then by car or truck to the importers place of business. Many puppies die en route. Many more die
shortly after arrival. Dead puppies are just a cost of business, acceptable so long as the cost of importing remains less than the cost
of breeding puppies here.
Imported puppies are not cheap. Many are sold for $1,800 and
up, as shown by the enlarged ad to my right for Sasha and Whitney. Puppies of many breeds are being imported. We also have an
enlargement of one page of the many pages on the Europuppy
Website showing different breeds for sale.
Based on the number of puppies the Lake Elsinore importer was
selling, the number of importers selling over the Internet and the
number of puppies arriving monthly through the Los Angeles Airport, it is clear that at least 10,000 puppies a year are being into
the U.S. and probably many more than that.
Unfortunately, State and local regulation is not enforced. Local
prosecutors are busy. Enforcement of animal protection laws tends
to be a low priority, particularly when most of the injured buyers
live outside of the jurisdiction, as is commonly the case with Internet sellers. Thus, humane officers can rarely persuade State and
local prosecutors to act. That is true whether the offenses involve
imported or domestically bred puppies.

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Federal law at present is no more helpful. The Animal Welfare
Act does not cover puppy importers who sell at retail, such as
through the Internet or newspaper ads. Other Federal laws that
are applicable to imported puppies are not being enforced. The
Frenchie Tails ad to my right is an example. It openly advertises
seven-week-old imported puppies for sale, even though Federal law
prohibits shipment of puppies younger than eight weeks old and
prohibits sale of imported puppies younger than four months.
If enacted, PAWS would bring under inspection and regulation
all puppy importers who import more than 25 puppies per year for
resale, regardless of how they sell their puppies, and thus go a long
way toward ending the abuses that are now occurring.
Thank you, Mr. Chairman, Members of the subcommittee, and
staff members for your hard work on this important issue. Please
feel free to call upon me if I can be of any assistance in that regard.
[The prepared statement of Mr. Hoffman can be found in the appendix on page 93.]
Senator SANTORUM. Thank you, Mr. Hoffman.
Mr. MADDOX.
STATEMENT OF MICHAEL MADDOX, LEGISLATIVE DIRECTOR,
PET INDUSTRY JOINT ADVISORY COUNCIL

Mr. MADDOX. Thank you, Mr. Chairman.

We appreciate the opportunity to offer you our views. The Pet Industry Joint Advisory Council is the largest pet trade association
in the world, representing every segment of the pet industry.
PIJAC works to ensure that members of the commercial trade observe high standards in the care of pet animals. We have been involved with the Animal Welfare Act for more than three decades
and have worked tirelessly with APHIS to maximize effective administration of the act.
We believe proper enforcement of AWA standards brings about
mutual benefit for the pet industry, the pet-owning public and the
animals themselves. We have witnessed first hand these benefits
over the years and are intent on taking whatever efforts we may
to perpetuate the good work of USDA.
Congress has historically recognized the need for a functional
regulatory framework that targets those persons in the pet trade
escaping public and regulatory oversight. From its inception, the
AWA has explicitly exempted retailers that are subject to broad
public exposure and are frequently regulated at the State and local
level. PIJAC joins with you, Mr. Chairman in acknowledging that
the rationale for exempting pet stores is as valid today as it has
always been. In fact, as this subcommittee considers bringing
under the act potentially thousands of additional licensees that will
vie for APHIS regulatory and inspection resources, it is important
that we do not overburden the agency with a mandate for persons
that are not in need of Federal regulation.
We would like to raise, Mr. Chairman, some concerns we have
with the introduced bill, recognizing that amendments may be addressing these concerns. As noted by your other witnesses today,
advocates of PAWS point to large scale breeding operations and
Internet sales of dogs as recent trends escaping oversight. This bill
would regulate individuals but would also have the effect of cap-

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turing the very pet stores intended to be subject to the AWAs pet
store exemption. Other provisions would go so far as to mandate
licensure of persons who sell even a single pet animal.
PAWS deletion of the longstanding de minimis exemption for
noncommercial breeders would mean every person selling even a
single animal other than a dog or cat has to be licensed. PIJAC
feels certain that the Congress does not wish to subject a 10-yearold child to Federal licensure for selling a couple baby hamsters.
We also note that a dollar does not buy what it did in 1970, Mr.
Chairman. This de minimis exemption established 30 years ago
and yet to be amended should be retained in the Act with a revised
statutory dollar amount representing inflation over that time span.
One significant objective of this legislation is to ensure regulation
of those who import dogs for resale in the U.S. However, in regulating retailers, this provision would not distinguish between those
who import and sell dogs themselves, such as those selling over the
Internet, and bona fide pet stores who buy puppies from a Class
B-licensed dealer.
The new retail pet store definition is meant to ensure regulation
of persons not viewed as traditional pet stores. Unfortunately, Mr.
Chairman, it contains exclusions that would encompass the very
businesses to which the pet store exemption is meant to apply; for
example, the provision excluding animals bred for sale to the public
is aimed at those who breed and sell dogs and cats directly to the
public, not pet stores who happen to carry hamsters, gerbils, or
guinea pigs not deliberately bred by the pet store.
The exclusion for hunting, breeding, and security dogs is meant
to ensure commercial breeders do not escape regulation but as
crafted in the original legislation would have the effect of regulating pet stores. This turns the clause on its head. Finally, the exclusion for wild animals relies on a term that encompasses many
common, domesticated pet animals normally sold at pet stores. The
exclusion would have the anomalous result of extending licensure
to the very pet stores specifically intended for exemption.
This brings us to the source record provision, Mr. Chairman. The
language would require keeping information that pet dealers have
no authority to obtain in the first place. A more effective provision
would require keeping USDA license numbers, thereby allowing
USDA to target unlicensed dealers. Two additional enforcement
provisions that will substantially aid APHIS are found in Sections
4 and 5. The temporary suspension period extension clause gives
USDA authority in less frequent but more urgent cases. Of even
greater importance, the provision creating authority to enjoin unlicensed dealers who are ignoring their obligation to meet legal
standards.
The injunctive authority under PAWS would add a powerful enforcement tool to permit the agency to go after people who are often
the most egregious violators. PIJAC endorses these provisions unchanged and feels they would go far in facilitating USDAs effective
enforcement of the act.
We must acknowledge as you have already noted, Mr. Chairman,
that recent efforts with your staff and proponents of PAWS have
yielded suggested amendments that would address concerns that
we have raised here today. We are optimistic that such amend-

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ments can correct the unintended consequences that would result
in compromising USDA enforcement efforts while preserving important sections of this bill that promote more effective enforcement.
We appreciate your willingness to consider the pet industrys
concerns, Mr. Chairman, and thank the subcommittee for entertaining our comments today.
[The prepared statement of Mr. Maddox can be found in the appendix on page 104.]
Senator SANTORUM. Thank you very much, Mr. Maddox. I appreciate it.
We have two votes that started at 2:45, and so, since it is almost
3:00, and we have 15 minute votes, that means I have to run. And
there will be back to back votes, so I will be back hopefully in the
next 15 or so minutes, and we will resume with questions for this
panel, and I apologize for the interruption.
We are recessed. Thank you.
[Recess.]
Senator SANTORUM. The meeting will come to order. Again, let
me apologize to all of you for the vagaries of the United States Senate and having to do such mundane things as cast votes on important amendments to the defense authorization bill, but I appreciate
your willingness to be patient.
Let me start out. There are a lot of misconceptions, I would say,
misconceptions about what this bill is all about, and I just want to
run through a few of them with this panel. We will run through
a few more with the second panel. First is just maybe Mr.
Menaker, you can give me a sense with your membership, what
percentage of your membership would be affected by the PAWS legislation, would apply the Animal Welfare Act to what percentage
of your membership roughly?
Mr. MENAKER. As it stands today, Senator, I would say less than
4 percent.
Senator SANTORUM. Less than 4 percent. So 96 percent of your
members would not be affected at all.
Mr. MENAKER. No differently than they are today.
Senator SANTORUM. No differently than they are today. But we
have heard testimony that this act, you believe, panelists would believe, would cover more people, more people would be subject to the
Animal Welfare Act as a result of this bill. You would admit that.
Mr. MENAKER. Absolutely, because with the care and conditions
and inspections that we conduct annually, we are forced when
there is noncompliance to suspend and move people out of the AKC
registry. The problem is they take off to the nonregulated registries
and continue to function as normal.
Senator SANTORUM. Another question was raised about the
amount of enforcement dollars that APHIS would have, the USDA
would have to deal with the additional entities that would be governed by the Animal Welfare Act. You mentioned something in
your testimony that we are working toward resolution, and that is
the idea of having an organization such as yourselves, the AKC,
provide a certification for standards that would be at least as rigorous as the Animal Welfare Act or in exceedence of the Animal

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Welfare Act. Could you give me a sense of how that would work
or what your suggestion is?
Mr. MENAKER. Senator, what I have said is that we believe that
our AKC inspections today exceed the USDA inspections. We inspect for records and identification purposes. We inspect for, you
know, looking at IDs via tattoos, microchips, collar tags. We do
DNA for parentage. Our care and conditions look for cleanliness,
parasite infestation, safety of the materials the breeder uses, and
the adequacy of the shelters.
What I am saying is that when an individual is inspected, a kennel, by the American Kennel Club, if they meet these rigorous requirements, then the proposal we spoke of would be to basically
allow an exemption so that the dollars could be spent inspecting
those facilities and those kennels who today are not inspected at
all and are under no regulation whatsoever.
Senator SANTORUM. Does any other panelist have a comment
about that suggestion? No?
Mr. MADDOX. I would only say, Mr. Chairman, that as noted,
PIJAC has worked closely with USDA for many years to enhance
enforcement of the Act, and we certainly, while this act seeks to
capture people that you feel need to be regulated, we certainly
would not want to see the ability of USDA to regulate all licensees
compromised in any way. So certainly, anything that you would do
to further the inspection capabilities would be a positive step.
Senator SANTORUM. Targeting the resources to where the problem is the most severe.
Mr. MADDOX. Yes, sir.
Senator SANTORUM. Some other things have been brought up, if
anyone would like to comment, someone suggested that the PAWS
legislation would have a negative impact on sportsmen. Does anybody want to make a comment on that, whether you see that as
a real threat to the sportsmen.
Mr. Menaker?
Mr. MENAKER. I personally do not see that as a threat. I think
that most of what I have read is absolutely unfounded. I believe
that individuals have misunderstood what the legislation is intended to do.
We at the American Kennel Club are proud of the fact that we
have had standards in place for the past 10 years, actually beyond
that when it comes to records, for the past 40 years for records, and
we do not see a problem having standards put in place that are
equivalent to the standards we already use. Unfortunately, given
the standards we have put in place, we have had to suspend over
2,000 people in the last five years, which has caused a reduction
in our registrations of about 25 percent.
However, we are proud to say that we believe those people
should not be part of the American Kennel Clubs process, because
their care and conditions and standards are absolutely inappropriate. The problem is that they move out to the other 23 registries
that have no regulation at all, so they beat the system by moving
out.
Senator SANTORUM. Other comment?
Mr. HOFFMAN. I concur with Mr. Menaker. Anybody who is
breeding 25 or more dogs or six or more litters, whichever is great-

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er, has crossed the threshold from a pure hobby into a business
and ought to be subject to the kind of regulation most businesses
are. All the Act requires is inspection and compliance with decent
treatment standards. That is not too much to ask of anybody who
is in business.
Senator SANTORUM. Another concern that I have read and seen
on the Internet and other places is that this legislation would bring
commercial regulatory standards into the home, that USDA would
do that. Anybody have any fear of that or concern that something
like that would be required under this act?
Mr. MENAKER. Well, I certainly do not, speaking on behalf of the
American Kennel Club. As I say, we do it today. We have been
doing it today. Nothing changes, and I believe it is appropriate.
Anything we do in life, we have certain standards. We have to set
standards. We abide by those standards, and we penalize or take
action. The attempt is to try to change behavior and to improve the
care and conditions for the animals. The attempt is nothing more
than that. If the individual complies, there is no reason why the
individual cannot continue to participate. Like everything else in
life, if the individual does not comply, they should not be allowed
to continue to do business in a manner that is not appropriate.
Senator SANTORUM. Another point I have heard is that state laws
are sufficient. Any comment on whether there needs to be any regulation on the Federal level with respect to this as opposed to just
allowing state laws to take effect? I think, Mr. Hoffman, you commented on that.
Mr. HOFFMAN. Yes, I do. The problem is that where the sales are
outside the local jurisdiction, there is very little incentive for a
prosecutor with limited resources to devote time to them. He is
going to spend his time on matters that affect his local constituents.
Furthermore, animal cases tend to be low priority with most
prosecutorial agencies. You generally see better enforcement in the
large cities where the animal control agency is a municipal agency
as opposed to a private organization like an SPCA, because they
have more influence with the prosecutors; also, in a large city, you
will often have a particular deputy charged with enforcing the animal control laws. He will have some experience and is not starting
from scratch.
But when you get outside of the large cities to a smaller place
like Lake Elsinore, for instance, and having done work for other
rescues around the country, I am aware it is pretty well uniform,
it is very difficult to get someone to spend a day or two reading
up on animal laws and prosecuting these things when they have
murders, robberies, and all the other things that affect their people
more directly.
Senator SANTORUM. You have laid out in your testimony, Mr.
Hoffman, some violations of the laws in these Internet sales. Are
you aware of any work being done by APHIS or USDA under the
Animal Welfare Act to deal with the problem that you have seen?
Mr. HOFFMAN. USDA does prohibit transport of dogs younger
than eight weeks, and the burden of that initially falls on the carriers. But they are dependent on the paperwork. They cannot tell
how old the animals are. And yet, as you have seen from one of

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the ads, someone is advertising seven week old puppies imported
from Europe. Obviously, those puppies were transported at less
than eight weeks of age.
There are also CDC regulations which prohibit sale of puppies
less than 30 days after vaccination for rabies at a minimum age
of three months in most States, four months in others, which
means that they cannot be sold at less than four months or five
months of age. There is absolutely zero enforcement. The CDC has
told me they have no funds for enforcement, and all of these importers are advertising younger dogs.
There is not much demand for four and five month old puppies,
so the puppies are sold as soon as they arrive. For the CDC, it is
a fairly low priority, because the puppies are suffering generally
from diseases which are not transmissible to humans, and the
CDCs concern is mostly with human infection.
Part of PAWS will allow the USDA to enforce regulations of
other Federal agencies. I think this would go a long way towards
helping with that situation, because the USDA would probably be
more motivated to enforce the confinement regulations than is the
CDC.
Senator SANTORUM. Thank you.
Mr. Maddox, you mentioned some concerns you had. You also
mentioned that we have been working and trying to address those.
I guess my question to you is that given where that discussion is,
do you believe that we have adequately addressed the concerns
that you have with the original draft with the modifications that
have been discussed with you?
Mr. MADDOX. Mr. Chairman, I am not certain precisely where we
have ended up with negotiations, so I want to offer that caveat. But
I do believe that based on what we have discussed and what we
have offered in response to that that it does appear that you may
be addressing pretty much all of PIJACs concerns, in which case,
obviously, we would no longer oppose the bill in any regard.
Senator SANTORUM. I guess you say that you would no longer oppose the bill, are there any provisions of the bill that you would
support, any ones that you would
Mr. MADDOX. Mr. Chairman, as we noted, we absolutely support
the enforcement provisions with regard to the extension of the suspension period and with regard to the injunctive authority of
USDA. We believe this will substantially aid the agency in their
enforcement efforts, and we wholeheartedly support those provisions of the bill.
The one bill with regard to the so-called threshold at which you
distinguish between commercial and hobby activity is a provision,
Mr. Chairman, that we really are not taking a position on. We do
recognize, and I think everybody recognizes, that there is some
type of activity that is hobby or noncommercial in nature, and obviously, there is a great deal of activity that is commercial in nature.
Where you draw that distinction is something that we have not
stepped in on, primarily because it would not directly affect the
commercial pet industry. We are already regulated in that regard.
Our people are already licensed, and it would not expand our licensure by this bill. But certainly, by the same token, we are not
opposing that measure. We simply do not feel that it directly im-

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13
pacts our industry, and therefore, we are taking a neutral stance
on that particular provision, Mr. Chairman.
Senator SANTORUM. Do you feel that your industry has been affected or harmed by this change in the industry with respect to
sales of animals?
Mr. MADDOX. Well, Mr. Chairman, we certainly, as noted, we endorse effective enforcement of the act. We believe that is in the best
interests of the public, of the pets, and of the commercial pet industry. We believe that those persons who fail to meet requirements
of law should not be in the industry, and we are pleased to see
them either brought up to standards or put out of business.
I do not know, and I do not think anybody knows, the degree to
which the import and Internet sale of dogs is occurring. So I cannot
address, you know, I cannot address the degree to which that
might be affected the pet trade. But certainly, as I said, persons
who should be licensed and should be observing Federal standards
but are not, we want them either brought up to snuff or put out
of business.
Senator SANTORUM. Does anybody have any further comments
before I dismiss you?
Thank you all very much for coming, and if the second panel
could now take your seats, I would appreciate it. While that panel
is getting situated, I just want to enter into the record a statement
by Senator Stabenow and Senator Durbin and other information
that we have received prior to this hearing to be made a part of
the record
[The prepared statements of Senators Stabenow and Durbin can
be found in the appendix on page 26.]
Senator SANTORUM. With that, let me thank our second panel of
witnesses. We have Mr. Wayne Pacelle, who is the President and
CEO of the Humane Society of the United States; Ms. Sara
Amundson, who is the legislative director of the Doris Day Animal
League; and Ms. Norma Worley, Director of the Animal Welfare
Program at the Maine Department of Agriculture. Let me thank all
of you for coming and with your patience in testifying here.
Mr. Pacelle, I want to thank you in particular for all the work
that you have done over the years in working with this and your
willingness to sit down and work through as we have just seen
with the prior panel a lot of issues and a lot of sometimes very
prickly issues. And dealing with the cooperation that we have had
from you has been outstanding, so I appreciate that.
Mr. PACELLE.
STATEMENT OF WAYNE PACELLE, PRESIDENT AND CHIEF EXECUTIVE OFFICER, THE HUMANE SOCIETY OF THE UNITED
STATES

Mr. PACELLE. Well, thank you very much, Mr. Chairman. As you
said, I am Wayne Pacelle, President of the Humane Society of the
United States. We are headquartered in Washington, DC We have
9.4 million members and constituents, including more than 300,000
in Pennsylvania, and this is not a quid pro quo, but we are grateful
to you for all of your leadership throughout your career in public
service.

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This has not been a fleeting concern of yours. I remember standing with you more than a decade ago on this very subject of commercial dog breeding operations, and I appreciate that you have
stuck with it to such a degree and also in a very bipartisan way,
attracting Senator Durbin also in the efforts that you have made
to secure funding. There is one thing to have authorizing legislation. There is another matter to see that the existing laws are
properly implemented, and your leadership with that of Senator
Levin and others in securing adequate funding, an 81 percent increase in funding for the Animal Welfare Act over the last five
years, has really tremendously helped not just the dogs and the
cats but all of the other animals regulated under the Animal Welfare Act as well as the Horse Protection Act, which is another
major law that you have helped to seek funding for.
And frankly, I must admit also, and I would like it to be reflected
in the record, your other efforts to amend the Animal Welfare Act
regarding Section 26 regarding animal fighting and combating the
barbaric practices of dog fighting and cock fighting; so we are deeply grateful to you for all of your efforts and in particular this effort
here.
As you know, the Animal Welfare Act was established in 1966,
so next year will be the 40th year of enforcement to protect animals on a nationwide scale dealing with regulated industries that
by their nature deal with interstate commerce. And that is really
the issue here. We work very aggressively at the State level on
these issues, and many of the issues are State issues, and we welcome our cooperation, collaboration, with State agencies and also
local agencies.
But some industries are of a national or international scope that
require Federal intervention, involvement, regulatory oversight,
and that is precisely the case with the pet trade and the dog and
cat trade. And essentially what we have here is I think a very modest bill, a bill that fundamentally deals with the question of fairness. You have a regulated community that is covered because they
are selling at a volume that has triggered enforcement by the
USDA, and they are selling at wholesale.
Because of the Internet, we have a circumstance which the Animal Welfare Act authors in 1966 and subsequent amendment authors, 1985, could not have anticipated the advent of the Internet
and could not have anticipated the very brisk sales that now exist.
If you Google various breeds of dogs and ask puppies for sale, you
will see any manner of large scale breeders who are selling direct
through the Internet to the public. These people are not covered
under the standards of the law.
So the folks who are selling to pet stores are covered and are
supposed to comply with some of the most basic provisions of care,
feeding, water, shelter, and the like, yet you have now a growing
and large class of individuals who are selling direct through the
Internet who are not covered. So it is unfair to the existing regulated community. It is unfair to consumers, who have no safeguards but the conscience of some of those people, and some of
them, we have seen time and time again do not have much conscience in this regard in terms of animal welfare and finally in

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terms of the animals welfare itself, we believe that this public policy is well justified on that basis alone.
And I will say that this is not just a theoretical concern about
the Internet. It is not an anticipatory concern in the sense that we
think this may be a problem. This is a problem here and now. And
my colleague at the Doris Day Animal League I know is going to
show some imagery and go into some details, but in our written
testimony, Mr. Chairman, we have a litany of cases of people selling animals through the Internet, one just a little more than a
week ago on October 28; 151 dachshunds and springer spaniels and
one cat were found, many described as skin and bones at the home
of a retail dealer in Vero Beach, Florida.
In 2004 in Macomb, Missouri, a case involving an Internet dealer, 147 live dogs and four dead dogs, all with severely matted fur
were found in dilapidated wire cages covered in feces, many with
eye ailments, hair loss, deafness, blindness and tumors; a litany of
these cases which more than justify this change in the law to cover
people who are escaping oversight when the Congress has essentially said in its past lawmaking that if you are dealing at this
scale in terms of sales, you should be covered.
And in terms of the cruelty statutes at the State level, we work
very hard, Mr. Chairman, on this issue, and now, 42 States have
felony level penalties for certain acts of cruelty. But we do not want
it to progress to a state where animals are in a terrible condition
before we act. The very purpose of the Animal Welfare Act is to try
to maintain standards so we do not degenerate to a circumstance
where you have to have an intervention and a cruelty case, and I
think that the cruelty laws are critical but in no way address what
we are talking about here.
And I would also mention that States and private agencies like
the Humane Society of the United States, local humane societies,
bear the cost when these cases degenerate to this level. This is not
a puppy mill case, per se, but we are now in Arkansas dealing with
500 dogs in a hoarder case, and it is going to cost us hundreds of
thousands of dollars to deal with these 500 animals, hundreds of
thousands; dealt with by our society, our members giving money to
us to help animals that did not anticipate this terrible case of cruelty.
So if you have a regulatory program that is keeping tabs on people, that is holding them to standards, you prevent these sorts of
cataclysmic circumstances from occurring.
I will also just mention in closing, Mr. Chairman, that in your
legislation, you are not adding welfare standards. You are simply
logically applying the existing standards to people who should be
covered and who the Congress frankly would have covered if they
had known about the advent of the Internet when these provisions
were originally enacted. Concerns about rescue, breed rescue
groups being covered are really a tremendous stretch on the part
of critics of the legislation. They would not be covered. But we
would support clarifying language to make sure that these people
are assured it is not our intent; we know in discussing with your
staff these matters that it is not their intent nor your intent to
cover them.

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In a broad sense, let me just thank you again for your leadership
on this issue. Animals really live at our mercy. They require our
merciful actions and our kind actions in order to get through each
day and each week and each month, because we domesticated
them. We have created a dependency, and we have a responsibility
to care for them and to protect them, and the Federal Government
has an important role, and that role should not be shirked, and we
appreciate your stepping up.
[The prepared statement of Mr. Pacelle can be found in the appendix on page 110.]
Senator SANTORUM. Thank you, Mr. Pacelle. We appreciate it.
Ms. AMUNDSON.
STATEMENT OF SARA AMUNDSON, LEGISLATIVE DIRECTOR,
DORIS DAY ANIMAL LEAGUE

Ms. AMUNDSON. Thank you very much, Mr. Chairman. It is truly

my pleasure to be here today in support of PAWS. We are greatly
appreciative of your incessant efforts to not only ensure that there
is appropriate protection for animals under the Animal Welfare Act
but also to ensure that USDA has the resources necessary to implement those needs.
I would also like to thank your colleague, Senator Durbin, for his
leadership role in this area, and I must note that the staff members have been particularly helpful in ensuring that this broad coalition actually comes together today in support of your bill.
Mr. Pacelle spoke to age of the Animal Welfare Act, and specifically the amendments in 1970 and 1976 went to the heart of what
it is we are speaking about today. Those amendments were there
to ensure that breeders who were selling through brokers to pet
stores were actually licensed, regulated, and inspected under the
Animal Welfare Act. And let us be direct about it: it made perfect
sense at that time that those were the targeted large, commercial
breeders who were actually coming under the auspices of the Animal Welfare Act.
Unfortunately, times have changed. Times have changed because
what we are seeing is those individuals who would like to purchase
a puppy are finding it more and more difficult to actually go to a
breeders property and take a look at the conditions the puppy is
kept in to ensure those animals are raised with some minimum
standards of care. That is the thrust of the retail pet store exemption and so the need for PAWS.
In 1989, the Doris Day Animal League was introduced to this
issue by a gentleman in Pennsylvania who purchased a dog out of
the back of a trade magazine. Unfortunately, the dog was purchased from a breeder in the State of Oklahoma, was transported
on a commercial airliner in the cargo hold, and by the time the dog
reached the consumer in the State of Pennsylvania, it was so ill
that in effect, it died shortly thereafter.
USDA refused to investigate the situation, because, of course,
this was a retail sales issue. And from their perspective, the Animal Welfare Act did not to regulate those individuals.
Times have changed. Today, we can access any search engine on
the Internet, simply type in a few words, and immediately, we have
access to just reams of information. In fact, just yesterday, I typed

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in Maltese puppies for sale into the Google search engine, and
here is what we are looking at: just a handful of the Websites that
are available for selling these puppies online. I wound up with
500,000 hits with that terminology alone.
And unfortunately, as consumers become more and more comfortable with actually purchasing items over the Internet, it has
grown from purchasing televisions to living, breathing puppies. In
a recent article we noted in The New York Times, the American
Pet Product Manufacturers Association stated that 200,000 American households purchased puppies online just last year, and obviously, this is a money making venture, because these puppies are
selling for between $500 and $5,000.
For the past several years, the Doris Day Animal League has
been tracking these direct sales cruelty and neglect cases, and Mr.
Pacelle certainly alluded to the cost to society and the animals in
these cases. You will see a couple of posters here that demonstrate
some of what we have seen. In early 2004, 230 dogs were seized
from a breeder in Tennessee. This breeder was selling directly to
the public, so of course, fell through the cracks and was not licensed, regulated, or inspected.
It is estimated that the county spent $100,000 on ensuring that
the seizure took place, the animals were provided appropriate veterinary care, and then, the resolution of the case was reached, and
those animals were adopted out in cases where they could be.
A vet testified at that trial that some of the female dogs could
barely stand, had large tumors; three of them were completely
blind and over the age of 13 years, and yet, those females were still
being bred. If this dealer had been under the jurisdiction of the
Animal Welfare Act, most of those issues would have been egregious violations of the Act. Instead, as Mr. Pacelle said, it fell to
the States and the locality to actually prosecute the breeder. The
other photo there depicts conditions in a particularly egregious case
in the State of Kansas.
Some breeders are using this loophole in the Act to avoid regulation altogether, including one in Michigan, who had her license revoked by USDA in 1992 because she was selling through pet stores.
Now, she is selling direct to the public, and there is a second case
of a number of cruelty charges that have been filed against her. I
think it is important to note that most of these cruelty or neglect
cases are demonstrating seizures of 100 to 200 to 450 dogs and
puppies. These are clearly large-scale, commercial breeders.
Chairman Santorum, just a cautionary note: while we are generally appreciative of the ability that we have all had to rack
through some extremely difficult language and reach the point that
we are at today, and we certainly recognize that USDA has limited
resources, I think it is important to note that there is no other area
of the Animal Welfare Act that currently exists where there is a
third party certification program for actually inspecting kennels.
And in fact, USDA, under the Horse Protection Act, has done an
analysis of what has transpired with that program and certification
for third-party inspections, and it clearly shows that USDA inspectors are citing far more violations under the Horse Protection Act
than those independent third party inspectors.

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We strongly support the language and the threshold in this bill
and certainly see that USDA has been afforded some wonderful additional tools for the cases that they are looking at, and we would
like to see that the language remain the same in those areas.
It has been a pleasure to work with you, and we are looking forward to passing $. 1139, the Pet Animal Welfare Statute. Thank
you very much.
[The prepared statement of Ms. Amundson can be found in the
appendix on page 29.]
Senator SANTORUM. Thank you, Ms. Amundson.
Ms. WORLEY.
STATEMENT OF NORMA WORLEY, DIRECTOR, ANIMAL
WELFARE PROGRAM, MAINE DEPARTMENT OF AGRICULTURE

Ms. WORLEY. Thank you, Senator.

Senator SANTORUM. Thank you.
Ms. WORLEY. It is a pleasure to be here today in support of this
legislation. As you mentioned earlier, I am the director of the Animal Welfare Program from the great State of Maine, and I am definitely speaking in support of this legislation.
I have been in my current position for two and a half years, but
prior to retiring to Maine in 2001, I spent 21 years as an animal
cruelty investigator in Southern California. During my tenure both
in Maine and California, I have investigated hundreds if not thousands of animal cruelty cases, including many dealing with breeding kennels.
As you are aware, animal welfare issues, in addition to being difficult, are usually emotionally charged. It can be extremely controversial. It is characterized by complaints from the public demanding that the animals they believe are being abused or neglected be removed immediately, regardless of what the law allows
us to do or even the rights of the owner. The media may also compromise these investigations because, as the editors put it, everyone likes a good animal story. All this eventually results in lengthy
debates in both State and Federal legislatures analyzing and reanalyzing if our animal cruelty laws, if they even exist, are sufficient.
There are thousands of breeding kennels across the country that
do everything in their power to protect their animals and obey the
law. I am sure that you have heard from some of these breeders
regarding this legislation. It is important that these law abiding
kennel owners know that they have nothing to fear from this proposed statute, and there is no slippery slope or hidden agenda. Unfortunately for every one of these lawful and ethical kennel owners,
there are many if not more who see animals simply as a commodity
and a way to make a quick buck.
The PAWS statute before you today identifies and seeks to correct several loopholes in current Federal law that allows no protection for dogs and cats sold directly to the public by large scale
breeders. This legislation will mandate protection be applied for
these animals regardless of what State the breeder lives in.
The State of Maine and its domestic animals are fortunate that
we have some of the strongest laws in the United States, thus protecting them from unscrupulous breeding kennel owners. This is

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not to say that we have no such breeders, because we do. Of the
800-plus animal cruelty complaints that we have received this
year, just alone or alone the State of Maine Animal Welfare Program, we have spent hundreds of hours on three investigations involving a pet shop and two breeding kennels.
The end result was 250-plus dogs removed from these two kennels, and fortunately, these are the lucky ones, as they were adopted into loving, forever homes and have been spayed and neutered
to help stop this cycle of abuse. Unfortunately, the pet store just
moved to another State whose laws are not as effective.
Even with these effective kennel laws, not a week goes by without the Animal Welfare Program receiving a heartbreaking complaint from a new owner who has purchased a pup or kitten than
a less than honest breeder. To even complicate things more, we
now have a new twist in marketing for these dishonest breeders.
As with all new avenues of commerce, the Internet is the latest tool
to sell dogs and cats.
Unfortunately, the Internet can reach out all over the world and
is difficult to track without cooperation of the user. There is nothing more frustrating to us than to receive a complaint from a new
owner that may live 3,000 miles away who is heartbroken over the
pup or kitten they have just received. The usual scenario is these
complainants are surfing the Net, looking for a particular breed
and fall in love with a picture of what they think is their ideal pet.
Some are looking for show caliber dogs; some just like the particular breed and want a pet, and then, there is the smaller minority who are even seeking to start their own breeding kennel.
But going back to the dilemma of the new owner, usually, the
story entails how they purchased this dog over the Internet and are
eagerly awaiting the arrival of the new addition to their family.
However, in most cases, it is anything but a happy event when the
animal arrives. These young pups, sometimes as young as five and
six weeks old, are shipped to the new owner by air in a small crate
held in the cargo area of the plane for trips that can be up to 12
to 15 hours in length.
Upon arrival, they are usually sick. Some may have genetic disorders from poor breeding or are just a horrible example of the
breed. The new owner tries to contact the breeder by email or letter, only to be told, if they get an answer at all, their choice is to
either return the animal to the breeder, which means reshipping
back across the United States to be treated by the breeders veterinarian or basically tough luck, no compensation.
The breeder usually has in their contract that includes no refunds for the purchase price or any compensation for veterinarian
bills that the new owner may acquire. At this point, the new owner
is totally confused, angry, frustrated, but in most cases now has
fallen in love with this poor creature, which is what the unscrupulous dealer hoped would happen.
Now, the owner is faced with the horrendous choice of spending
perhaps thousands of dollars at their vet with the hope that the
dog recovers or to return this poor critter to an uncaring breeder
and an unknown fate. As you would suspect, most decide to keep
the animal, even though it is not what they wanted, is not healthy,

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and they may be saddled with outstanding bills for the rest of the
animals life.
The positive side is these animals are the lucky ones, as they will
spend their lives in forever homes. Unfortunately, others will be
sent back, where they will be nursed back to an appearance of good
health, only to be sold again in an attempt to recoup the dealers
losses or immediately euthanized.
So who is the real victim in these cases? Many will say it is the
purchaser. They were taken advantage of. Others will scoff and say
buyer beware; they got what they deserved for not doing the research. Others will say this is simply a civil matter, and this is
what the courts are for. But keep in mind that courts are charged
with settling disputes based on paper trails and not live animals.
I come before you today to say the real victims in these cases are
the puppies and kittens who are taken too young from their mothers; that are not socialized; many times are ill or genetically inferior; and then shipped in cargo holds of airplanes, sometimes enduring trips in length; and now are unwanted. It is beyond my
realm of understanding how anyone could stand by and allow this
to happen.
The victims of these horrendous acts must be protected the same
as domestic animals who are sold to commercial facilities. The closing of these loopholes must be addressed now in order to protect
the voiceless victims in States where they have little or no protection. Again, I thank you for this bill, and I hope the Members of
the committee will vote in support of it.
[The prepared statement of Ms. Worley can be found in the appendix on page 123.]
Senator SANTORUM. Thank you, Ms. Worley. Appreciate it.
I just want to review a few things that have been brought up,
again, by those who have expressed opposition to 1139. First, just
reading some of the newspaper ads from todays paper, it says that
one claims is PAWS would dramatically change the Animal Welfare Act. Does the PAWS legislation change the Animal Welfare
Act other than who the Animal Welfare Act covers?
Mr. PACELLE. It really does not meaningfully change the Act except to make it more fairly applied to individuals who are
sidestepping the regulatory scheme that exists and that many people are operating under just fine. You know, it is not as if
Senator SANTORUM. So there are no new requirements under the
Act as far as animal welfare kinds of provisions.
Mr. PACELLE. No, there are no breeding restrictions. There is no
socialization requirement. There are none of the things that have
been long discussed, but they are not in this legislation.
Senator SANTORUM. Some of you have commented on, and last
panel did, about the changes in the industry. One of the claims
here is that less than half of a percent of all dogs who are acquired
via the Internet or the like. Do you have any numbers or any sense
of, number one, where we are with respect to that and if there is
any trend with that regard as far as Internet sales and sales of
dogs from overseas?
Ms. AMUNDSON. Well, Chairman Santorum, I would be hard
pressed to come up with some sort of final number. However, I will
say that a major trade association, which clearly tracks trends with

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pets has stated just last year 200,000 puppies were purchased over
the Internet. I do think it is important to note that while the Internet is perhaps the most available vehicle for these direct sales,
clearly, it is taking place through ads in trade magazines, local
newspapers, and a variety of other mechanisms, too.
Mr. PACELLE. I would say, Mr. Chairman, that I would love to
see some documentation for that figure. It sounds made up, and it
sounds like it is just a convenient number thrown out there to minimize the value and importance of the legislation. It is a growing
industry. You know, we, as Sara indicated, Google these sites; they
would not exist in the number that they are but for the economic
activity.
Senator SANTORUM. Another comment here is that the PAWS
legislation would Federalize the breeding of home-raised pets. Do
you intend to Federalize the breeding of pets, people who have, like
me, who have a dog who had a litter? Do you want to Federalize
folks who have a dog that has a littler of puppies?
Ms. AMUNDSON. Mr. Chairman, I simply cannot fathom how that
could be accomplished. For obvious reasons, the Animal Welfare
Act is an interstate commerce vehicle, which is why it is the Federal Animal Welfare Act. And certainly, in any written information
that the Doris Day Animal League has provided over the years we
have looked at this issue, we have never supported the concept of
having USDA inspectors in the living rooms of individuals who
may breed an occasional litter. In fact, it flies in the face of Congressional intent under the Animal Welfare Act, which clearly
states that this Act is geared toward commercial ventures and not
to occasional breeding of companion animals.
Mr. PACELLE. I think that, you know, your legislation clarifies it
more than existing law does, that these people would not be covered?
Senator SANTORUM. Could you explain that, why it actually takes
a step in the direction of clarification?
Mr. PACELLE. It does, because you have essentially set a new
standard, a higher threshold, six litters per year, 25 dogs, for sale
purposes in interstate commerce in order to trigger the enforcement activity of the USDA.
Senator SANTORUM. So if you are a hobby breeder that has three
females, and you breed them once a year, you are not going to be
connected with this.
Mr. PACELLE. You are not covered, and AKC, which is the main
industry group, the one that has been around for 100 years, has
said that the vast, vast majority, 96 percent plus, of its people do
not come under the provisions of the Animal Welfare Act now and
that we would not be adding new ones at thisif this legislation
were approved. The law now is a different standard, a lower standard, so I think people should feel better about your legislation.
Senator SANTORUM. Another question was raised about sportsmen and whether they would be treated differently under this act
than prior acts, than the current Act, I should say.
Ms. AMUNDSON. I would certainly have to concur with the response that was provided with the first panel. And again, I will remind individuals in this room that hunting, breeding security dogs
are already covered under the definition of dealer in the Animal

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Welfare Act. This does not create a new sort of mechanism for ensuring that those individuals are regulated.
Ms. WORLEY. I think it is important to bring up that the State
of Maine is very much a sportsmens, hunting State. I did have
some conversations with a couple of sportsmens group who had expressed, you know, interest that this was new legislation that was
going to affect them. But when I reminded them that in the State
of Maine that if you sell more than 16 puppies, you have to be licensed, and basically, they said oh. So they understand, too, that
some States are more stringent, and this will not affect them. But
at that point, they said okay, we can support it.
Mr. PACELLE. And let us point out that, you know, we are not
talking about coming into your home and ripping apart your drawers and looking under your bed. We are talking about basic animal
welfare standards. No one should be afraid if they are caring for
their animals. If their animals are fed and watered, and they have
shelter, there is no problem. This is just basic, you know, the Government is not coming in and pulling apart peoples homes here.
Ms. WORLEY. I would just like to add that having been an investigator animal cruelty for over 25 years and now in Maine that I
do not care what goes on in the living room, but if they are breeding dogs, I do, and I would like to get into their kennels. That is
all I am interested in.
Senator SANTORUM. Mr. Pacelle, you mentioned the issue of animal rescue. That seems to be another constant I would say misinterpretation that somehow or another, that this bill will adversely affect animal rescue organizations. Can you comment on
that directly?
Mr. PACELLE. I find that a very, you know, fanciful argument.
These people are not engaged in commercial sale of animals for
profit. These are rescue groups who are providing assistance to animals in need, and they are not engaging in commercial transactions. They are not covered under the existing law now. They are
not selling large numbers of animals. And I think most importantly, they are not breeding the animals. I mean, this is a breeding trigger in many respects, and the breed rescue groups are not
engaging in large-scale breeding of animals.
Senator SANTORUM. So it is not your intent that the PAWS cover
these organizations.
Mr. PACELLE. No, and, as I said, you know, if you want to clarify
the languagewe think that as exists, it is fine, but if, you know,
you and some of the other backers of the legislation like AKC want
to see this tailored to really underscore that, we would not object.
Ms. AMUNDSON. Mr. Chairman, if I may, I would say it would be
defeatist on our part to in any way, shape, or form have this bill
construed as covering rescue organizations or rescue individuals.
For obvious reasons, coming from the animal welfare community,
these are the very individuals who are providing a significant service in these cruelty cases where you have got these large seizures
of dogs.
So whether we need to work toward a savings clause or something along those lines that will provide some further demarcation,
I would say there is nothing in the current language that should
be construed as encompassing rescue groups.

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Senator SANTORUM. Thank you.
We have another vote scheduled here in five minutes, so I am
going to thank you all very much for your testimony. I appreciate,
again, all of you on both panels for the cooperation, and as I said
at the very beginning, this is a work in progress. We hope to have
a discussion draft with amendments that have been talked about
in the last two panels available to the public in the next couple of
weeks, and we will use that as a further point of discussion to try
to get, as I said before, a broad consensus to move something forward to the benefit of pets and pet owners.
Thank you very much. We are adjourned.
[Whereupon, at 4:09 p.m., the subcommittee was adjourned.]

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APPENDIX
NOVEMBER 8, 2005

(25)

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