Independent inquiry into the management of retired racehorses (the Martin Inquiry)

Background

In October 2019 the ABC 7.30 program aired a story about the ‘wastage’ of retired racehorses. The story raised issues about the treatment of horses at a Queensland abattoir. Following this the Queensland Government commissioned an independent inquiry into the management of retired racehorses (the Martin Inquiry). The Martin Inquiry also looked at the regulatory and oversight arrangements for abattoirs and knackeries and the transport of horses to those facilities.

The Martin Inquiry was led by retired District Court Judge Terry Martin SC with the support of equine veterinary surgeon Dr Peter Reid.

The Martin Inquiry made 55 recommendations.

Documents

Queensland Government’s response

The Queensland Government’s response to the independent inquiry fully supported, supported in-part or supported in-principle all 55 recommendations by the inquiry:

the Department of Primary Industries is leading actions to progress 27 recommendations
the Queensland Racing Integrity Commission is leading actions to progress the implementation of 8 recommendations
Racing Queensland is leading actions to progress the implementation of 19 recommendations
one of the recommendations was supported and required no further action.

The government is strengthening the oversight and regulatory arrangements for abattoirs and knackeries and the transport of horses to those facilities. It is also promoting good welfare outcomes for retired racing horses.

Implementation status of recommendations

We are implementing 27 of the 55 Martin Inquiry recommendations.

As of 20 June 2025:

23 recommendations are complete
2 have been superseded
1 is in progress
1 has not yet commenced.

Contact the Queensland Racing Integrity Commission and Racing Queensland for information on recommendations being implemented by these bodies.

Number	Recommendation	Status
2.2.4	DPI takes steps to amend the Racing Integrity Act 2016, if necessary, to expand the purposes for which a standard for a licensing scheme for a code of racing can be made to provide for the licensing of breeders.	Completed
2.2.8	The Queensland Government makes an assessment of the QRIC's resources to ensure that they are adequate to undertake licensing and auditing of breeders.	Completed
2.3.3	DPI takes steps to amend the Racing Integrity Act 2016 to extend the QRIC's animal welfare jurisdiction to a horse retired from racing, but still in the care of a registered or licensed person under the Australian Rules of Racing or Australian Harness Rules of Racing.	Completed
2.3.5	The Queensland Government makes an assessment of the QRIC's resources to ensure that they are adequately to strenuously enforce the substance of the recommendations above.	Completed
3.5	The Queensland Government makes an assessment of QRIC's resources to ensure that they are adequately to strenuously enforce the substance of the recommendations above.	Completed
6.4	DPI takes steps to amend the Racing Integrity Act 2016 to provide that all abattoirs and knackeries in Queensland record and provide regularly to the QRIC the microchip numbers, brandings and vendor details of all horses with racing brandings processed at these facilities.	Completed
6.5	The Queensland Government makes an assessment of QRIC's resources to ensure that they are adequately to strenuously enforce the substance of the recommendations above.	Completed
7.2	Biosecurity Queensland publishes annual data on its website detailing the number of animal welfare complaints and investigations (by type) it manages and the investigation outcomes achieved.	Completed View published animal welfare complaints and investigations data
10.2.1	DPI, under the guidance of an expert panel, urgently develops a compulsory Code of practice for Horses Processed at Slaughtering Establishments (including knackeries) in Queensland, to ensure best practice for the humane treatment of horses from arrival to exsanguination.	Completed Animal Care and Protection (Code of Practice for Horses at Livestock Slaughter Facilities) Amendment Regulation 2023
10.2.2	DPI takes steps to amend the ACPA to provide that establishment management store for at least 30 days the CCTV footage recorded at all critical animal welfare points and make available the recorded footage to Biosecurity Queensland upon request on 48 hours' notice.	Completed
10.2.3	Biosecurity Queensland implements a process for examining the CCTV footage to ensure a prompt and effective response to any suspected or identified breaches of all relevant Codes of practice including any new codes developed as a result of this Inquiry.	Completed
10.2.4	DPI takes steps to amend the ACPA to make the use of an electric prodder on a horse an act of cruelty.	Completed
10.2.5	Biosecurity Queensland ensures all Inspectors appointed under the ACPA be effectively trained: in the content of all relevant Codes of practice including any new codes developed as a result of this Inquiry to recognise breaches under all relevant Codes of practice including any new codes developed as a result of this Inquiry as to their powers and obligations in enforcing all relevant Codes of practice including any new codes developed as a result of this Inquiry.	Completed Training is an ongoing requirement for appointed inspectors.
10.2.6	DPI takes steps to amend the ACPA to permit, without the need for consent, an experienced Biosecurity Queensland Inspector to be present when horses are being unloaded, kept and processed at a slaughter establishment.	Completed
10.2.7	DPI takes steps to amend the ACPA to mandate that establishment management gives Biosecurity Queensland at least 2 days prior written notice of horse arrivals and slaughter.	Completed
10.2.8	The Queensland Government makes an assessment of Biosecurity Queensland's resources to ensure they are adequately resourced to meet these requirements.	Completed
10.3.1	Biosecurity Queensland undertakes an immediate review of procedures and practices at the knackery. Any animal welfare issues identified be addressed.	Completed
10.3.2	Biosecurity Queensland engages with management to undertake an immediate audit of the knackery yards and facilities and address any animal welfare issues.	Completed
10.3.3	The Queensland Government makes an assessment of Biosecurity Queensland's resources to ensure they are adequately resourced to meet these requirements.	Completed
12.1	DPI takes steps to amend the Code of practice for the Transport of Livestock to achieve a more reasonable balance between the welfare of the horses being transported and the interests of persons transporting them. To that end, an expert panel be convened to undertake a review of the Code of practice for the Transport of Livestock and specifically consider: reducing the journey time that a horse can be transported without breaks/rest to no more than 8 hours the frequency of providing water to horses during transport appropriate handling standards for handled/broken-in horses and unhandled horses appropriate vehicle design, especially for handled horses requirements for the humane euthanasia of an animal if it becomes necessary during a journey reducing the journey time requirement for the keeping of records prescribing a minimum body condition score before a horse may be loaded for transport without veterinary advice.	Commenced DPI is working nationally with the Animal Welfare Task Group to review and amend the Australian Standards and Guidelines - Land Livestock Transport (standards and guidelines) to improve requirements for horse transport. Amendments to the standards and guidelines will be adopted in Queensland under the Code of practice for the Transport of Livestock. Completion of this recommendation is subject to finalisation of this national body of work.
12.2	If necessary, DPI takes steps to ensure that any changes to the Code of practice for Transport of Livestock provide for extraterritorial application.	Superseded The national approach to strengthening horse land transport standards will ensure consistency among jurisdictions (refer 12.1).
12.3	The expert panel consider and make recommendations about the types of amenities which need to be available enroute, to enable transporters to meet requirements to unload, feed and water horses at acceptable points of a journey.	Superseded. The national approach to strengthening horse land transport standards has considered these requirements (refer 12.1).
12.4	Biosecurity Queensland develops and implements a compliance program that includes routine and regular monitoring for compliance with the provisions of the new Code of practice for the Transport of Livestock.	Not commenced A new compliance plan is contingent on the completion of recommendation 12.1.
12.5	Biosecurity Queensland conducts a targeted enforcement operation to test compliance with the requirements of the current Code of practice for the Transport of Livestock.	Completed
13.1.1	DPI coordinates the drafting of a memorandum of understanding between it and the federal Department of Agriculture, Fisheries and Forestry to: clarify their respective roles at the export establishment in relation to the welfare of horses being processed for slaughter ensure timely and appropriate responses to any animal welfare breaches.	Completed
13.2.1	The importance of animal welfare be reflected in the structure and staffing in Biosecurity Queensland.	Completed
14.1.1	Biosecurity Queensland immediately engages with Meramist to ensure the prompt implementation of the substance of the recommendations applicable to Meramist, prior to the implementation of regulations (note this excludes recommendations relating to the Racing Integrity Act 2016).	Completed

Last updated: 23 Jun 2025