An external review into a Stormont department operation to shoot 51 cows in Co Tyrone has found that officials acted lawfully but gave "insufficient consideration" to the impact of dead animals being left in public sight in open fields.
The review into the Department of Agriculture, Environment and Rural Affairs (Daera) operation in Fivemiletown in June was ordered by Agriculture Minister Andrew Muir, who has said he will implement all its recommendations.
Operation details and context
Daera's Humane Slaughter Team carried out the cull of the cattle on land on June 29 and 30 following a court order which resulted in a lifetime disqualification of the keeper and a deprivation order.
Concerns raised by some political representatives and farmers about the public nature of the incident led Mr Muir to order the external review. The minister faced calls to resign from the Ulster Farmers' Union and was also the subject of a failed motion of no-confidence brought by the DUP.
Review findings
The review, led by former Irish chief veterinary officer Dr Martin Blake, said there was a "clear difference between the technical competence and the administrative governance of the operation".
It said that from an animal welfare and veterinary science standpoint, culling of livestock at pasture using "free bullets was an appropriate method".
"This avoided the additional fear, panic, and distress that forced yard-gathering and transport would have inflicted upon cattle unaccustomed to such handling," the review said.
"While the field operation was delivered in accordance with recognised technical protocols by trained marksmen, the subsequent tracking and accounting of livestock across sites identified a significant operational gap in site clearance protocols."
Human and community impact
The review said there had been "visual and emotional upset felt by individuals relating to the event".
"Witnessing the sight of animal carcases left exposed in open fields and hearing about farm animals being culled instinctively triggers a sense of disbelief, sadness, and public concern," it said.
"The operation's planning gave insufficient consideration to this human and community impact."
The review found a "post-conviction procedural gap" characterised by a lack of specific guidelines for implementing deprivation orders and divided management oversight of the Humane Slaughter Team (HST).
"Furthermore, a disconnect in understanding led to carcasses being left in open fields, contributing to much public disquiet," it added.
Operational complications and recommendations
The report also said that a "well-intentioned" decision on June 29 to suspend the cull to attempt to facilitate a private sale of some of the cows "introduced unintended operational complications".
"The decision introduced further operational and reputational risks which materialised later that evening when efforts by third parties to corral the animals failed in public view and animals escaped onto the roadway," it said.
The review added: "The department's traditional, reactive communication protocol did not anticipate a fast-moving conventional and digital media response.
"By maintaining the traditional privacy-first messaging approach to protect individual privacy, the department left a space for a public narrative to form in the absence of official factual information."
The review has made 10 recommendations, including changes to the process for determining the best approach to enforcing court orders in future, how operations are planned and signed off, and the way requests to dispose of livestock are handled. It has also recommended changes for planning communications for operations that may be visible to the public and cause concern.
Mr Muir said the events at Fivemiletown came about following a court order after "one of the most shocking and sustained cases of animal cruelty that veterinary officials in the Department have ever had to deal with".
He said: "Whilst the review finds that the operation was lawful, appropriate and sadly necessary from an animal welfare perspective, it's clear that operational shortcomings existed and planning gave insufficient consideration to the human and community impact.
"As minister I did not authorise or direct the operation.
"When I then saw the distressing photos and videos of animal carcasses and learned of the range of allegations that were circulating, I shared the genuine concerns expressed."
He added: "The report's 10 recommendations are accepted in full with regular reporting and independent oversight put in place to ensure improvements are driven and sustained at pace."
