S 1770119th CongressIn Committee

Racehorse Health and Safety Act of 2025

Introduced: May 14, 2025

Agriculture & Food

Standard Summary

Comprehensive overview in 1-2 paragraphs

The Racehorse Health and Safety Act of 2025 would replace the Horseracing Integrity and Safety Act of 2020 and create a new framework for interstate cooperation among racing states. It authorizes states to form an interstate compact to develop and enforce uniform, breed-specific scientific rules governing medication and racetrack safety, with oversight by a centralized Racehorse Health and Safety Organization (RHSO). The RHSO would be funded by member states, establish science-based rules through breed-specific committees (for Standardbred, Quarter Horse, and Thoroughbred) and a Racetrack Safety Committee, and preempt conflicting state laws where applicable. It also introduces a nationwide database on racehorse health, performance, and injuries, and sets up a structure for enforcement, rulemaking, and potential penalties for violations. A key feature is that wagering signals for covered horseraces could move across state lines only among member states, not non-member states. In short, the bill aims to standardize medication control and racetrack safety across participating states through a scientific, breed-focused, interstate compact, with centralized enforcement and data collection designed to improve horse welfare and racing integrity.

Key Points

1Repeal and replacement of HISA: The act repeals the Horseracing Integrity and Safety Act of 2020 and establishes a new framework via an interstate compact and the RHSO to develop uniform, science-based rules for medication and racetrack safety by breed.
2Interstate compact and oversight: States may join an interstate compact to implement the RHSO framework. Member States consent is layered into state law, and the RHSO has authority to preempt conflicting state laws in areas within its jurisdiction.
3Racehorse Health and Safety Organization (RHSO):
4- A nine-member board governs the RHSO, with a mix of appointments from the top racing-day states and all other member states.
5- The RHSO develops and adopts rules for scientific medication control (section 201/202) and racetrack safety (section 302/303), requires open meetings, public notice, and rules adopted by a two-thirds Board vote.
6- It also maintains a nationwide database on horse health, performance, and injury data, and has authority to issue subpoenas and coordinate enforcement (subject to state agreements).
7Breed-specific, science-based medication rules:
8- Each breed (Standardbred, Quarter Horse, Thoroughbred) has its own Scientific Medication Control Committee (7 members) that develops proposed rules based on physiological and pharmacological considerations specific to that breed.
9- Rules cover permitted/prohibited medications, withdrawal guidelines, 24-hour pre-race medication reviews, testing (including no-notice testing and testing distribution planning), and thresholds tailored to each breed.
10- Rules must be based on generally accepted scientific principles and, where possible, peer-reviewed data; transition provisions allow state rules to apply until RHSO rules become effective.
11Racetrack safety framework:
12- A Racetrack Safety Committee (7 members) drafts safety rules, considers input from racetrack superintendents, and makes recommendations to the Board for adoption.
13- Membership includes industry representatives and a racetrack superintendent; terms and governance mirror the medication committees in structure (open process, conflicts of interest provisions, etc.).
14Enforcement, rule violations, and penalties:
15- The RHSO has enforcement authority—either directly or through state racing commissions—over the rules it adopts.
16- The bill outlines a process for rule violations and disciplinary actions (titles IV and related sections), with coordination between RHSO and state commissions.
17Funding and governance:
18- Initial startup funding is allocated to each member state’s racing commission.
19- Ongoing, breed-specific funding is assessed to member states to cover RHSO operations, including administration of rules, testing, and laboratories. Funds must be kept breed-specific and non-mixed between breeds.
20- Increases in required fees above 5% require a three-fourths majority vote of the RHSO Board.
21- The RHSO may incur debt but cannot take loans from covered persons or equine industry representatives.
22Labs and testing:
23- The RHSO oversees laboratory accreditation, selects an accreditation body, and ensures testing is performed by properly accredited labs, with collaboration with national veterinary labs and public entities as appropriate.
24State roles and preemption:
25- States can elect to enforce RHSO rules within their borders; otherwise, the RHSO enforces the rules through MOUs with state agencies.
26- RHSO rules preempt conflicting state laws or regulations within the RHSO’s scope.
27Wagering and interstate transmission:
28- A host state that is a member may allow interstate transmission of signals for interstate off-track or advance deposit wagering for covered horseraces; non-member host states are prohibited from allowing such interstate transmissions.
29Definitions and scope:
30- The act defines key terms (covered horses, covered horseraces, breed registries, training facilities, workouts, etc.) and ties coverage to Thoroughbreds, Standardbreds, and Quarter Horses, including their first workouts, ongoing eligibility, and racing-related activities, with interstate commerce implications.

Impact Areas

Primary group/area affected- Horses and people directly involved in racing: owners, breeders, trainers, jockeys/drivers, veterinarians, racetrack personnel, and state racing commissions. The rules and enforcement framework will govern how horses are trained, tested, treated, and raced, with breed-specific standards.Secondary group/area affected- Racehorse industry organizations and breed registries (e.g., Jockey Club for Thoroughbreds; United States Trotting Association for Standardbreds; American Quarter Horse Association for Quarter Horses).- racetracks and wagering operators (through potential changes to wagering transmission rules and safety standards), and laboratories performing drug testing.Additional impacts- Horse welfare and safety: Centralized, science-based rules aim to reduce misuse of medications and enhance track safety, potentially affecting medical practices, race scheduling, and injury management.- Federal-state regulatory dynamics: The bill creates a new interstate framework that preempts conflicting state rules in the RHSO domain and changes how enforcement is coordinated across state lines.- Data and transparency: Creation of a nationwide health and safety database could improve epidemiological understanding of horse welfare, but may raise questions about data privacy, sharing, and access.- Economic considerations: Breed-specific funding and fee structures could affect state racing budgets and the financial dynamics of breed associations and racing operations. The prohibition on certain cross-breed funds and the careful budgeting aim to ensure breed-specific investments.

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