As "Samjung The Park", Busan’s only outdoor theme park-style zoo, enters its sixth year of closure in 2025, zoos nationwide are increasingly embroiled in legal disputes, putting animals at risk of neglect. Experts point to a fundamental issue that under the current law, animals are legally classified as mere “property.” “Channel PNU” examined the issues surrounding zoos and the legal system ahead of World Animal Day on October 4th.

According to the Ministry of Environment, as of 2023, there were 127 zoos nationwide, with over 60% being privately operated. Busan currently has six zoos, most of which are small-scale, primarily indoor facilities. The revised Act on the Management of Zoos and Aquariums (December 2022) marked progress by shifting from a registration system requiring only basic facilities to a licensing system demanding safety management plans and professional personnel qualifications. However, a persistent problem remains that animals are effectively left without any protective measures if privately operated facilities face financial difficulties or legal disputes.

■ Six Years in Court, Still No Guarantees for Animals at "Samjung The Park"

Located in Choeup-dong, Jingu, Busan, “Samjung The Park,” opened in 2014 as the successor to Seongjigok Zoo, which operated from 1987 to 2005. At its opening, it positioned itself as a major Busan attraction, claiming the title of the nation’s first “walk-through safari.” However, accumulated losses since its 2014 opening led to its closure in April 2020. The operator, Samjung, requested that the city of Busan purchase the zoo in 2017 based on a purchase agreement signed at the time of opening. The city refused, citing a clause in the contract stipulating that no private rights should be attached to the zoo. Litigation between the two parties began in June 2020. The Supreme Court remanded this dispute on July 18th, 2024, and it has now been ongoing for six years.

Since the closure, the animals have remained within “The Park,” under the management of Samjung. Busan City allocated 160 million won from its reserve fund in May 2025 to cover animal feed costs, but the future of this support is uncertain. The Busan City Parks and Leisure Policy Division stated, “We feel sorry for the animals in the zoo,” adding, “It would be good if the city could provide more support, but we cannot guarantee continued support.” An official explained, “We provided support on a humanitarian basis at Samjung’s request, but it is only scheduled until September,” and clarified, “Providing ongoing support is difficult, and we are also exploring options involving NGOs.”

Animal welfare groups are expressing concern, stating they cannot guarantee the safety of the animals remaining at "Samjung The Park". In fact, immediately after closing, the zoo housed 930 animals across 158 species, but as of 2025, that number has sharply declined to 509 animals across 128 species. This represents a 19% decrease and an approximately 45% drop. The city attributed this decline to natural deaths, but Shim In-Seop, head of the animal welfare group “LIFE,” stated, “Due to austerity measures during the prolonged closure, the number of animals per keeper may have increased, or the quality of feed may have deteriorated.” He continued adding, “It is highly likely the animals were exposed to poor conditions.”

■ From Starved Lions to Neglected Raccoons, Korea’s Zoos Face a Pattern of Crisis

This issue is not limited to “Samjung The Park.” The Bukyeong Zoo in Gimhae and the indoor zoo in Suseong-dong, Daegu, both operated by the same owner, have faced ongoing controversies regarding poor animal welfare and allegations of animal abuse since their openings. Bukyeong Zoo, which opened in 2013, saw its revenue plummet to one-tenth of its usual level during the COVID-19 pandemic, leading to a suspension of operations in mid-August 2023, and it ultimately closed in November of the same year.

The situation was similar at the Daegu Suseong-dong Indoor Zoo, also operated by the same owner. This facility was fined 3 million won by Daegu City in November 2023 for animal abuse. Following this punishment, it submitted a suspension notice and closed for three months. Although it later reopened, renewed allegations of animal abuse surfaced, ultimately leading to/resulting in its closure in October 2024.

The problem persisted even after the closure. Under current law, animals are classified as “private property,” leading to prolonged searches for transfer or sale destinations for both zoos. This process resulted in animals being neglected for periods ranging from six months to nearly a year.

Bukyeong Zoo drew particular public attention in August 2023 when social media exposed a “rib bone lion” emaciated to the point where its bones were clearly visible. The lion suffered severe health issues, including persistent coughing and an inability to eat properly. Additionally, a raccoon’s fur had grown so long that it obstructed its vision, and it emitted a strong odor from prolonged lack of bathing, indicating even basic hygiene was neglected. A representative from a civic group testified, “It was a classic case of neglect, where even basic care was absent.”

This prompted civic groups like the Busan Alliance for Prevention of Cruelty to Animals and Animal Freedom Solidarity to file complaints, leading to full-scale rescue efforts. Kim Ae-Ra, the representative of the Busan Alliance for Prevention of Cruelty to Animals, who rescued the animals from the Bugyeong Zoo, recalled, “The condition of the neglected animals was a complete mess, and the surrounding environment was also poor. The animals weren’t being fed properly, and they were hardly ever receiving medical care.”

■ From Objects to Rights: Demands for Urgent Animal Law Reform

Experts identify the legal status of animals as the core/root cause of these problems. Under current South Korean civil law, animals are defined as “property.” Article 98 of the Civil Code defines property as “tangible objects and controllable natural forces,” which includes animals. Consequently, animals are treated as objects that can be owned, like chairs or desks, and do not hold legal rights. Lee Ji-Eun, an activist with Animal Freedom Solidarity, stated, “As long as animals are defined as property, local governments lack the legal basis to intervene and effectively wash their hands of the matter.”

The current Animal Protection Act also has limitations, as it only allows punishment in cases of extreme abuse. In practice, situations like exposure to sunlight without shade, receiving food only every few days, or having neglected wounds are difficult to punish because they don’t qualify as clear harm. Activist Lee Ji-Eun criticized, “The law only addresses visible harm like clear injury or death, leaving out long-term neglect or poor environmental conditions.”

To improve this situation, experts emphasize the need to introduce a “third legal status for animals.” Countries like Germany, Austria, and Switzerland have already explicitly stated in their civil codes that “animals are not property.” Quebec in Canada and the Czech Republic also recognize animals' independent legal status. South Korea attempted to add the phrase “animals are not property” to its civil code in 2021, but the attempt failed to pass the National Assembly plenary session.

CEO Shim pointed out, “As laws fail to keep pace with societal changes, animals remain bound as property.” He continued adding, “Current laws permit one person to legally manage 50 animals, potentially enabling structural abuse.” He stressed the need for a conceptual shift away from viewing animals solely as objects of protection, toward recognizing them as independent legal subjects.

Reported by Song Min-Soo

Translated by Channel PNU