Second Report - Pet welfare and abuse

The government's response

What the committee recommended 28

1. 1
   Withdrawal of Kept Animals Bill stalled welfare progress, PMB reliance is risky strategy. Conclusion · paragraph 7
2. 2
   Mandate DEFRA to enact all provisions from the Animal Welfare (Kept Animals) Bill. Recommendation · paragraph 8
3. 3
   Insufficient traceability of unlicensed dog breeders enables widespread low welfare practices. Conclusion · paragraph 28
4. 4
   Introduce lower dog breeding litter threshold and publicly available licensed seller list. Conclusion · paragraph 29
5. 5
   Publish clearer guidance for local authorities on prohibited dog breeding under LAIA regulations. Recommendation · paragraph 30

See all 28 recommendations and conclusions

Sources

• Second Report - Pet welfare and abuse ↗The committee's report, HC 161, parliament.uk
• First Special Report - Pet welfare and abuse: Government response ↗The government's response, 20 December 2024, parliament.uk

Recommendations and conclusions 28

1. 1
   Withdrawal of Kept Animals Bill stalled welfare progress, PMB reliance is risky strategy. Conclusion · paragraph 7 · addressed to Department for Environment Food and Rural Affairs Conclusion (the committee's words)

   The Government’s withdrawal of the Animal Welfare (Kept Animals) Bill introduced in 2021, has stalled progress on key animal welfare issues. These delays have allowed the continuation of poor animal welfare practices. The then Minister for Biosecurity, Marine and Rural Affairs assured us that the Department was “reasonably confident” it will be able to get all of its manifesto commitments into law. We welcome the recent introduction of Bills on welfare measures including livestock worrying; puppy imports; the importation of dogs, cats and ferrets; and pet abduction. We further note that the Government was relying heavily on Members who were successful in the Private Members bill ballot being willing to take on its handout bills to deliver its manifesto promises, rather than committing to bringing forward the legislation itself. While on this occasion it may prove successful, it was nonetheless a risky strategy.
2. 2
   Mandate DEFRA to enact all provisions from the Animal Welfare (Kept Animals) Bill. Recommendation · paragraph 8 · addressed to Department for Environment Food and Rural Affairs Recommendation (the committee's words)

   In order to implement much-needed robust animal welfare safeguards, the Department must ensure that every provision from the Animal Welfare (Kept Animals) Bill is brought into force during the current Parliament.
3. 3
   Insufficient traceability of unlicensed dog breeders enables widespread low welfare practices. Conclusion · paragraph 28 · addressed to Department for Environment Food and Rural Affairs Conclusion (the committee's words)

   It is estimated that less than half of puppies entering the market are from licensed breeders. Many breeders will be unlicensed because they fall below the three-litter threshold specified under LAIA regulations, effectively making them untraceable. The lack of traceability enables unscrupulous, low welfare breeding practices to flourish under the radar. More stringent safeguards are needed to ensure robust protections for the welfare of dogs and their puppies.
4. 4
   Introduce lower dog breeding litter threshold and publicly available licensed seller list. Conclusion · paragraph 29 · addressed to Department for Environment Food and Rural Affairs Conclusion (the committee's words)

   The litter licensing threshold for dog breeding should be reduced from three to two per 12-month period. A list of all licensed sellers should be publicly available, which would allow for verification and provide assurance to buyers. Care should be taken to ensure that future legislative changes to the breeding framework do not discourage groups such as families from breeding from a much-loved pet, or hinder farmers and gamekeepers from being able to produce the next generations of working dogs.
5. 5
   Publish clearer guidance for local authorities on prohibited dog breeding under LAIA regulations. Recommendation · paragraph 30 · addressed to Department for Environment Food and Rural Affairs Recommendation (the committee's words)

   The Government should produce clearer guidance for local authority enforcers regarding Section six of LAIA regulations, which prohibit the breeding of dogs where there are reasonable expectations that their genetics or health would lead to welfare problems. This guidance should include a list of breeds for which it is unlikely that a licence would be issued, and exceptional cases in which they might.
6. 6
   Extend LAIA legislative safeguards and regulations to cover cat breeding activities. Conclusion · paragraph 31 · addressed to Department for Environment Food and Rural Affairs Conclusion (the committee's words)

   There are currently few legal safeguards to protect cats and their kittens, as cat breeding is not a licensable activity. Cat breeding should be awarded the same legislative safeguards and regulations as dog breeding under LAIA regulations.
7. 7
   Review puppy yoga welfare concerns with sector organisations for stronger regulations or ban. Conclusion · paragraph 32 · addressed to Department for Environment Food and Rural Affairs Conclusion (the committee's words)

   There are significant welfare concerns over the ‘puppy yoga’ trend, which involves the use of underage and potentially unvaccinated puppies in a setting that may be highly detrimental to their health and wellbeing. The Department should work with sector organisations to review how these welfare concerns could be most effectively addressed—for example through introducing stronger regulations, or introducing an outright ban of this practice.
8. 8
   Rapid rise in unregulated Canine Fertility Clinics raises significant welfare and enforcement concerns. Conclusion · paragraph 43 · addressed to Department for Environment Food and Rural Affairs Conclusion (the committee's words)

   The rise in Canine Fertility Clinics, from 37 in 2020 to over 400 in 2023, is of significant concern. Many are likely being operated without veterinary involvement, with invasive procedures classed as acts of veterinary surgery being performed unlawfully by lay-persons, to the detriment of the animals involved. Unscrupulous Canine Fertility Clinics have benefitted from diffuse enforcement arrangements, lack of clarity over which statutory body is responsible for enforcement under the Veterinary Surgeons Act (1966), and uncertainty as to where concerns around suspected illegal activity should be reported.
9. 9
   Introduce new Veterinary Surgeons Act to update outdated 1966 legislation. Recommendation · addressed to Department for Environment Food and Rural Affairs Recommendation (the committee's words)

   The Government should introduce a new Veterinary Surgeons Act to update that of
10. 10
    Increase fines for illegal veterinary surgery and issue guidance on reporting concerns. Recommendation · paragraph 45 · addressed to Department for Environment Food and Rural Affairs Recommendation (the committee's words)

    The current £100 fine on summary conviction for performing acts of veterinary surgery illegally is a derisory deterrent and is well below the cost of most, if not all, veterinary procedures. The Government should bring the fine for individuals illegally performing acts of veterinary surgery in line with the financial penalties under The Animals (Penalty Notices) Act 2022. Alongside this, the Government should issue guidance setting out which enforcement body members of the public and veterinary professionals should report concerns to about suspected illegal veterinary surgery.
11. 11
    Introduce public campaign raising awareness of designer pet welfare issues and harms. Recommendation · paragraph 46 · addressed to Department for Environment Food and Rural Affairs Recommendation (the committee's words)

    The Government should work with the sector to formulate and introduce a public information campaign to raise awareness around welfare issues and harms of so- called ‘designer’ pets, particularly brachycephalic breeds, with the aim of discouraging acquisition of these breeds.
12. 12
    Bring stud dogs under Licensing of Activities Involving Animals regulations for welfare. Conclusion · paragraph 47 · addressed to Department for Environment Food and Rural Affairs Conclusion (the committee's words)

    Stud dogs should be brought within Licensing of Activities Involving Animals regulations. The inclusion of stud dogs would help give traceability and ensure welfare measures apply to male dogs kept for breeding, who otherwise fall outside the scope of the regulations.
13. 13
    Introduce urgent legislation to close loophole allowing importation of mutilated animals. Recommendation · paragraph 60 · addressed to Department for Environment Food and Rural Affairs Recommendation (the committee's words)

    Ear cropping, cosmetic tail docking and cat declawing are ethically abhorrent procedures which are likely to have lasting welfare implications for the animals involved. The Government must give priority to closing the loophole that enables the importation of mutilated animals. This legislation should be introduced as a matter of urgency, and certainly before the end of the current Parliament.
14. 14
    Legislate to restrict possession, sale, and supply of DIY ear cropping kits. Recommendation · paragraph 61 · addressed to Department for Environment Food and Rural Affairs Recommendation (the committee's words)

    It is all too easy to purchase DIY ear cropping kits online. This allows unscrupulous individuals to carry out this act of mutilation. Alongside closing the importation loophole, the Government should legislate to restrict the possession, hosting, sale and supply of DIY ear cropping kits.
15. 15
    Local authority funding and capacity issues hinder animal welfare enforcement, causing euthanasia of seized dogs. Conclusion · paragraph 70 · addressed to Department for Environment Food and Rural Affairs Conclusion (the committee's words)

    The financial situation faced by local authorities is affecting their ability to undertake activities including inspections, kennelling, investigations and enforcement. At the same time, the number of dogs from low welfare or illegal breeding establishments seized via local authority enforcement activities is resulting in capacity issues. Some local authorities struggle to execute warrants as there are insufficient kennel spaces for seized dogs. Sadly, some local authorities are being forced to put dogs to sleep because of lack of capacity and funding.
16. 16
    Local authorities face constraints in consistently enforcing animal welfare legislation due to inadequate resources. Conclusion · paragraph 71 · addressed to Department for Environment Food and Rural Affairs Conclusion (the committee's words)

    Animal welfare legislation must be consistently and robustly enforced if it is to achieve its statutory objectives and act as a deterrent to unscrupulous breeders seeking to circumvent the law. Local authorities play a vital role in the licensing and enforcement activities that protect animal welfare. The ability of local authorities to perform key regulatory activities is constrained by a lack of specialist knowledge and training, and inadequate funding and resourcing. This results in an inconsistent approach nationally, and a postcode lottery in terms of levels of understanding and prioritisation of animal welfare issues. If enforcers are unable to meet their statutory duties under LAIA regulations, perpetrators may become emboldened to flout them.
17. 17
    Establish a central unit of suitably trained animal welfare inspectors for local authority use. Conclusion · paragraph 72 · addressed to Department for Environment Food and Rural Affairs Conclusion (the committee's words)

    A more consistent approach to training and accreditation for animal welfare officers is needed. Existing variations in training and enforcement puts animal welfare at risk. A central unit of suitably trained inspectors should be established which can be utilised by local authorities to improve collaboration and disseminate best practice. Wales has implemented a 5-year animal welfare plan which includes a focus on sharing and developing local authority knowledge and training. The Department should work with counterparts in Welsh Government, and the sector, to assess how similar measures could successfully be embedded in England.
18. 18
    Assess existing kennel space for seized dogs and implement measures to increase capacity. Conclusion · paragraph 73 · addressed to Department for Environment Food and Rural Affairs Conclusion (the committee's words)

    The Department should work with local authorities to assess the adequacy of existing kennel space capacity for seized dogs and implement measures to increase capacity if needed.
19. 19
    Facilitate swift passage of Private Members' bills banning import of young puppies and pregnant dogs. Conclusion · paragraph 84 · addressed to Department for Environment Food and Rural Affairs Conclusion (the committee's words)

    The Animal Welfare (Kept Animals) Bill proposed a series of measures including a ban on the import of young puppies and heavily pregnant dogs. These would significantly enhance protections for pets, and there is considerable sector and public support for bringing them forward. It is welcome that the Government is supporting upcoming Private Members’ bills on areas including the import of dogs, cats and ferrets. We support these bills and encourage the Government to facilitate their passage through both Houses as quickly as possible.
20. 20
    Implement specific measures limiting pet imports and banning puppies, kittens, and late-term pregnant animals. Recommendation · paragraph 85 · addressed to Department for Environment Food and Rural Affairs Recommendation (the committee's words)

    As soon as possible, and certainly by the end of the current Parliament, the Government must ensure the following measures are implemented: • A limit on the number of dogs, cats and ferrets that can be imported by an individual into the UK from five per person to five per vehicle, and three per foot or air passenger. • A ban on the importation of puppies and kittens under six months. • A ban on the importation of pregnant dogs and cats in the last 30% of gestation.
21. 21
    Illegally imported and rehomed stray dogs pose significant biosecurity risks for pets and humans. Recommendation · paragraph 93 · addressed to Department for Environment Food and Rural Affairs Recommendation (the committee's words)

    The movement of illegally imported dogs into the UK, and the importation of stray dogs for rehoming, pose considerable biosecurity risks for both pets and humans. Diseases such as rabies, leishmaniasis and Brucella canis may be imported into the UK from abroad. Of particular concern is the rise in Brucella canis cases in the UK, from 14 in 2020 to 75 in 2022. Imported dogs are also at increased risk of infectious diseases such as parvovirus as a result of low welfare breeding establishments, and cramped and dirty conditions whilst in transit.
22. 22
    Mandate pre-import screening and testing for dogs from countries with endemic diseases. Recommendation · paragraph 94 · addressed to Department for Environment Food and Rural Affairs Recommendation (the committee's words)

    The Government should mandate pre-import screening measures to control and restrict the movement of dogs from countries which have endemic diseases, such as Brucella canis and leishmaniasis, that are not present in the UK. Accordingly, all imported dogs from these countries should be tested for relevant non-endemic diseases.
23. 23
    Introduce mandatory rabies blood tests for imported dogs and extend vaccination waiting period. Recommendation · paragraph 95 · addressed to Department for Environment Food and Rural Affairs Recommendation (the committee's words)

    The Government should introduce a requirement for a rabies blood (titre) test by a veterinary professional before a dog enters the UK. The post-rabies vaccination waiting period should be increased from three to 12 weeks. This would help mitigate the risk of rabies entering the country via imported dogs, as well as ensuring that puppies and kittens cannot be imported under the age of six months. This would have the added advantage of tackling puppy smuggling.
24. 24
    Shorten tapeworm treatment window, mandate cat treatment, and reintroduce compulsory tick treatments for pets. Recommendation · paragraph 96 · addressed to Department for Environment Food and Rural Affairs Recommendation (the committee's words)

    The Government should shorten the tapeworm treatment window from 24–120 hours to 24–48 hours; introduce mandatory tapeworm treatment for imported cats as well as dogs; and reintroduce compulsory tick treatments for all non-commercial movements of cats and dogs.
25. 25
    Concerns exist regarding carriers' conflict of interest in pet import checks and system robustness. Recommendation · paragraph 111 · addressed to Department for Environment Food and Rural Affairs Recommendation (the committee's words)

    Carriers play a key role in the pet importation and checking process. It is likely that there is a conflict of interest inherent in the requirement for carriers to conduct checks on their customers’ pets. It is not evident that carriers are striking the right balance between speed, checks, profit and identifying non-compliance. We also have strong reservations that checking manifests on an ad hoc basis is an appropriate measure for a rigorous system. We have concerns about the robustness of a pet importation system that is based on 100% documentary checks at ports.
26. 26
    Move responsibility for border pet checks to Government professionals with 24/7 port staffing. Recommendation · paragraph 112 · addressed to Department for Environment Food and Rural Affairs Recommendation (the committee's words)

    Responsibility for border pet checks should be moved from carriers to qualified Government agency professionals. This should include a requirement for permanent 24/7 staffing cover at ports of entry.
27. 27
    Lax border controls facilitate fraudulent equine trade for European slaughterhouses. Recommendation · paragraph 113 · addressed to Department for Environment Food and Rural Affairs Recommendation (the committee's words)

    We welcome the introduction of new legislation to ban the export of live animals, including cattle, sheep and horses, for slaughter and fattening. There is a low risk and high reward element to the equine trade, with unscrupulous individuals taking advantage of lax border controls to move equines on fraudulent passports. Some of these horses will be sold for meat to European slaughterhouses.
28. 28
    Implement enhanced digital equine identification measures to prevent trafficking of horses for slaughter. Recommendation · paragraph 114 · addressed to Department for Environment Food and Rural Affairs Recommendation (the committee's words)

    Alongside the ongoing Animal Welfare (Live Exports) Bill, stronger control measures are needed to prevent the trafficking of horses for slaughter. By the end of the current Parliament, the Government should ensure it has implemented measures to enhance and support digital equine identification. This will help improve traceability.