Date: 25 November 2025 18:55
The Council and the European Parliament reached a provisional deal on the welfare of cats and dogs and on traceability. The agreement sets minimum EU-wide rules for the first time ever. The agreement aims to improve the welfare of cats and dogs that are kept by breeders, selling establishments and shelters, while also improving consumer protection, ensuring fair competition and fighting illegal trade.
Animals must be treated properly and not traded illegally. It’s as simple as that. I am truly proud that we have negotiated an agreement — and even the first of its kind — that sets stricter rules for the trade of dogs and cats, allowing us to address the problems of puppy mills and the illegal trade of animals. We are introducing minimum animal welfare standards, establishing rules for traceability, and harmonising the legislation. It is a major European victory and an important step in the right direction for animal welfare in Europe.
Jacob Jensen, Danish Minister for Food, Agriculture and Fisheries
The new rule is to identify all dogs and cats, including those already owned. However, natural persons [individuals] do not have to comply with the obligations for establishments.
The requirements are intended as minimum standards to harmonise the EU market. If they so wish, member states are allowed to maintain or introduce stricter rules.
Welfare principles
The main welfare principles ensured in the agreement are as follows:
- breeding is regulated, with limits on frequency and a minimum and maximum age
- certain breeding practices are prohibited, such as inbreeding (breeding between parents and offspring, between siblings and half-siblings and between grandparents and grandchildren); the agreement clarifies that inbreeding can nevertheless be used to preserve local breeds with a limited genetic pool
- the breeding of hybrids (the result of crossbreeding with a wild species) is banned
- painful mutilations such as ear cropping, tail docking or the removal of claws are banned, except where such practices are medically indicated
- enough clean and fresh water, sufficient food and adequate housing conditions must be provided
- dogs must have daily access to an outdoor area or must be walked daily; this applies to dogs older than eight weeks
Requirements for operators and establishments
- all cats and dogs must be microchipped and registered in a national database before they are sold or donated; all databases will be interoperable with the databases in other EU countries and will be accessible online
- people taking care of cats or dogs must have a proper understanding of their behaviour and needs
- establishments must ensure visits from veterinarians
- when selling or donating cats or dogs, the person responsible for the animals has to raise awareness about responsible ownership
- operators must not abandon cats or dogs
- female cats and dogs who have had two caesarean sections will not be used for breeding, in order to protect their health and welfare
- cats and dogs with extreme traits should be excluded from breeding, to prevent passing these traits on to future generations if there is a high risk of a detrimental effect on their welfare or on the welfare of their offspring
- cats and dogs with extreme conformational traits or mutilations will be excluded from taking part in competitions, shows or exhibitions
Imports from outside the EU
In line with the Commission’s proposal, imports will be subject to the same or equivalent standards. This will enhance consumer protection and ensure the traceability of cats and dogs.
The cat or dog will have to be registered in an EU database. Dogs and cats imported for the purpose of being placed on the market need to be registered in a national database within five working days. Non‑commercial movements will have to be registered in the EU’s pet travellers’ database by the owner at least five days in advance.
For this purpose, a pet travellers’ database will be created. This will give member states an overview of non-commercial imports into the EU and thereby enable them to detect any suspicious movements.
Next steps
The provisional agreement will be endorsed by both the Council of the European Union and the European Parliament before being formally adopted and entering into force.
Background
EU citizens own over 72 million dogs and 83 million cats, with an annual market value of €1.3 billion. Despite this fact, 74% of Europeans believe that the welfare of companion animals requires stronger protection. Current EU legislation primarily covers animals used for scientific purposes or those transported for commercial reasons, while national regulations vary significantly across Member States.
In response to a growing public demand for better protection, the European Commission introduced a legislative proposal on 7 December 2023 to improve the welfare and traceability of cats and dogs. On 26 June 2024, the Council of the EU reached an agreement on the mandate for negotiations with the European Parliament. This agreement comes as a direct response to a strong call from EU citizens, highlighted in a Eurobarometer survey published in October 2023, which revealed widespread concern over the welfare of companion animals across Europe.
