Changes from adopted text to adopted text

RemovedP10_TA(2025)0135

AddedP10_TA(2026)0115

Welfare of dogs and cats and their traceability

Committee on Agriculture and Rural Development

PE766.982

ChangedAmendments adopted by the European Parliament onlegislative 19resolution Juneof 202528 April 2026 on the proposal for a regulation of the European Parliament and of the Council on the welfare of dogs and cats and their traceability (COM(2023)0769 – C9-0443/2023 – 2023/0447(COD))

(Ordinary legislative procedure: first reading)

RemovedRecital 1: (1) Live animals, including cats and dogs are covered by Annex I to the Treaty on the Functioning of the European Union, form part of the common agricultural policy of the Union and their welfare should be protected. There is a market for these animals in the Union, including substantial cross-border trade. Many Member States are signatories to the European Convention for the Protection of Pet Animals. There is a wide range of evidence of sub-optimal functioning of the internal market for dogs and cats in the Union as well as of illegal trade in these animals within the Union and at import into the Union. Therefore, considering the findings on animals, which recognise their capacity for emotions, pain and social interactions, it is necessary to establish minimum requirements for the welfare of dogs and cats that are bred and kept in establishments, as well as strengthened requirements regarding the traceability of dogs and cats placed on the Union market.

Change 1

AddedThe European Parliament,

RemovedRecital 2: (2) Dogs and cats, with its own unique biological and behavioural needs, are traded and kept as pets in the Union. The absence of Union welfare provisions on breeding, keeping and placing on the market of dogs and cats, as well as divergent national rules where they exist, have sometimes led to those animals being born, bred and sold or adopted at no cost, in circumstances which could have serious detrimental consequences to their welfare. Competition between commercial breeders of dogs and cats in different Member States is not conducted on a level playing field because animal welfare conditions are one of the main elements of the competitiveness of these operators and they differ considerably between Member States. As a consequence, competition is distorted, especially for high standards breeders and keepers, which are unable to monetise their investments into animal welfare when they trade cross border because they are confronted with operators that profit from sub-standard animal welfare conditions to exert competition and drive prices and standards down.

Added– having regard to the Commission proposal to Parliament and the Council (COM(2023)0769),

RemovedRecital 3: (3) Also, consumers are insufficiently protected as they are often confronted, when acquiring a dog or a cat, with the negative consequences of the poor welfare conditions in which the animals have been bred and kept in the establishments, such as health problems, behavioural problems or genetic defects of the dog or cat purchased or acquired. To support informed consumer choices and promote compliance with Union rules, it is essential to inform the public and raise awareness of the difference between responsible and non-compliant or unlawful breeding practices.

Added– having regard to Article 294(2) and Articles 114 and 43(2) of the Treaty on the Functioning of the European Union, pursuant to which the Commission submitted the proposal to Parliament (C90443/2023),

RemovedAmendments 280 and 307

Added– having regard to Article 294(3) of the Treaty on the Functioning of the European Union,

RemovedRecital 3 a (new)

Added– having regard to the opinion of the European Economic and Social Committee of 21 March 2024,

RemovedAmendment: (3a) While several Member States have already introduced positive lists at national level to regulate the private ownership of animals, the absence of a common Union framework of welfare provisions on breeding, keeping and placing on the market of pet animal species other than dogs and cats, as well as divergent national rules, leads to inconsistencies, gaps in enforcement, confusion for consumers and, often, to serious animal welfare consequences for species that are unsuitable to be kept as pets, as well as risks to biodiversity, human health and safety and nature conservation.

Added– having regard to the provisional agreement approved by the committee responsible under Rule 75(4) of its Rules of Procedure and the undertaking given by the Council representative by letter of 10 December 2025 to approve Parliament’s position, in accordance with Article 294(4) of the Treaty on the Functioning of the European Union,

RemovedRecital 3 b (new): (3b) There have been previous calls to establish a science-based Union-wide list of animals that have been assessed as being suitable to be kept as pets, under appropriate welfare conditions, without causing harm to populations in the wild, and therefore to European biodiversity, or to human health and safety. In doing so, it is essential to ensure an assessment of the impact on animals, including their welfare, behaviour, dietary needs, and veterinary care, in order to avoid situations that could cause unnecessary suffering, inappropriate living conditions, or endangerment of species.

Added– having regard to Rule 60 of its Rules of Procedure,

RemovedRecital 4 a (new): (4a) Cooperation between Member States should be enhanced in order to identify illegal breeding establishments, dismantle associated networks, and ensure effective enforcement of applicable rules. Strengthening cross-border collaboration, information exchange and coordinated inspections is essential to address the transnational nature of certain illegal activities and to protect animal welfare and consumer interests across the Union.

Added– having regard to the opinion of the Committee on the Environment, Public Health and Food Safety

RemovedRecital 4 b (new): (4b) The number of companion animals in the Union has increased significantly over recent years, reflecting the strong attachment of Union citizens to the welfare of dogs and cats. In light of developments in animal welfare science, the Union and its Member States should be encouraged to promote a legal approach that reflects not only the status of animals as property, but also the ethical responsibility of humans towards their welfare and protection.

Added– having regard to the report of the Committee on Agriculture and Rural Development (A10-0104/2025),

RemovedRecital 6: (6) Illegal trade of dogs and cats has developed in part due to lack of traceability of these animals to the original litter and to consumers’ enthusiasm for these animals, facilitated by the development of online purchasing. In turn, illegal trade practices are associated with suffering of dogs and cats subject to uncontrolled breeding practices. It is not possible to ensure that operators abide by the same standards of animal welfare, and to ensure uniform conditions of competition in the internal market in relation to the placing on the market of dogs and cats without reliable means to trace the animals to their origin. It is therefore crucial to ensure the traceability of dogs and cats by a system that identifies and registers dogs and cats before their first placing on the Union market as well as each time there is a change of ownership of the animals.

Added1. Adopts its position at first reading hereinafter set out;

RemovedRecital 6 a (new): (6a) This Regulation introduces mandatory registration, reinforced controls on online sales, and enhanced traceability of dogs and cats, with transition periods of up to 10 years in order to allow the relevant authorities to prepare. It further stresses the importance of Union-wide standards for responsible breeding to prevent detrimental health and welfare impacts on dogs and cats. This Regulation addresses these issues by establishing clear welfare requirements and ensuring that breeding practices uphold the highest standards.

Added2. Takes note of the statements by the Commission annexed to this resolution, which will be published in the C series of the Official Journal of the European Union;

RemovedRecital 7: (7) Illegal trade in cats and dogs from outside the EU has been increasing. Current EU rules on the movements of dogs and cats into the EU, such as the provisions of Regulation (EU) No 576/2013 and of the Animal Health Law, do not contain sufficient tools to prevent this illegal trade. This means that additional rules to fight illegal trade in dogs and cats are required. Existing animal health rules require that, both for commercial and non-commercial movement of dogs and cats entering into the Union, the animals must be identified with a microchip. To reinforce these traceability provisions, the owners or persons responsible for dogs and cats entering into the Union should ensure their registration in one of the Member States’ databases at the place of destination. This will provide for greater control on the movements of those animals.

Added3. Calls on the Commission to refer the matter to Parliament again if it replaces, substantially amends or intends to substantially amend its proposal;

RemovedRecital 8: (8) The traceability provisions of this proposal also contribute to the protection of public health via better animal welfare, better animal health, and better controls on the possible transmission of animal diseases (some of which being of zoonotic nature, some of which transmitting to wildlife, this following a One Health approach.

Added4. Instructs its President to forward its position to the Council, the Commission and the national parliaments.

RemovedRecital 8 a (new): (8a) Regulation (EU) 2016/429 of the European Parliament and of the Council regulates transmissible animal diseases for the purpose of avoiding the spread of such diseases in the Union. The health of animals is one of the five domains of animal welfare, and thus addressed in this Regulation. However, this Regulation does not address the diseases listed in Regulation (EU) 2016/429, but rather the state of health of dogs and cats as shaped by non-communicable diseases (for example injuries) or non-listed diseases (for example certain parasites). The rules laid down in this Regulation are therefore complementary to Regulation (EU) 2016/429 and do not duplicate or overlap with the rules laid down in that Regulation.

AddedP10_TC1-COD(2023)0447

RemovedRecital 10: (10) Regulation (EU) 2016/429 requires the identification of dogs and cats with a transponder but only if they are subject to movements between Member States entered into the Union. The identification required by that Regulation is not fully harmonised as it does not include precise standards regarding transponders. Furthermore, that Regulation does not require Member States to keep databases of dogs and cats. Therefore, Member States should be required to establish and maintain databases of dogs and cats placed on the Union market to ensure the traceability of these animals. It is also necessary to ensure the interoperability of these databases. This will facilitate finding information on dogs and cats across the Union, as well as enable competent authorities to carry out official controls to ensure compliance with animal welfare rules.

AddedPosition of the European Parliament adopted at first reading on 28 April 2026 with a view to the adoption of Regulation (EU) 2026/… of the European Parliament and of the Council on the welfare of dogs and cats and their traceability

RemovedRecital 11: (11) The placing on the market of dogs and cats, whether for profit or at no cost, has an impact on the internal market. Therefore, to prevent fraud, traceability of all animals traded in the Union market should be ensured and the keeping of animals in breeding and selling establishments, pet foster homes or animal shelters should be subject to detailed rules. The military, police or customs that breed or keep dogs for their own services’ use are not in such situation as they do not carry out their breeding or keeping activities for the market.

Added(As an agreement was reached between Parliament and Council, Parliament's position corresponds to the final legislative act, Regulation (EU) 2026/1818.)

RemovedRecital 11 a (new): (11a) The occasional supply of puppies and kittens by their owners who keep dogs or cats for personal or familial enjoyment and companionship and without any commercial intent or purpose, does not have a significant impact on the internal market and it is therefore justified to exclude such supply activities from the scope of application of this Regulation.

AddedANNEX TO THE LEGISLATIVE RESOLUTION

RemovedRecital 13: (13) Directive 2010/63/EU of the European Parliament and of the Council4 regulates the keeping, breeding and supply of animals kept for scientific purposes including dogs and cats. Regulation (EU) 2019/6 of the European Parliament and of the Council regulates clinical trials for veterinary medicinal products involving the use of animals, including dogs and cats. Dogs and cats intended or used for scientific purposes as well as dogs and cats used in clinical trials required for the marketing authorisation of veterinary medicinal products should therefore be excluded from the scope of application of this Regulation.

Added‘Statements on Regulation (EU) 2026/1818 of the European Parliament and of the Council of 17 June 2026 on the welfare of dogs and cats and their traceability

RemovedRecital 14: (14) A large number of dogs and cats will be covered by detailed welfare rules for the first time, which will allow them to benefit from better living conditions. However, considering the practical difficulties in certain cases to determine whether dogs and cats are kept as pets or used for agricultural purposes, such as herding, guarding livestock, farm protection, or for placing on the market or supply, this Regulation should exempt pet owners who keep a number of dogs and cats and produce a number of litters below a certain threshold. Otherwise, those pet owners would be subject to the relevant requirements of this Regulation, which would not be proportionate. Stray cats that roam freely and that keep rodent populations in check, have long been part of this rural balance and serve a functional and symbiotic role on agricultural holdings. Rural and remote areas, where access to veterinary services and compliance infrastructure may be limited, as well as the need to avoid imposing a disproportionate burden on farmers and small-scale breeders, should be duly taken into account.

AddedCommission statement on the pet passport

RemovedRecital 17: (17) Moreover, in the Union market different types of operators carrying out different types of activities place dogs and cats on the market. Aside from commercial breeders there are selling establishments where dogs and cats, that are typically born and bred in other establishments, are kept for sale. The protection of these animals may be suboptimal, and there are no common welfare standards that need to be observed in these establishments. Given that selling establishments are commercial operators that place on the market dogs and cats, it is therefore necessary to apply the requirements of this Regulation to these establishments.

AddedThe Commission considers positively the initiative of enabling of digitalising the pet passport established under the EU Animal Health Law. A detailed and comprehensive assessment of the technical and practical implications and modalities of such a digitalisation objective is to be carried out within 2 years, in coordination with Member States, including considering major technical, practical, and infrastructural conditions and the option of using the European Digital Identity Wallet developed further to Regulation (EU) No 910/2014. The Commission will consider adopting delegated acts under the Animal Health Law in order to provide for a digitalisation of the pet passport once these steps are completed.

RemovedRecital 19: (19) Despite the differences in the activities carried out by commercial breeders and selling establishments, on the one hand, and animal shelters, on the other, they all place dogs and cats in the Union market and there is a certain amount of overlap, especially at the level of the demand. When looking for a dog or cat, consumers make choices between buying an animal from a breeder (either directly or through a selling establishment or intermediary), or adopting one from a shelter. The acquisition of dogs or cats directly from pet owners is marginal. One important factor in the choice of a dog or a cat is the possible behavioural or other problems that the animal may exhibit because of having been kept in poor welfare conditions and which may reduce their suitability to be kept as a pet animal, irrespective of whether the animal has been kept in a commercial breeding establishment, in a selling establishment or in a shelter. Moreover, given that trade is also conducted by intermediaries and mostly online, consumers may not be aware before they acquire a dog or a cat of whether the animal originates from a shelter, a breeder or a selling establishment. Providing such information could assist buyers in making informed and responsible choices. There is evidence that the number of animals placed on the Union market by shelters is significant, in particular for cats. There is also evidence that animals are placed on the market from shelters in some Member States to prospective pe…

AddedCommission statement on the positive list of pets

RemovedRecital 19 a (new): (19a) Member States have observed the increasing use of foster homes by operators responsible for unwanted, abandoned, stray, lost or confiscated dogs or cats . Given that the number of dogs and cats kept in foster homes may impact the market of dogs and cats, foster homes should be covered by this Regulation. In such cases, the operators placing the dogs or cats in foster homes should be responsible for ensuring that the requirements of this Regulation are met in those foster homes. This could be achieved inter alia through the establishment of a contractual relationship between the operator and the foster family.

AddedAs announced in the 2022 revision of the EU action plan against wildlife trafficking, the Commission has launched a study on the need for, added value of and feasibility of introducing a “positive list of pets” across the EU. The final report of this study will be made publicly available in early 2026. The Commission will consider whether any follow-up is needed.’

RemovedRecital 20: (20) In addition, given the significant numbers of animals placed on market in the Union by shelters, and the need to ensure the achievement of the objectives of this Regulation regarding traceability and prevention of illegal trade, shelters should also be subject to the requirements of this Regulation concerning identification and registration of dogs and cats, regardless of whether or not their activity can be considered economic in nature. Operators responsible for shelters should be encouraged to take appropriate measures to prevent reproduction of the dogs or cats kept in shelters.

RemovedRecital 23: (23) In order to ensure proper enforcement of this Regulation, it is essential that competent authorities are able to identify the establishments subject to their official controls. It is therefore necessary that operators keeping dogs and cats in establishments notify their activities to the competent authorities and that the competent authorities keep an updated register of these establishments. In order to minimise the administrative burden for operators, competent authorities should be able, for that purpose, to use information or data collected in the register of dogs and cats establishments under Regulation (EU) 2016/429.

RemovedRecital 24: (24) The distress and suffering of dogs and cats during training activities by untrained or poorly educated handlers can have detrimental effects on the behavioural patterns of dogs and cats, with possible risks to human health and safety and the environment. Therefore, well trained and skilled staff are essential for improving the welfare conditions of animals, including when breeding, keeping and handling dogs intended for military, police and customs services. Competencies in animal welfare require knowledge of the basic behavioural patterns and needs of the species concerned. Animal caretakers should have the competencies in animal welfare relevant to their tasks and the animals they handle, in order to avoid inflicting pain, distress and suffering on dogs and cats. Animal caretakers and relevant authorities, including government agencies should regularly update their competences through training programmes promoting training methods such as ‘operant conditioning’, prioritising positive reinforcement, instead of methods based on punishment.

RemovedRecital 25: (25) Given the fact that animal welfare includes the health of animals, veterinarians are in the best position to provide advice to operators with a view to improving the animal welfare situation in establishments. Veterinarians should play an active role in raising awareness on the interrelationship between the health and welfare of those animals. Establishments keeping a number of dogs and cats that exceeds a certain threshold dogs and cats should therefore receive an animal welfare visit from a veterinarian within the first year of application of this Regulation or within the first year of the notification of a new establishment, thereafter the visits from a veterinarian shall take place when appropriate, based on a risk analysis by the competent authorities.

RemovedRecital 25 a (new): (25a) In order to ensure high level of animal welfare veterinarians maintain an appropriate degree of professional independence from the operator, as well as comprehensive education and ongoing training to stay abreast of scientific and professional advances. This training may, as appropriate, also encompass elements related to recognising instances of violence and animal abuse.

RemovedRecital 25 b (new): (25b) Where veterinarians encounter circumstances during their animal health and welfare visits that could seriously affect the welfare of dogs or cats, they are encouraged, where appropriate, to notify the relevant authorities or to consider conducting a follow-up visit to assess the situation.

RemovedRecital 25 c (new): (25c) Ending the life of dogs and cats should preferably be assisted by a veterinarian using methods that minimise pain and distress. In exceptional cases, such as when a hunting or livestock guardian dog is severely injured in a remote location where veterinary help is not accessible, other methods may be used, provided they minimise suffering to the greatest extent possible.

RemovedRecital 26: (26) Certain breeding strategies may lead to welfare problems for dogs and cats. By selecting certain genetic traits for aesthetic or other marketing reasons, undesirable traits from an animal welfare perspective may also be created and passed on to future generations. Therefore, operators should take measures to ensure that their breeding strategies do not lead to such negative consequences for the welfare of the dogs and cats. In particular, breeding strategies motivated by marketing objectives can result in certain types of dogs and cats developing ‘excessive conformational traits’. Since such excessive conformational traits can lead to significant health problems for the dogs and cats concerned, breeders should exclude them from breeding programmes.

RemovedRecital 26 a (new): (26a) Aesthetic shows, exhibitions and competitions of dogs or cats have an impact on the market opportunities and price for selling dogs and cats. Mutilations and certain breeding strategies that result in dogs or cats with excessive conformational traits can be advantageous for breeders competing in aesthetic shows, exhibitions and competitions of dogs or cats. Organising and participating in such events can be driven by factors other than animal welfare, such as aesthetic standards, with the aim of advertising certain breeds and physical characteristics. In order to ensure that breeders prioritise the welfare of the dogs and cats they produce and in particular that dogs and cats do not develop excessive conformational traits and breeders do not perform mutilations to attain unhealthy aesthetic standards, operators of breeding and selling establishments and the organisers of such shows, exhibitions and competitions should not use or include dogs or cats with excessive conformational traits or those which have been mutilated for these shows, exhibitions or competitions.