An independent expert panel has delivered a comprehensive review of Northern Ireland’s dog breeding regulations to the Department of Agriculture, Environment and Rural Affairs (DAERA), recommending significant reforms to close welfare gaps and address the breeding of dogs with extreme physical features. The report, submitted on 8 May 2026, could pave the way for some of the toughest breeding standards in the UK, including potential limits on litter numbers and adult dogs per premises.
The review was conducted by an Expert Advisory Group chaired by Professor Gareth Arnott of Queen’s University Belfast, alongside veterinary surgeon Susan Cunningham and legal advisor Vanessa Barnes. Their findings form a central pillar of Agriculture Minister Andrew Muir’s Animal Welfare Pathway 2025-27, which aims to modernise laws that campaigners say have enabled industrial-scale puppy farming.
Who Conducted the Review
The three-person Expert Advisory Group brought together distinct expertise to scrutinise the current Dog Breeding Establishments Regulations (Northern Ireland) 2013:
- Professor Gareth Arnott (Chair): A biologist from Queen’s University Belfast specialising in animal behaviour and welfare, with research expertise in commercial breeding environments
- Susan Cunningham: A veterinary surgeon with over 35 years’ experience
- Vanessa Barnes: A legal advisor on animal welfare
The group was commissioned in 2025 as part of the Minister’s wider reform programme to assess whether existing regulations remain fit for purpose and to identify gaps affecting the welfare of breeding dogs and their offspring.
Scope of the Review
The panel examined physical and behavioural welfare issues associated with breeding and selling dogs, gathering evidence from stakeholders across Northern Ireland, the UK, Ireland and internationally. Their work specifically investigated:
- Whether current licensing thresholds allow welfare standards to be compromised
- Best practice approaches from other jurisdictions
- The welfare impact of breeding for extreme conformation (such as flat-faced or brachycephalic breeds)
The review comes amid growing concern about the scale of licensed breeding operations. Research by the Naturewatch Foundation published in early 2025 revealed that some Northern Ireland councils currently license premises with hundreds of adult dogs—Fermanagh and Omagh District Council, for example, has issued licences permitting 350, 300 and 250 adult dogs respectively at different establishments. Unlike some other UK regions, Northern Ireland currently imposes no legal cap on the number of adult dogs a breeder may apply to keep.
Ministerial Response
Receiving the report, Minister Andrew Muir indicated that careful consideration is needed before implementation:
“I welcome the report and want to express my appreciation to the Expert Advisory Group. The insights provided will inform my next steps, which I will consider carefully.
“I recognise that addressing the issues identified in the review is a complex undertaking and that many of the recommendations propose significant changes to current practices.
“Detailed consideration is necessary to ensure robust policy proposals can be developed to deliver meaningful improvements to animal welfare.”
Ambitions for Reform
Professor Arnott stressed the group’s ambition for Northern Ireland to become a leader in dog welfare standards, particularly regarding ethical breeding practices:
“It has been a privilege to Chair the Expert Advisory Group tasked with reviewing the dog breeding regulations in Northern Ireland. Together with the other members of the group, Vanessa Barnes and Susan Cunningham, we viewed the task as a timely opportunity to reform the existing regulations, with animal welfare as a central focus.
“Given the role dogs play as family companions, we felt the responsibility of the task and the need to ensure an ethical and sustainable supply of dogs that are equipped to thrive. With that in mind I would like to thank all those that contributed evidence and engaged in meetings with us. This, together with existing published literature has informed our report and recommendations.”
He added that the recommendations would place Northern Ireland at the “forefront of safeguarding animal welfare” and specifically highlighted the need to tackle extreme conformation:
“In the report we outline a series of recommendations that provide a framework that would place Northern Ireland at the forefront of safeguarding animal welfare in relation to dog breeding. The ambition of the group is to see reform that results in Northern Ireland leading the way in standards of dog breeding. This includes a timely opportunity to show leadership in addressing welfare issues associated with breeding for extreme conformation.”
The Scale of the Challenge
The review highlights significant loopholes in the current system. Campaigners from the Ulster Society for the Prevention of Cruelty to Animals (USPCA) note that existing laws allow individuals to breed multiple litters without obtaining a breeding establishment licence, effectively circumventing regulations meant to protect animal welfare.
The report’s publication follows the Minister’s February 2026 announcement that “Lucy’s Law” will be introduced this autumn, banning third-party sales of puppies and kittens. Together, these measures could create a comprehensive new framework for companion animal welfare, though the USPCA continues to call for additional measures including a public register of persons banned from keeping animals and implementation of import restrictions on puppies under six months.
Questions for Consideration
- Will the Minister adopt specific caps on the number of breeding dogs per premises, given that some current licences permit hundreds of adult dogs?
- How will DAERA ensure local councils have sufficient resources to enforce stricter regulations, particularly when unannounced inspections are recommended?
- Will the reforms close the loophole allowing individuals to breed multiple litters without a breeding establishment licence?
- How will Northern Ireland align with the rest of the UK on the Animal Welfare (Import of Dogs, Cats and Ferrets) Bill to prevent under-6-month puppy imports?
- What timeline can be expected for implementing the Expert Advisory Group’s recommendations before the current Assembly mandate ends in 2027?
What Happens Next
The full report is now with the Minister and the Chief Veterinary Officer for detailed consideration. With the Assembly mandate concluding in 2027, officials must determine which recommendations can be delivered through secondary legislation and which require primary legislation that may need to wait for a future government.
Animal welfare organisations will be monitoring closely to ensure the ambition to place Northern Ireland at the “forefront” of dog breeding standards translates into enforceable legal requirements rather than voluntary guidance, particularly regarding the breeding of dogs with extreme conformations that can cause lifelong health problems.