Dog breeding inspectors need clearer guidance on rules protecting dog health and welfare – new report

Local authority inspectors who issue licences to dog breeders need clearer guidance and better support so they can more effectively protect animal welfare, a new report says.

The report, by researchers from Naturewatch Foundation and the University of Exeter, in association with the Legal Advisory Group on Extreme Conformation in Dogs (LAGECDogs) and the UK Centre for Animal Law (A-LAW), finds current licensing provisions may not be being fully utilised and understood because recorded findings of non-compliance are rare.

Dog breeders in England and Scotland who operate above a specified threshold must be licensed by their local authority and comply with licence conditions set out in each nation’s respective version of the Animal Welfare (Licensing of Activities Involving Animals) Regulations (often referred to as “LAIAR”).

The report focuses on the licence condition which exists to prevent harmful breeding decisions that could impact the health and welfare of adult dogs or their puppies. In England, schedule 6, paragraph 6(5) LAIAR requires that no dog be kept for breeding where it can reasonably be expected that breeding from that dog would have a detrimental effect on the health or welfare of the dog or their offspring, taking into account factors such as their genotype, phenotype (conformation or physical features) and general state of health. Scotland introduced an equivalent provision via schedule 6, paragraph 8(5) of its 2021 LAIAR Regulations, which additionally takes behaviour into consideration.

Breeding from adult dogs with a genetic predisposition to disorders such as hip or elbow dysplasia, or with extreme physical features (such as short muzzles, protruding eyes or very wrinkled skin), poses a significant risk that any offspring will also suffer from poor health. Breeding from dogs who are themselves in poor health will compromise their health and welfare, as well as that of their puppies. Additionally, dogs who are fearful or aggressive may raise offspring with similar temperaments who go on to experience compromised welfare as a result of being unsuitable for their likely role as human companions.

This new report examines how local authorities in England and Scotland are assessing compliance with these conditions and responding to potential breaches. It is based on responses to Freedom of Information (FOI) requests submitted in August 2025 to 326 local authorities across both nations.

Researchers found there is variation across both nations in how local authorities interpret and apply existing conditions. The changes they are suggesting would help to ensure regulations are applied consistently and fairly.  The report urges reforms to statutory guidance to help local authority inspectors make a more holistic assessment of compliance – including dog behaviour – by drawing on multiple sources of information about dogs who are kept for breeding by those applying for, or renewing, a dog breeding licence.

In particular, the report argues there should be clearer guidance about the appointment, involvement and role of veterinarians in inspections, and councils should ensure local authorities in England follow current legislation which says vets must attend all initial inspections of a breeder’s premises. Similar rules should be introduced in Scotland.

Encouragingly, some local authorities described relatively comprehensive assessments that draw on multiple approaches.  However, others gave only broad descriptions of how they evaluate compliance. A proportion of responses did not identify any clear method of assessing compliance with the rules.

The data showed that:

• There were approximately 2,390 licensed dog breeders across England and Scotland in the second half of 2025 (2,217 in England and 173 in Scotland).
• In England, local authorities reported 31 instances of non-compliance with schedule 6, paragraph 6(5) between October 2018 and August 2025.
• These cases resulted in 17 licence refusals, six variations, two suspensions, two prosecutions and two convictions, with no reported licence revocations.
• In Scotland, no instances of non-compliance with the equivalent schedule 6, paragraph 8(5) were reported between September 2021 and August 2025.

Where grounds for non-compliance were provided, these most commonly related to inherited or genetic conditions, conformation-related health issues, failure to conduct appropriate health testing, or concerns about dogs’ general health or temperament.

In some cases, local authorities reported simply excluding individual dogs of concern from a licence, rather than treating the issue as non-compliance, potentially limiting the ability to monitor and address welfare issues.

The report is released at a time when dogs with harmful physical features remain popular, despite the large body of evidence showing that extreme conformation poses significant risks to dog welfare.

Dr Helena Howe, from the University of Exeter and Chair of the Legal Advisory Group on Extreme Conformation in Dogs (LAGECDogs), said: “We believe there is a need for clearer statutory guidance directed at both licensing authorities and breeders to help ensure only healthy dogs are kept for breeding. There should be greater emphasis on inspectors making an holistic assessment and a need for improved training and support about the animal welfare aims and application of these licence conditions.”

Natalie Harney, Campaign Manager at Naturewatch Foundation, said: “The findings of this report confirm, as many have long suspected, that legal rules designed to prevent harmful breeding decisions are not being used to their full potential. This evidence can now be used to better support local authorities and licensees, and inform future dog breeding policy development, with the overall aim of improving the health and welfare of dogs.”

Although licensing does not apply to all dog breeders, the licence conditions discussed in this new research can help prevent harmful breeding decisions and ensure dogs kept for breeding by licensed breeders are suitable candidates for breeding, provided they are complied with and enforced.

The report aims to support the UK Government’s efforts to deliver its dog breeding commitments in the Animal Welfare Strategy for England, as well as future dog breeding policy development in the devolved nations.