National Organic Standards Board

Livestock Committee

Proposed Guidance Recommendation

Animal Welfare and Stocking Rates 

October 14, 2011

Introduction 

Animal welfare is a fundamental principle of organic production, and consumers expect 

that organic certification ensures humanely treated animals allowed to fulfill natural 

behaviors. The Livestock Committee of the NOSB considers that a focus on animal 

welfare warrants appropriate and effective regulation and guidance. It is important to 

consider the social and ethical implications as well as scientific research with regard to 

animal welfare. This proposal is intended to refine—not replace—the November 2009 

NOSB Animal Welfare Recommendation. The combination of the 2009 and this 

guidance recommendation aim to more clearly identify the parameters that define 

animal welfare on certified organic operations. As requested by the National Organic 

Program, it is our intention to create a comprehensive animal welfare program that 

benefits both livestock and farmers. Except for the specific sections whose proposed 

changes or addition is detailed in this recommendation, the November 2009 

recommendation is still current. This recommendation details the specific measures 

which the committee feels the program should include in guidance issued to the 

certifiers and the organic community. We have also made a separate recommendation 

regarding the measures that should be implemented via changes to the regulation.

Background

At the May 2009 NOSB meeting, the Livestock Committee presented a Discussion 

Document on Animal Health and Living Conditions. This document proposed that 

numerical scoring be used to assess body condition, lameness, coat/feather conditions 

and cleanliness. Please note that, as described in the discussion section, these 

assessment measures will be outlined in species-specific Guidance Documents that will 

be presented at the fall 2011 NOSB meeting. 

At the November 2009 NOSB meeting, the NOSB approved an Animal Welfare 

recommendation that proposed changes to §205.238 Livestock health care practice 

standard and §205.239 Livestock living conditions (including the separation into 

mammalian and avian sections) to give more detail to requirements to ensure animal 

welfare. This 2009 recommendation also noted the need for the establishment of indoor 

and outdoor space provision minimums. 

At the fall 2010 NOSB meeting, the Livestock Committee presented Discussion 

Documents on Stocking Density and Handling, Transport and Slaughter, receiving 

public comment on both documents. This recommendation aims to refine the 2009 

recommendation and consolidate it with the Livestock Committee’s current 
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recommendations on stocking density and humane handling, transport and slaughter. 

In completing the current proposal, the Livestock Committee considered public 

comment and existing animal welfare standards, reviewed studies presented on animal 

welfare, and considered existing legislation from other countries. 

Relevant Areas in the Rule

The areas of the Rule currently addressing animal welfare include 205.2. Terms 

defined, §205.237 Livestock feed, §205.238 Livestock health care practice 

standard, §205.239 Livestock living conditions, and §205.240 Pasture practice 

standard. This recommendation includes and builds upon changes recommended 

by the NOSB in November of 2009.

Recommended for guidance.

Livestock living conditions 

Indoor stocking density. The stocking density table lists livestock by species and weight. 

All livestock must be provided with bedding as needed to maintain comfort and 

cleanliness per outcome based standards whether they are housed with or without a 

roof. The indoor bedded space allowance provided in this recommendation is to be 

considered a minimum for housed animals during temporary confinement. (205.239(b). 

All animals must be able to lie down in a clean, dry place at the same time without lying 

on top of one another at all times. The less space provided per animal, the more laborintensive it may be to keep them clean and in good health. Bedding keeps animals 

warm, clean, and dry and also protects animals from developing lesions due to abrasion 

on rough surfaces. Animals must be managed in a manner that lameness does not 

become a common or routine occurrence. If routine hoof trimming due to lameness or 

overgrown hooves is required, diet or management adjustments will be necessary. 

Bison. Bison are not domesticated animals and therefore indoor bedded space would 

be an added stressor. Bison should not be confined indoors except for medical 

treatment. 

Dairy calf housing. When considering shelter design, it should be taken into account 

that calves are social animals and should ideally be housed in small groups. Calves 

may be housed in individual pens or hutches providing that they have enough room to 

turn around, lie down, stretch out while lying down, get up, rest, and groom themselves; 

individual calf pens shall be designed and located so that each calf can see, smell, and 

hear other calves present on the farm. 

Calves are tied on some farms while being wintered in the dairy barn or tethered to a 

hutch. Tethering is less desirable than group housing but may be necessary in some 

systems to prevent cross-sucking. Tethering is acceptable if calves are safe and meet 

the requirements that will be laid out in the outcome based standards and movement is 

not restricted.
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Dairy cow housing. Standard tie-stall and free-stall operations that have individual stalls 

are not included in the stocking density table. Individual stall barns must be managed to 

keep cows comfortable and to meet the outcome based standards that are in 

development. These standards will include cleanliness, body condition, injuries and 

lesions, lameness, etc., as relevant to dairy. This means large stalls are necessary for 

Holsteins and Brown Swiss, while smaller stalls are indicated for smaller breeds such as 

Jerseys. Copious amounts of bedding such as chopped straw increase comfort and 

may contribute to cleaner animals, and prevent injuries and lesions. 

Broken tails.

The great majority of farms do not have livestock with broken tails. Accidents do 

happen and occasionally tail injuries occur. Dairy cattle may be more prone to this 

injury. An incidence greater than 3% may indicate a problem with housing or handling. 

This as well as any other issue will be addressed in the Organic System Plan.

Swine. Swine farms will establish and maintain living conditions that accommodate the 

health and natural behavior of all pigs. The space requirement for pigs must allow every 

pig to lie down, stand up, turn around freely, run, root, explore, and express other 

normal patterns of natural behavior. The outdoor living conditions should provide shade, 

shelter, rotational pastures or paddocks and portable structures as needed. 

Buildings and housing structures for pigs must be designed to allow outdoor access for 

all when seasonally appropriate. The outdoor environment must be managed to 

minimize soil erosion and overgrazing. Vegetation cover provides grazing, prevention of 

soil erosion, and promotes soil health. This approach allows for re-growth of vegetation 

after moving pigs. 

All pigs must have access to fresh water and a high-quality feed according to their 

needs. Farrow crates, flat decks, cages, tail docking, and routine trimming or clipping of 

teeth are prohibited. Castration should be performed before the piglets reach 2 weeks 

of age and by trained personnel. Indoor space for pigs must be designed to allow 

outdoor access on the ground. Pigs should be weaned at 7 to 8 weeks of age. The farm 

plan must show how the time pigs are outdoors will be maximized. All pigs aged 6 

weeks and older must have access to the outdoors. Temporary confinement is only 

permitted as outlined in OFPA Rule. 

Poultry houses. In considering shelter for avian species, dry litter must be provided and 

maintained. Special considerations for the areas beneath the waterers may be needed 

to maintain dry litter. Complete clean out of a poultry house is necessary when there 

have been adverse health issues with the previous flock; otherwise a clean layer of 

bedding should be provided between flocks to provide a sanitary environment for the 

new flock coming in. 

Poultry houses and outdoor areas must be managed in a manner that allows birds to 

perform natural behaviors which minimize stress and aggressive acts. Producers should 

be encouraged to provide environmental enrichments in the house that will relieve 
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boredom and discourage aggressive acts such as pecking behaviors. It is the intent of 

the livestock committee that outdoor areas provide birds with access to the soil. If birds 

do not utilize outdoor areas it may be necessary to make these areas more attractive 

with environmental enrichments or larger doorways for the birds. This should be 

incorporated into the organic farm plan.

Outdoor stocking density. Outdoor access is important for all livestock to enhance 

muscle tone and relieve boredom. Outdoor runs for cattle are to be considered a 

minimum during the non-grazing season when weather allows animals to leave the 

indoor bedded area. Cattle pastured during the non-grazing season may not require an 

indoor bedded area. Since piglets and chicks must be protected from freezing weather, 

outdoor runs are not necessary. Calves, lambs, kids, and other young animals require 

protection from extreme weather conditions and threat from predators.

Minimum space requirements charts. The following chart is meant to address periods of 

temporary confinement or during the non-grazing season for mammalian species. Tieand free-stall barns are exempt from the space requirements in this chart and must 

provide one stall for every animal with access to the building. The values in this chart 

are MINIMUM amounts only and provision of larger areas of enriched environment 

appropriate to the species is strongly encouraged. Outcome-based requirements (to be 

developed) will be an integral part of the animal welfare standard.

Mammalian Minimum Space Requirements Charts

Livestock Indoor Floor Space Outdoor Runs and 

Pens 

Bison weight (pounds) Square feet / animal Square feet /animal

Up to 220 NA 70.0 

220-440 NA 120.0

440-770 NA 190.0

Over 770 NA 400 .0

Beef cattle weight

(pounds)

Square feet / animal Square feet /animal

Up to 220 15.0 10.0 

220-440 25.0 20.0 

440-770 40.0 30.0 
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770-1100 50.0 40.0 

over 1100 10.0 per 220 pounds 8.0 per 220 pounds 
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Dairy cattle weight 

(pounds)

Square feet / animal Square feet /animal

Up to 220 15.0 10.0 

220-440 25.0 20.0 

440-770 40.0 30.0 

770-1100 50.0 40.0 

over 1100 10.0 per 220 pounds 8.0 per 220 pounds 

Mammalian Minimum Space Requirements Charts (continued)

Livestock Indoor Floor Space Outdoor space 

Swine Square feet / animal Square feet / animal

Sow and piglets 48.0 40.0 

Sows 30.0 30.0 

Boars 64.0 85.0 

Growing pigs Square feet / animal Square feet /animal

Up to 24 2.0 Sufficient space for 

animals to all lie down 

and apart

from one another 

simultaneously

24—47 3.0

47—109 

 

6.0 

109—157 9.0 

157—225 13.0 

225 and up 

 

16.0
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Livestock Indoor Floor Space Outdoor Space

Sheep and goats 

(pounds)

Square feet / animal Square feet / animal

Sheep and Goats 16.0 30.0 

Nursing lamb or kid 4.0 8.0 

Rabbits Square feet / animal Square feet /animal

Adult rabbits 3.0 20.0 

Pregnant does 5.0 20.0 

Doe and litter 8.0 20.0 

Young rabbits 5-12 weeks 1.0 N/A 

Committee Vote

Motion: Wendy Fulwider Second: Mac Stone

Yes: 4 No: 2 Absent: 1 Abstain: 0 Recuse: 0