Communication from the Commission to the European Parliament and the Council on a Community Action Plan on the Protection and Welfare of Animals 2006-2010 {SEC(2006) 65}
Date: 2006-01-23
Institutions: European Commission
Subjects: EU programme, action programme, animal welfare, cooperation policy, international trade, protection of animals, third country

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 23.1.2006 
COM(2006) 13 final 

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT AND THE COUNCIL 

on a Community Action Plan on the Protection and Welfare of Animals 2006-2010 

{SEC(2006) 65} 

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COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT AND THE COUNCIL 

on a Community Action Plan on the Protection and Welfare of Animals 2006-2010 

(Text with EEA relevance) 

1. 

INTRODUCTION 

The  presented  Community  Action  Plan  on  the  Protection  and  Welfare  of  Animals 
(hereinafter  “the  Action  Plan  on  Animal  Welfare”)  embodies  the  Commission’s 
commitment to EU citizens, stakeholders, the European Parliament and the Council 
for  a  clear  and  comprehensive  map  of  the  Commission’s  planned  animal  welfare 
initiatives  for  the  coming  years.  It  also  responds  to  the  principles  set  out  by  the 
Protocol  on  Protection  and  Welfare  of  animals  annexed  to  the  EC  Treaty  by  the 
Amsterdam Treaty.  

The Action Plan will ensure that initiatives in the field of Animal Welfare take due 
account  of  their  cross-cutting  nature,  their  European  and  international  dimensions 
and  value,  and  the  range  of  associated  and  inter-connecting  competencies  as 
distributed today among the Commission’s various Directorates General. The Action 
Plan  thus  also  contributes  to  better  regulation  by  serving  the  consolidation  of 
legislative instruments.  

The  Action  Plan  on  Animal  Welfare  has  been  the  subject  of  a  wide  public 
consultation  in  accordance  with  the  European  Commission’s  Interactive  Policy 
Making. It is accompanied by an Impact Assessment and also provides for individual 
impact assessments for future legislative initiatives. Lastly, a Commission Working 
Paper has been produced to serve as basis for the follow-up work of the Action Plan. 
This  Paper  has  been  subject  to  the  work  and  contributions  of  a  Steering  Group 
comprised  of  a  number  of  Directorates  General  with  a  role  in  animal  welfare,  in 
particular  Directorates  General  Agriculture,  Joint  Research  Centre,  Environment, 
Enterprise, Fisheries, Research, Transport-Energy and Trade.  

2. 

OBJECTIVES 

The primary objectives that the Commission wishes to achieve with the elaboration 
of this Action Plan are to: 

Define more clearly the direction of Community policies on animal protection and 
welfare for the coming years; 

Continue  to  promote  high  animal  welfare  standards  in  the  EU  and  at  the 
international level; 

Provide greater coordination of existing resources while identifying future needs; 

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Support  future  trends  in  animal  welfare  research  and  continue  to  support  the  3Rs 
principle: Replacement, Reduction and Refinement alternative approaches to animal 
testing;  

Ensure  a  more  consistent  and  coordinated  approach  to  animal  protection  and 
welfare across Commission policy areas, also taking into account aspects such as 
the socio-economic impact of any new measures. 

These  objectives  have  been  identified  based  on  the  experience  gained  by  the 
Commission in planning, preparing and negotiating various animal welfare initiatives 
both  within  the  Commission,  with  Member  States,  the  various  EU  Institutions  and 
the  steadily  increasing  number  of  stakeholders  and  international  organisations  that 
participate in such discussions. In order to achieve these objectives and to ensure a 
more structured approach in the different sectors involved, five main areas of action 
have been identified.  

These cannot be considered as stand-alone actions; there are clear linkages between 
the actions foreseen necessitating a coordinated and holistic approach. A period from 
2006  to  2010  is  considered  appropriate  in  order  to  advance  the  actions  proposed, 
with  associated  regular  monitoring  and  evaluation  of  progress  as  well  as  follow-up 
programming beyond 2010 following the completion of this first Community Action 
Plan.  

Should  projected  actions  involve  possible  additional  costs  for  the  operators 
concerned,  these  possible  costs  will  be  duly  considered  within  the  accompanying 
impact assessments for such actions, taking into account, in particular, the objectives 
of the renewed Lisbon strategy for growth and employment. 

3. 

AREAS OF ACTION 

The five main areas of action identified are: 

1.  Upgrading existing minimum standards for animal protection and welfare 
in line with new scientific evidence and socio-economic assessments as well as 
possibly elaborating specific minimum standards for species or issues that are 
not  currently  addressed  in  EU  legislation.  A  particular  priority  will  be 
designing EU rules in order to secure efficient enforcement and to take account 
of rules governing international trade. 

2.  Giving  a  high  priority  to  promoting  policy-orientated  future  research  on 
animal  protection  and  welfare  and  application  of  the  3Rs  principle:  in 
order to respect the obligations under the EC Treaty Protocol to pay full regard 
to  the  welfare  of  animals  in  formulating  and  implementing  these  policies  in 
parallel with enhancing the development, validation, implementation and moni-
toring of alternative approaches to animal testing. 

3. 

Introducing  standardised  animal  welfare  indicators:  to  classify  the 
hierarchy of welfare standards applied (from minimum to higher standards) in 
order  to  assist  the  development  of  improved  animal  welfare  production  and 

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husbandry  methods  and  to  facilitate  their  application  at  EU  and  international 
levels. On this basis, options for EU labelling will be explored in a systematic 
manner. 

4. 

Ensuring  that  animal  keepers/  handlers  as  well  as  the  general  public  are 
more  involved  and  informed  on  current  standards  of  animal  protection 
and welfare and fully appreciate their role in promoting animal protection 
and  welfare.  In  respect  of  farm  animals  for  example  this  could  include 
working with retailers and producers to facilitate improved consumer trust and 
awareness  of  current  farming  practices  and  thus  more  informed  purchasing 
decisions,  as  well  as  developing  common  initiatives  in  the  field  of  animal 
welfare  to  facilitate  the  exchange  of  information  and  the  application  of  best 
practices. 

5.  Continue  to  support  and  initiate  further  international  initiatives  to  raise 
awareness  and  create  a  greater  consensus  on  animal  welfare,  including 
engaging  with  Developing  Countries  to  explore  trade  opportunities  based  on 
welfare  friendly  production  systems.  The  Community  should  also  actively 
identify  trans-boundary  problems  in  the  area  of  animal  welfare,  relating  to 
companion or farm animals, wildlife etc., and develop a mechanism to tackle 
them in a more timely, efficient and consistent manner. 

The key strategic basis which has been considered in order to elaborate the five areas 
of action is laid out in the Annex to this Communication. 

4. 

FUTURE STEPS 

Continued and reinforced efforts are needed to ensure that Community legislation is 
drafted  in  a  rational  and  comprehensible  manner,  thus  facilitating  uniform 
implementation  and  enforcement.  Community  animal  welfare  policies  need  to  be 
founded  on  the  best available  scientific evidence as well as taking into account the 
concerns  of  civil  society,  socio-economic  consequences  and  relationships  with 
international  trading  partners  and  organisations.  Specific  legislative  provisions 
should also be foreseen for species for which minimum protection standards are not 
currently outlined in Community legislation.  

Consideration  will  also  be  given  to  the  simplification  and  clarification  of  existing 
legislation where reports and experience highlight the need for revisions or updating. 
Timely  follow-up  of  notified  deficiencies  on  the  part  of  national  authorities  in 
applying  Community  animal  welfare  rules  will  also  be  ensured.  The  Commission 
remains vigilant in these issues and the provision of guidance to Member States by 
organising training courses for the staff of the Member States’ competent authorities 
should also be foreseen, to which participants from Third Countries, and in particular 
Developing Countries, may also participate. 

The  Community  will  contribute  to  the  ongoing  evolution  of  animal  welfare  as  a 
scientific discipline, through the funding of research, promotion of dialogue etc., thus 
facilitating a fuller exchange of views and expertise. The Commission will strive to 
ensure that full regard is paid to animal welfare in the context of related policy fields 

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such  as  agricultural  and  research  policies,  animal  health,  food  safety,  chemicals 
testing/risk assessment etc. A particular focus will be the implementation of the “3Rs 
Declaration”  adopted  on  7  November  2005  in  Brussels  and  the  setting  up  of  an 
action programme aiming at replacing, reducing and refining animal use and to apply 
alternative  approaches  to  animal  testing.  Concerning  the  wider  issue  of  animal 
protection  and  welfare  greater  coordination  between  the  different  competent 
Commission Directorates General could facilitate internal Commission consultation. 
This would help to ensure that policy proposals having an animal welfare impact are 
comprehensively vetted to demonstrate compliance with the EC Treaty Protocol on 
protection and welfare of animals. 

into  existing  and 

future  Community 

Efforts  will  be  made  to  incorporate  specific  measurable  animal  welfare  indicators 
legislation.  Further 
where  available 
investigations and research will be promoted for the development and application of 
such  objective  measurable  indicators  of  animal  welfare.  In  this  way  a  legislative 
instrument  can  be  foreseen  to  validate  production  systems  applying  higher  welfare 
standards than the minimum standards foreseen in the legislation, always respecting 
WTO international trade rules. A specific marketing and information system will be 
developed to promote at EU level the application of such higher welfare standards in 
the  EU  and  worldwide  and  facilitate  their  identification  by  EU  consumers.  The 
management, upgrading and diffusion of these standards as well as the preparation of 
relevant  socio-economic  studies  and  impact  assessments  could  be  facilitated  by  the 
creation  of  a  European  Centre  or  Laboratory  for  the  protection  and  welfare  of 
animals. 

Improved  marketing,  labelling  and  communication  strategies  will  need  to  be 
developed  and  analysed  to  ensure  that  consumers  are  able  to  make  more  informed 
purchasing decisions. Consideration will be given to the establishment of a specific 
Information  Platform  for  Animal  Welfare  in  order  to  facilitate  dialogue  and  the 
exchange  of  expertise-experience  between  stakeholders  such  as  consumers, 
producers, retailers, industry etc. on this issue. 

A European strategy to communicate on animal welfare in Europe and abroad will be 
developed to explain to citizens the variations in animal production systems and the 
costs and benefits of higher animal welfare standards. This strategy will also include 
analysis  of  the  potential  impact  on  trade  (positive  or  negative)  in  Developing 
Countries  intending  to  export  to  the  EU.  Specific  tools  will  be  elaborated  to  better 
inform  consumers  and  the  general  public  of  modern  animal  husbandry  techniques 
and  animal  welfare  considerations.  There  will  be  a  continued  use  of  stakeholder 
consultation and public internet surveys to receive input from the public at an early 
stage of the policy formulation process. This activity for animal welfare will also be 
integrated with other forms of communication already developed by the Community 
in the agri-food sector.  

In the international arena full support and Community coordination will be provided 
for  the  animal  welfare  activities  of  international  organisations  such  as  the  OIE  and 
Council of Europe. The Community will also press for the acceptance at WTO level 
of  animal  welfare  as  a  non-trade  concern  in  agricultural  trade  and  will  work  with 
international  trading  partners  having  developed  animal  welfare  policies  in  order  to 
build  a  common  understanding  on  the  implementation  of  mutually  agreed  animal 

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welfare  standards,  including  in  the  context  of  specific  EC  multilateral  and  bilateral 
agreements. Specific initiatives will be foreseen in order to facilitate the recognition 
of animal welfare as an opportunity for trade with Developing Countries. 

5. 

BUDGETARY CONSIDERATIONS 

The  preparation  of  an  Action  Plan  per  se  has  no  implication  for  the  Community 
budget. The potential budgetary implications of each individual action will be taken 
into  account  in  the  impact  assessments  to  be  prepared  for  each  respective  action, 
within  the  framework  set  for  the  expenditure  on  veterinary  and  phytosanitary 
measures for the period 2007-2013 where relevant. 

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6. 

PLANNED ACTIONS IN THE FIELD OF ANIMAL PROTECTION AND WELFARE

1

Specific actions 

Submission of a report to Council and the European Parliament on the implementation of Directive 98/58/EC on the protection of 
animals kept for farming purposes 

Preparation of a proposal to amend Decision 2000/50/EC on the inspection of farm holdings 

Promotion of a European Partnership between the Commission and industry to promote alternative approaches to animal testing 

Submission of a report to Council and the European Parliament on the various systems of rearing laying hens 

Follow-up survey on consumers’ attitudes to the protection and welfare of farmed and other animals 

Proposal to address public concerns on the trading of cat and dog fur and derived products 

Organisation of a European Conference on Animal Welfare with the Austrian Council Presidency 

Better use of the existing consultation structure (GIR2) to prioritise policy relevant research in animal welfare 

Submission of a report to Council and the European Parliament on the development, validation and regulatory acceptance of alternative 
methods to animal testing in the field of cosmetics 

Timetable 
envisaged 

2006* 

2006* 

2006* 

2006* 

2006* 

2006* 

2006* 

2006 
onwards* 

2006* 

1 
2 

* indicates actions already underway, announced or specifically foreseen by Community legislation. 
Groupe Interservice de Recherche. 

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Work to substantiate and promote the EC’s submissions to WTO on the issues of animal welfare and agricultural trade and mandatory 
labelling for agricultural products  

Consider the need for further harmonisation of the welfare of other farmed species such as turkeys or dairy cows, based on available 
scientific advice and the existence of internationally agreed guidelines (e.g. Council of Europe Recommendations) 

Preparatory work for the establishment of a European Centre-Laboratory for the protection and welfare of animals and the Validation of 
Alternative Testing Methods 

Planning for the possible establishment of a specific Information Platform on Animal Protection and Welfare 

2006* 

2006 

2006 

2006 

Coordination of Community position on the adoption of revised housing and care guidelines under the Council of Europe Convention 
ETS 123 (protection of vertebrate animals used for experimental and other scientific purposes) and Commission proposal for a revision 
of Directive 86/609 on the protection of animals used for experimental and other scientific purposes 

2006/2007* 

Preparation of a proposal to revise Community legislation on the protection of animals at the time of slaughter or killing, including 
killing for disease control purposes 

Preparation of a Commission proposal on the use of vehicle satellite navigation systems in the context of the protection of animals during 
transport (including technical support from the Commission’s Joint Research Centre) and development of a system for the real time 
monitoring of animal welfare conditions during transport 

Integration of a specific communication strategy on animal protection and welfare with the other forms of communication already 
developed by the Community in the agri-food sector, including the development of on-line training tools to better inform society, in 
particular children, on issues related to the protection and welfare of animals  

Creation of specific communication tools to work with international trading partners to build a common understanding on the 
implementation of mutually agreed animal welfare standards 

2007* 

2007* 

2007* 

2007 

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Organisation of training courses for the staff of Member States’ competent authorities responsible for enforcing animal welfare rules, 
participants from Third Countries, and in particular Developing Countries, should be involved. Special attention should also be given to 
participation from accession countries for example 

Submission of a report to Council and the European Parliament on the protection of calves kept for farming purposes 

Submission of a report to Council and the European Parliament on the possibility of a mandatory labelling scheme for chicken meat and 
meat products based on compliance with animal welfare standards 

Submission of a report to Council and the European Parliament on the protection of pigs kept for farming purposes 

Identification of Humane Trapping Standards with the aim to implement them in the EU by 2014 

Submission of a report to Council and the European Parliament on the influence of genetic parameters on the welfare of broiler breeders 
and broiler chickens 

Establishment of a database to gather and store information relating to Community animal welfare legislation and disseminate such 
information to competent authorities, producers and consumers 

Report to the Council and Parliament on the further application of measurable indicators in Community animal welfare legislation (based 
on 2009 outcome of Welfare Quality research project) 

Creation of a legislative instrument to validate farming systems applying higher welfare standards than those foreseen in applicable 
legislation 

Possible establishment of a European Quality Standard for products emanating from high animal welfare production systems and 
creation of a specific technical and financial system to promote at European level the application of higher welfare standards both for 
their technical developments and to market them in Europe and abroad 

2007* 

2008* 

2008* 

2009* 

2009* 

2010* 

2010* 

2010 

2010 

2010 

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