Commission working document on a Community Action Plan on the Protection and Welfare of Animals 2006-2010 - Strategic basis for the proposed actions {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, 23.01.2006 
COM(2006) 14 final 

COMMISSION WORKING DOCUMENT 

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

Strategic basis for the proposed actions 

{SEC(2006) 65} 

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TABLE OF CONTENTS 

1. 

1.1. 

1.2. 

1.3. 

2. 

2.1. 

2.2. 

2.3. 

2.4. 

3. 

3.1. 

3.2. 

4. 

ACTION 1 – Upgrading existing minimum standards for animal protection and 
welfare.......................................................................................................................... 3 

Background .................................................................................................................. 3 

Animal welfare as a cornerstone of Community policies ............................................ 4 

Animal welfare’s central place within the reformed Common Agricultural Policy 
(CAP) ........................................................................................................................... 5 

ACTION 2 – Giving a high priority to promoting policy-orientated future 
research on animal protection and welfare and application of the 3Rs principle ........ 7 

Background .................................................................................................................. 7 

A European Centre or Laboratory for the protection and welfare of animals ............. 8 

Applying new practical tools to ensure animal welfare ............................................... 8 

Application of the 3Rs principles for animals used for experiments ........................... 8 

ACTION 3 – Introducing standardised animal welfare indicators ............................ 10 

Background – the integrated approach....................................................................... 10 

An EU label for animal welfare – classifying production systems in relation to the 
welfare requirements applied ..................................................................................... 10 

ACTION 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................................................................................................ 11 

4.1. 

Background – the shift of public attitudes ................................................................. 11 

4.2.  What has been already accomplished ........................................................................ 12 

4.3. 

5. 

An informed animal handler/keeper and general public: the best 
advocates for animal welfare ..................................................................................... 12 

ACTION 5 – Continue to support and initiate further international 
initiatives to raise awareness and create a consensus on animal welfare................... 13 

5.1. 

Background ................................................................................................................ 13 

5.2.  Working with the World Organisation for Animal Health – OIE.............................. 14 

5.3. 

5.4. 

Promoting animal welfare in the EU’s multilateral and bilateral relationships ......... 14 

Raising knowledge on animal welfare in Developing Countries and creating 
opportunities for trade ................................................................................................ 15 

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1. 

ACTION  1  –  UPGRADING  EXISTING  MINIMUM  STANDARDS  FOR  ANIMAL 
PROTECTION AND WELFARE 

1.1. 

Background 

Despite the fact that many strong advances in the field of animal welfare date from 
recent years, for generations societies have recognised their obligations with regard 
to  caring  for  animals  under  their  responsibility  and  many  countries  have  long-
standing legislation on the protection of animals and the prevention of cruelty. The 
first legislation on animal welfare at EC level was adopted in 1974 and concerned the 
protection of animals at the time of slaughter1. The recitals of this Directive indicate 
the  importance  that  was  already  attached  to  animal  welfare  and  the  prevention  of 
unnecessary suffering: 

“Whereas  the  Community  should  also  take  action  to  avoid  in  general  all  forms  of 
cruelty  to  animals;  whereas  it  appears  desirable,  as  a  first  step,  that  this  action 
should consist in laying down conditions such as to avoid all unnecessary suffering 
on the part of animals when being slaughtered.” 

In the intervening years a growing body of Community legislation on the protection 
of  animals  has  accumulated.  The  Commission  has  important  responsibilities  to 
ensure that new legislation regarding animal welfare standards is based on evolving 
scientific knowledge, expertise and practical experience. In its role as guardian of the 
EC  Treaties  the  Commission  is  also  responsible  for  ensuring  that  Community 
legislation  is  properly  implemented  and  enforced  and  the  Commission’s  inspection 
service (Food and Veterinary Office: FVO) plays an important role in fulfilling this 
task. The scientific basis of such policies has also been supported by the activity of a 
succession  of  advisory  bodies:  the  Scientific  Veterinary  Committee2,  Scientific 
Committee  on  Animal  Health  and  Animal  Welfare3,  Group  of  Advisers  on  the 
Ethical  Implications  of  Biotechnology  (GAIEB)  and  more  recently  the  European 
Food Safety Authority4.  

Concerning farm animals to date the legislation which has evolved to a large extent 
sets out minimum rules for their protection. More detailed rules are laid down for the 
farming  of  just  a  few  species  (calves,  pigs  and  laying  hens)  while  only  general 
requirements are in place for others such as beef or dairy cows, sheep, turkeys, ducks 
etc.  The  lack  of  specific  animal  welfare  standards  for  most  farmed  species  is  at 
present  difficult  to  justify  given  the  scientific  evidence  currently  available  and  the 
progress  in  international  fora  such  as  the  Council  of  Europe  in  addressing  these 
issues5. Information is progressively accumulating on the sentience of fish and this is 
an  issue  which  has  already  been  addressed  by  the  Council  of  Europe,  with  welfare 
guidelines for farmed fish also being prepared by the OIE.  

1 
2 
3 
4 
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Council Directive 74/577/EEC. 
http://europa.eu.int/comm/food/fs/sc/oldcomm4/previous_en.html 
http://europa.eu.int/comm/food/fs/sc/scah/index_en.html 
http://www.efsa.eu.int/ 
http://www.coe.int/T/E/Legal_affairs/Legal_co-operation/Biological_safety,_use_of_animals/ 

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The  EU’s  environmental  policies  have  since  the  1980s  included  legislation  which 
along  side  the  harmonisation  of  the  Single  Market  has  promoted  improvements  in 
animal  welfare.  With  the  introduction  of  Article  175,  further  areas  of  animal 
conservation and welfare were addressed under Community legislation. Commission 
environmental  policies  cover  for  example  issues  related  to  humane  trapping 
standards,  wildlife  trade,  the  keeping  of  animals  in  zoos  and  the  importation  of 
certain  seal  pup  skins  etc.  The  EU  Environmental  Action  Programme  entitled 
Environment 2010: Our Future, Our Choice, covering the period 2001 to 2010 also 
has the protection of natural habitats and wildlife as one of its specific objectives. In 
the international arena for example the Community has reached an Agreement with 
Canada and the Russian Federation on international humane trapping standards and a 
substantially similar agreement in the form of Agreed Minute was reached with the 
USA. 

In the area of the protection of animals used in experiments, the Commission has, as 
early as 1985, presented a Proposal for a Directive on the protection of animals used 
for experimental and other scientific purposes. Furthermore, by a Council Decision 
1999/575/EC  the  Community  became  party  to  a  Council  of  Europe  Convention 
ETS 123  on  the  protection  of  vertebrate  animals  used  for  experimental  and  other 
scientific  purposes.  This  further  reinforces  the  commitment  to  pursue  efforts  to 
replace animals used in experiments as well as to improve the welfare of those still 
being  used.  In  the  EU  approximately  10  million  animals  are  used  per  year  for 
research  and  testing,  almost  25%  considered  as  regulatory  testing,  including  safety 
testing,  testing  of  foods  and  control  of  medicines.  Animal  use  has  been,  until 
recently,  reducing  in  industry  and  research,  due  primarily  to  changes  in  agent 
discovery and research methods rather than to the use of non-animal alternatives in 
regulatory testing.  

1.2. 

Animal welfare as a cornerstone of Community policies 

The Protocol on Protection and Welfare of animals annexed to the EC Treaty by the 
Amsterdam  Treaty  sets  out  key  fields  of  action  in  which  the  Community  and 
Member  States  are  to  pay  full  regard  to  the  welfare  requirements  of  all  animals  in 
formulating  and  implementing  policies.  In  various  surveys  EU  citizens  have 
expressed a growing appreciation for high animal welfare standards which can have 
both a direct and indirect impact on food safety and quality. Therefore it is important 
that regulatory and support systems in agriculture adapt accordingly to such trends. 
The Commission has recognised the links between food safety and animal welfare in 
its  White  Paper  on  Food  Safety  and  by  ensuring  an  integrated  approach  to  animal 
health,  welfare  and  food  safety  controls  throughout  the  food  chain,  notably  by 
Regulation  (EC)  882/20046.  This  Regulation  also  provides  for  the  organisation  of 
training courses for the staff of the Member States’ competent authorities in order to 
develop a harmonised approach to official controls in the Member States. However 
such training can only be considered as a supplement rather than a substitute to the 
Member States’ own internal training. Member States could also be provided with a 
forum  by  which  to  exchange  information  on  their  experience  of  implementing 
measures  to  promote  animal  welfare,  thus  facilitating  the  dissemination  of  best 

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Regulation 882/2004/EC of the European Parliament and of the Council on official controls performed 
to ensure the verification of compliance with feed and food law, animal health and animal welfare rules. 

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practices.  In  order  to  minimise  transmission  costs,  avoid  overlaps  and  increase 
administrative efficiency, it is necessary to consider the use of modern technologies 
and  e-government  solutions  to  perform  tasks  related  to  the  transmission  and 
treatment of information foreseen. 

Council  Decision  90/424/EEC  on  expenditure  in  the  veterinary  field  states  that  the 
Community  shall  make  a  financial  contribution  to  the  establishment  of  an 
information policy in the field of animal protection and provides for the financing of 
studies  necessary  for  the  preparation  and  development  of  legislation  in  the  field  of 
animal protection. The possibility of utilising the tools afforded by Council Decision 
90/424  to  support  financially  the  main  initiatives  outlined  in  the  Action  Plan 
accompanying this working document should also be investigated. 

The Community has important responsibilities concerning the protection of animals 
kept  for experimental purposes, validation of alternative methods to animal testing, 
trapping  of  wild  animals,  welfare  of  zoo  animals,  trade  in  wild  animals  and 
endangered  species.  Other  policies  such  as  the  conservation  of  endangered  species, 
maintenance  of  biological  and  genetic  diversity  and  advances  in  the  area  of 
biotechnology,  for  example  in  animal  cloning,  require  important  consideration  of 
possible  animal  welfare  consequences.  Under  the  Common  Fisheries  Policy  the 
Commission strategy for the sustainable development of European aquaculture7 has 
highlighted the need to improve the welfare of farmed fish and to take into account 
recommendations  elaborated  by  such  organisations  as  the  Council  of  Europe  in 
possibly developing specific animal protection legislation for farmed fish. 

Concerning  the  protection  of  experimental  animals  the  Commission  is  currently 
preparing  a  revision  of  Directive  86/609/EEC.  The  aim  of  the  revision  is  to 
strengthen  the  legislation  in  the  area  of  animal  experimentation  in  the  EU  and  to 
ensure  that  the  animals  still  used  in  experiments  will  receive  appropriate  care  and 
humane treatment. The revision will be looking particularly into the requirements for 
the authorisation of experiments, personnel and establishments and the inspection of 
establishments  which  breed,  supply  or  use  laboratory  animals  as  well  as  the 
introduction of an ethical review process. 

Synergies involving the different Directorates General of the Commission competent 
for  animal  protection  will  clearly  facilitate  the  role  of  the  Commission  in  fulfilling 
the demands of the Treaty Protocol. The networking of competencies should be more 
systematically organised in order to ensure proper follow-up of longer term strategies 
and  to  respond  to  the  increasing  demands  from  EU  citizens  for  improved  animal 
protection standards. 

1.3. 

Animal  welfare’s  central  place  within  the  reformed  Common  Agricultural 
Policy (CAP) 

Recent CAP reform measures have introduced the principle of cross-compliance with 
various  standards  for  beneficiaries  of  direct  payments,  including  animal  welfare 
standards,  from  2007.  A  detection  of  a  breach  will  trigger  a  sanction,  consisting 

7 

COM(2002) 511 final. 

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either in a reduction or withdrawal of the subsidies paid, with the sanctioning system 
being designed to be proportional to the seriousness of the breach.  

However,  more  important,  as  regards  the  potential  benefits  for  animal  welfare,  are 
the  new  measures  foreseen  under  rural  development  policies.  Support  for 
investments in agricultural holdings or the processing and marketing of agricultural 
products can be granted to improve animal welfare. In addition there is a possibility 
under  agri-environment  measures  to  include  the  respect  of  the  relevant  animal 
welfare legislation as an eligibility condition to be guaranteed by the Member States.  

The following new accompanying measures have also been introduced:  

– 

– 

– 

the  chapter  agri-environment  has  been  enhanced  by  a  measure  to  support 
farmers  who  apply  animal  husbandry  practices  which  go  beyond  the  baseline 
of good animal husbandry practices, 

under the chapter “Meeting Standards” measures provide for financial help for 
farmers' operating costs to adapt to demanding standards based on Community 
legislation  in  the  fields  of  environment,  public,  animal  and  plant  health  and 
animal  welfare.  In  addition  the use  of  “Farm  advisory  services” can  be 
supported, which help farmers in the implementation of the standards,  

under  the  chapter  “Food  Quality” support is  granted  for  participation  in  food 
quality schemes (including schemes based on high animal welfare standards), 
and  for  producer  groups  which  undertake  information,  promotion  and 
advertising  activities  on  the  quality  schemes supported,  including  those  based 
on improved “animal welfare” provisions. 

It  is  thus  clear  that  within  the  new  framework  of  the  reformed  CAP  the  Member 
States and the Commission have more instruments available to respond to society’s 
demands for more sustainable production and improved animal welfare standards. As 
an  example,  in  the  European  Action  Plan  for  Organic  Food  and  Farming8  the 
Commission  highlighted,  as  subsequently  supported  by  Council9,  that  organic 
farming plays a dual societal role, by protecting the environment and animal welfare 
and  by  responding  to  a  consumer  demand.  In  this  Action  Plan  the  Commission 
undertook  to  render  these  public  goods  explicit  by  formulating  the  protection  of  a 
high level of  animal welfare as one of the aims of  organic  farming. This particular 
action  has  now  been  realised  by  the  proposal  for  a  (new)  Council  Regulation  on 
organic production and labelling of organic products. This proposal provides for the 
principle that organic farming shall observe the highest level of animal welfare. 

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Communication  from  the  Commission  to  the  Council  and  the  European  Parliament  on  the  European 
Action Plan for Organic Food and Farming (COM(2004) 415 final). 
Council Conclusions of October 2004 on the Communication (2004) 415 final. 

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2. 

ACTION  2  –  GIVING  A  HIGH  PRIORITY  TO  PROMOTING  POLICY-ORIENTATED 
FUTURE  RESEARCH  ON  ANIMAL  PROTECTION  AND  WELFARE  AND  APPLICATION  OF 
THE 3RS PRINCIPLE  

2.1. 

Background 

In line with obligations under the EC Treaty Protocol, Community-funded research 
policies specifically incorporate the need to take animal welfare and ethical concerns 
into account in implementing research policies. It is important that, while addressing 
ethical aspects of new technologies whenever appropriate, developments in the field 
of animal welfare are based on a firm scientific background. This should be the case 
where new biotechnologies (such as animal cloning) have the potential to impact on 
animal  welfare  but  it  is  also  important  in  the  development  of  some  contemporary 
farming  systems  such  as  extensive  or  organic  production.  Therefore,  policies  and 
recommendations  related  to  animal  welfare  should  take  into  account  the  latest 
available scientific information. Correspondingly, where there is a lack of objective 
information needed to develop appropriate policies and recommendations this should 
be used to inform the debate on prioritising new research.  

The  Commission  has  supported  a  number  of  research  projects  on  farm  animal 
welfare10, ranging from sociological studies on consumer behaviour, to farm studies 
of welfare in poultry and veal production11 and, through the Food Quality and Safety 
theme, it currently supports an Integrated Project on “Integration of animal welfare in 
the  food  quality  chain:  from  public  concern  to  improved  welfare  and  transparent 
quality”12. A number of projects dealing with ethical, legal and social aspects of farm 
animal  breeding  and  reproduction  (and  new  reproduction  technologies  such  as 
cloning)  have  also  been  supported.  In  addition,  research  is  supported  under  the 
Global  Change  and  Ecosystems  theme  in  relation  to  intelligent  testing  strategies  of 
chemicals,  and  under  the  Genomics  and  Biotechnology  for  Health  theme  on 
predictive  in  vitro  testing  strategies  for  human  exposure  to  chemicals,  as  well  as 
supporting specific projects on toxicology and endocrine disrupting chemicals. 

The  7th  Framework  Programme  for  Research  and  Technological  Development13  is 
currently under preparation, and is expected to run from 2007 to 2013. The proposal 
highlights animal welfare for livestock species under theme 2 “Food, Agriculture and 
Biotechnology” of the cooperation programme as part of the strategy to develop the 
knowledge  based  bio-economy.  Research  under  the  Framework  Programmes  is 
directed  at  improving  European  competitiveness  and  addressing  relevant  European 
policies.  Research  aimed  at  supporting  policies  is  specifically  included  in  the 
Framework Programme, and a consultation structure exists to prioritise such research 
in relation to the policy Directorates General. Such consultation will be exploited to 
prioritise  relevant  animal  welfare  research  in  the  7th  Framework  Programme.  The 
3Rs activities will be supported in 4 of the 9 thematic priorities: 1. Health, 2. Food, 

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See http://europa.eu.int/comm/research/agriculture/index_en.html for all agriculture related research. 
See http://europa.eu.int/comm/research/quality-of-life/animal-welfare/seminars/pdf/animal-
welfare_en.pdf for review. 
FOOD-CT-2004-506508, “Welfare quality” see www.welfarequality.net. 
http://europa.eu.int/comm/research/future/index_en.cfm 

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agriculture  and  biotechnology,  4.  Nanosciences,  nanotechnologies,  materials  and 
new  production  technologies  and  6.  Environment  (including  climate  change).  In 
addition  technology  platforms,  such  as  those  on  global  animal  health  and  on  farm 
animal  breeding  and  reproduction,  will  provide  additional  input  of  relevance  to 
animal welfare. 

2.2. 

A European Centre or Laboratory for the protection and welfare of animals  

In line with the evolution of animal welfare as a well-established scientific discipline 
consideration will be given to the establishment of a European Centre or Laboratory 
for the protection and welfare of animals. The European Centre/Laboratory could be 
entrusted of a number of key tasks related to the rolling-out of this Action Plan. In 
particular  it  could  be  involved  in  the  standardisation/certification  process  for  new 
welfare  indicators  functional  to  the  implementation  of  Action  3  (Standardised 
Animal Welfare Indicators). Furthermore the Centre could coordinate and stimulate 
research  to  upgrade  existing  standards  and  promote  further  investigation  of  the 
inherent links between animal health and welfare, and the relationships by extension 
with  food  safety  and  quality.  This  aspect  is  relevant  for  the  ongoing  and  future 
discussions  on  animal  welfare  both  in  the  EU  and  at  the  international  level.  The 
Centre could also serve to host a “centre of excellence” to foster the active exchange 
of  information  in  all  areas  of  animal  welfare.  This  could  take  several  forms  from 
basic  understanding  via  targeted  scientific  research  on  animal  welfare,  exchange 
programmes, promotion of alternatives to the use of animal testing, to a more formal 
platform  or  reference  point  for  the  exchange  of  information  and  collection  and 
promotion  of  best  practices.  The  Centre  could  also  facilitate  the  establishment  of  a 
European  label  for  animal  welfare  (see  chapter  3.2)  by  providing  for  a  harmonised 
European set of science-based benchmarks. The Centre could also be involved in the 
preparation  of  socio-economic  studies  and  impact  assessments  relevant  to  the 
implementation of major new animal welfare measures. 

2.3. 

Applying new practical tools to ensure animal welfare  

Research  should  increasingly  focus  on  the  development  of  monitoring  systems  for 
the  implementation  of  animal  welfare  requirements  in  order  to  make  the  official 
controls performed more efficient and proactive. In particular, the control of animal 
welfare  conditions  during  transport  should  be  based  on  the  prevention  of  improper 
transportation  conditions  rather  than  on  the  administrative  penalties  imposed  if  EC 
legislation  is  breached,  often  only  detected  for  instance  at  the  end  of  the  journey. 
This is, in fact, the approach followed in recently adopted legislation (EC Regulation 
1/2005).  However,  the  implementation  of  these  rules  will  call  for  additional  efforts 
by  the  competent  authorities  of  the  Member  States.  Therefore,  the  recourse  to  and 
integration  of  new  technologies  (tracking  systems,  communication  tools  and 
electronic  identification)  should  be  further  explored  in  order  to  identify  methods  to 
support the competent authorities in their tasks.  

2.4. 

Application of the 3Rs principles for animals used for experiments 

Concerning  animal  experimentation  Directive  86/609/EEC  has  encouraged  the 
development of alternatives to animal testing and the European Centre for Validation 
of  Alternative  Testing  Methods  (ECVAM)  was  created  in  1991.  It  directly 
contributes  to  animal  welfare  through  the  application  of  the  3Rs  principle 

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(Replacement,  Reduction  and  Refinement)  and  the  validation  of  alternatives.  This 
implies horizontal support to policy implementation and monitoring in various fields 
of  consumer  protection  and  safety  testing,  such  as  chemicals,  cosmetics,  biocides, 
food,  biologicals  and  medical  devices.  Alternatives  to  animal  experiments  play  an 
increasing  role  in  the  implementation  of  relevant  legislation  although  public  and 
political  pressure  and  the  availability  of  alternatives  are  very  variable  in  different 
sectors.  In  addition  to  animal  welfare  benefits  alternative  methods  also  have  the 
potential  to  provide  robust  information  through  quality-controlled,  state-of-the-art 
tests  which  are  faster  and  less  cost-intensive  than  classical  animal-based  tests.  For 
example,  it  has  been  estimated  that  the  need  (costs  and  animals)  for  testing  under 
REACH14  could  be  reduced  by  up  to  70%  by  using  intelligent  testing  strategies: 
available  and  promised  information,  (Q)SARs,  grouping,  read-across  etc.  (source: 
European Chemicals Bureau and the German Federal Institute for Risk Assessment), 
without compromising the scientific quality of the data obtained. In this context it is 
important  to  note  that  the  concept  of  the  3Rs  is  already  an  integral  part  of  the 
Community’s  approach  to  the  use  of  animals  in  experiments.  The  final  aim  is  to 
replace  animal  experiments  with  methods  not  entailing  the  use  of  an  animal.  For 
those experiments that still need to be carried out using live animals, the objective is 
to reduce the numbers of animals and refine the methods so that they cause less pain, 
suffering  and  distress.  Further  work  will  need  to  be  carried  out  to  reinforce  a  full 
implementation  of  the  3Rs  in  all  areas  of  animal  use,  ensure coherence  between 
Directive  86/609/EEC  and  legislation  requiring  animal  experiments,  as  well  as 
examining  in  more  detail  the  mutual  acceptance  of  data  and  mutual  recognition 
agreements as a means of reducing the numbers of animals used in experiments. The 
installation of a Community Reference Laboratory for the Validation of Alternative 
Testing  Methods  should  further  enhance  the  quality  of  alternative  testing  methods 
and speed up the validation process. 

As  part  of  a  new  initiative  Commission  Vice  President  Günter  Verheugen  and 
Commissioner  Janez  Potočnik  held  a  Conference  on  Alternative  Approaches  to 
Animal Testing on 7 November 2005 in Brussels which was the starting point for a 
European  Partnership  between  the  Commission  and  industry  to  promote  alternative 
approaches  to  animal  testing.  Through  this  partnership,  the  European  Chemical 
Industry  Council  (CEFIC),  the  European  Crop  Protection  Association  (ECPA),  the 
European  Association  for  Bioindustries  (EuropaBio),  the  European  Cosmetic 
Toiletry  and  Perfumery  Association  (COLIPA),  the  International  Association  for 
Soaps, Detergents and Maintenance Product Industry in Europe (A.I.S.E.) as well as 
the  European  Federation  on  Pharmaceutical  Industries  and  Associations  (EFPIA) 
agree to the so-called 3Rs Declaration of Brussels. Based on the Declaration, a task 
force of stakeholders will be established to develop an action programme during the 
first quarter of 2006 identifying concrete short, medium and long term activities. It 
will be designed in the perspective of identifying barriers to progress and will propose 
appropriate  solutions  in  order  to  promote the  development,  validation  and regulatory 
acceptance of alternative approaches, for example 

• 

mapping of research activities and current strategies, 

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Registration, Evaluation, Authorisation and Restriction of Chemicals. 

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• 

• 

• 

• 

cooperation in research to strengthen and enlarge current activities between the 
partners and other relevant stakeholders, 

development of alternative approaches, including intelligent testing strategies, 

practical  mechanisms  to  improve  the  validation  process  using  available 
knowledge, 

practical  mechanisms  to  facilitate  the  regulatory  acceptance  process  of 
alternative approaches. 

An  annual  report  from  the  Partnership  on  the  implementation  of  the  action 
programme will be published for the attention of the Council, European Parliament 
and  other  relevant  stakeholders.  The  first  report  should  be  published  by  December 
2006. 

3. 

ACTION 3 – INTRODUCING STANDARDISED ANIMAL WELFARE INDICATORS 

3.1. 

Background – the integrated approach 

Today the farming of animals is no longer viewed by European consumers simply as 
a  means  of  food  production.  Instead  it  is  seen  as  relevant  to  other  key  social  goals 
such as food safety and quality, environmental protection, sustainability and ensuring 
that animals are properly treated. The link between animal welfare, animal health and 
food  safety  has  also  been  recognised  internationally15.  The  proper  and  uniform 
enforcement of animal welfare legislation is essential and the development of precise 
and  measurable  animal  welfare  indicators  will  facilitate  this  and  increase  the 
efficiency of the controls and standards applied. At present two particular trends are 
noticeable: the coexistence of mandatory or voluntary schemes that are going beyond 
the  minimum  standards  established  in  EU  legislation,  as  well  as  confirmation  from 
market trends that an increase of sales in sustainably derived products is achievable 
in many countries worldwide. Both of these trends are clearly facilitating a continued 
improvement of the animals’ welfare conditions although the provision of additional 
information to consumers is required in order to better understand the added value of 
the  welfare  standards  applied  to  each  product  and  to  facilitate  their  purchasing 
choices.  

3.2. 

An EU label  for animal  welfare – classifying production systems in  relation to 
the welfare requirements applied 

Retailers and producers are increasingly recognising animal welfare as a fundamental 
aspect of product image and quality which creates a need for reliable systems for on-
farm  monitoring  of  animal  welfare  status  and  providing  guarantees  on  appropriate 
production  conditions.  Independent  animal  welfare  audit  programmes  promoted  by 
processors,  retailers  and  multi-national  corporations  are  becoming  increasingly 
commonplace both in the EU and beyond. Various voluntary schemes already exist 
in  different  Member  States  for  the  labelling  of  products  based  on  compliance  with 

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OIE – Terrestrial Animal Health Code 2005 – Appendix 3.7.1 – Guiding principles for animal welfare. 

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various parameters including animal welfare standards. EU marketing standards for 
both eggs and poultry meat already contain various rules relating to animal welfare 
labelling.  

In relation to eggs for example, since 1 January 2004 table eggs shall be marked with 
a  distinguishing  code  that  includes  inter  alia  a  code  indicating  the  poultry-farming 
method used to produce the egg. In order to inform the consumer, an explanation of 
this code is obligatory on the packs in the case of packed eggs and is explained on a 
separate  notice  in  the  case  of  eggs  sold  loose.  Member  States  have  launched 
information  campaigns,  co-financed  by  the  European  Commission,  to  promote 
consumers’  awareness  on  the  meaning  of  the  code.  Moreover,  Commission 
Regulation  (EC)  No 2295/2003  provides  that  “the  marks  stamped  on  eggs  and 
applied  to  packaging  shall  be  clearly  visible  and  legible,  in  accordance  with 
Articles 7 to 10 of Regulation (EEC) No 1907/90”. In the case of table eggs imported 
from  Third  Countries  other  than  those  that  have  an  agreement  of  equivalence  with 
the  EC,  eggs  shall  be  clearly  and  legibly  stamped  in  the  country  of  origin  with  the 
ISO code of the country of origin preceded by: “non-EC standards”.  

The establishment of an EU label for animal welfare is an option to be explored in 
the  near  future  which  could  promote  products  elaborated  under  high  welfare 
standards  thus  facilitating  the  choice  of  the  consumers  between  products  obtained 
with basic welfare standards (the minimum standards laid down in EU legislation) or 
with  higher  standards  (contained  in  voluntary  codes  of  practice  or  Member  States’ 
legislation going beyond EU minimum rules). 

A  clear  label  identifying  the  level  of  welfare  applied  could  represent  an  effective 
marketing tool as currently used for the identification of certain agricultural products 
with  particular  regional  attributes.  Such  a  system  of  classification  will  need  to  be 
based  on  standardised  scientific  indicators  well  recognised  both  in  the  EU  and 
internationally,  and  underpinned  by  research,  in  order  to  facilitate  the  marketing  of 
these  products.  In  order  to  support  the  consumers’  desire  for  choice  with  objective 
and  scientifically  based  information,  and  in  the  light  of  numerous  sometimes 
competing  or  even  confusing  labels  and  standards,  a  specific  European  quality 
standard should be developed based on ongoing research work.  

4. 

ACTION  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 

4.1. 

Background – the shift of public attitudes  

There has been a clear shift of public attitudes towards animals over recent decades 
and  how  animals  are  considered  in  society.  European  consumers  provide  a  good 
example of such a change in mind-set, with many consumers increasingly focussing 
on  “clean  and  green”  production  methods  and  being  attracted  by  the  possible  food 
quality,  safety,  and  animal  health  and  welfare  benefits  of  innovative  production 
systems,  such  as  free  range  or  organic  farming.  The  mindset  of  consumers  and 
producers  has  undergone  a  seismic  shift  from  merely  preventing  cruelty  and 

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avoidable suffering to animals, and instead is becoming focussed on promoting their 
wellbeing and meeting their most important needs. 

4.2.  What has been already accomplished 

Various initiatives have been undertaken to foster a more inclusive and consultative 
approach to policy formulation in the area of animal welfare. This has involved the 
commissioning  of  specific  research  projects  and  surveys  to  investigate  consumers’ 
attitudes  to  animal  welfare.  In  the  area  of  the  protection  of  experimental  animals 
technical  expert  working  groups  have  been  convened  involving  a  wide  range  of 
interested  parties  (scientists,  NGOs,  industry,  government  representatives  etc.). 
Specific  stakeholder  consultation  meetings  were  also  organised  in  preparing  other 
Commission proposals such as for the protection of broiler chickens.  

Concerning  farm  animals  a  recently  established  Advisory  Group  on  the  food  chain 
and animal and plant health will serve as a forum to discuss future policy directions 
with  stakeholders  at  an  early  stage.  Open  internet  consultations  have  also  been 
performed  with  regard  to  issues  concerning  farm  animal  welfare  (e.g.  animal 
transport)  as  well  as  future  European  policy  in  the  area  of  chemicals  and  animal 
testing (REACH). These initiatives have demonstrated the benefits of maintaining an 
open dialogue with interested stakeholders. Such consultative initiatives are fully in 
line  with  the  principles  enounced  in  the  White  Paper  on  European  Governance.  To 
address consumers’ demands animal welfare is also now being fully integrated into 
EU agricultural policy by the EU CAP reforms.  

4.3. 

An informed animal handler/keeper and general public: the best advocates for 
animal welfare  

Consumer and public attitudes and demands for higher animal welfare standards are 
an  important  focus  of  attention  in  animal  welfare  policy  formulation.  However 
consumers  also  need  to  understand  that  implementing  higher  animal  welfare 
standards  could  incur  extra  costs  for  producers  and  possibly  higher  output  prices. 
Studies indicate that many consumers express a willingness to pay a premium price 
for a product emanating from a more animal welfare “friendly” production system16. 

Proper  labelling  of  products  and  provision  of  information  to  consumers  are  vital 
ingredients in this regard. Indeed a sociological study carried out in Europe revealed 
that  a  lack  of  labelling  on  production  methods  was  preventing  consumers  from 
possibly  shifting  towards  such  products17.  It  is  necessary  to  further  investigate  the 
issue of consumer concerns and product labelling and to increase awareness among 
the general public on production methods used for farm animals, alternative practices 
applying  higher  animal  welfare  standards  and  the  consequences  for  the  economic 
viability of the farming activities. The competitive pressures faced by EU producers 
in  the  increasingly  globalised  nature  of  agricultural  trade  should  also  be  taken  into 
account.  

16 
17 

http://europa.eu.int/comm/food/animal/welfare/euro_barometer25_en.pdf 
“Consumer  concerns  about  animal  welfare  and  the  impact  on  food  choice”.  EU  FAIR-CT36-3678. 
Dr Spencer Henson and Dr Gemma Harper, University of Reading. 

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The  Commission,  with  the  support  of  Member  States  and  relevant  stakeholders, 
should urgently define a proper strategy to communicate to citizens on the issue of 
animal  protection  and  welfare.  The  Commission  will  also  give  consideration  to  the 
establishment  of  a  specific  Information  Platform  on  animal  welfare  in  order  to 
important 
nurture  further  dialogue  and  exchange  of  experiences  between 
stakeholders  in  the  field  of  animal  welfare.  Concerning  farm  animals  for  example 
such  an  initiative  allied  with  the  tools  of  improved  information  to  consumers  and 
clearer marketing-labelling of products offers the prospect of a virtuous cycle where 
consumers  create  a  demand  for  food  products  sourced  in  a  more  animal  welfare 
friendly  manner  which  is  transmitted  through  the  supply  chain  back  to  the  primary 
producer,  who  may  be  able  to  receive  a  premium  price  for  their  product  and  thus 
recoup a portion of any associated higher production costs. 

5. 

ACTION  5  –  CONTINUE  TO  SUPPORT  AND  INITIATE  FURTHER  INTERNATIONAL 
INITIATIVES  TO  RAISE  AWARENESS  AND  CREATE  A  CONSENSUS  ON  ANIMAL 
WELFARE 

5.1. 

Background 

At  present  there  is  a  limited  international  consensus  on  the  relative  importance 
accorded  to  animal  welfare  and  the  measures  in  place  in  the  EU  cannot  be  readily 
compared with the standards in Third Countries. In addition differing cultural factors 
and traditional practices need to be borne in mind and ethical considerations clearly 
have  an  important  influence  on  the  farming  and  keeping  of  animals.  The  EU  has 
actively participated in various international fora as a means of increasing awareness 
and  building  consensus  on  the  importance  of  animal  welfare.  Since  the  1960’s  the 
Council  of  Europe  has  been  actively  working  for  the  protection  of  animals,  within 
the  framework  of  various  Conventions.18  The  Community  is  party  (or  observer)  to 
several  of  the  Council  of  Europe  Conventions  aimed  at  improving  the  welfare  of 
animals, including areas of animal experimentation, transport, farming and slaughter. 
There are several ongoing activities at the Council of Europe where the Community 
plays an active role. 

Recent  and  future  enlargements  of  the  EU  also  require  close  attention  in  terms  of 
their  consequences  for  the  Community’s  animal  welfare  policies.  A  dialogue  is 
needed with countries such as Bulgaria, Romania, Turkey and Croatia on this issue, 
as  well  as  other  countries  in  the  Western  Balkans  and  those  covered  under  the 
European  Neighbourhood  Policy  (ENP)  for  example.  Various  instruments  are 
available  to  facilitate  the  implementation  of  the  Community’s  rules  by  accession 
countries  (e.g.  TAIEX  seminars  to  provide  technical  assistance  and  information 
exchange and facilitate the sharing of experience and knowledge). 

A  key  issue  for  a  Commission  Communication  of  200219  on  animal  welfare 
legislation  and 
in  Third  Countries  was  whether  competitive 
disadvantages  arise  from  disparities  in  animal  welfare  measures.  Starting  from  the 
assumption that competitive distortions (whether to the advantage or disadvantage of 

the  situation 

18 

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European  Conventions  for  the  protection  of  pet  animals,  animals  used  for  experimentation,  kept  for 
farming purposes, during transport and for slaughter. 
http://europa.eu.int/comm/food/animal/welfare/references/2002_0626_en.pdf 

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EU  producers)  arising  from  differences  in  standards  have  the  clear  potential  to 
undermine  higher  animal  welfare,  the  report  investigates  a  number  of  channels  to 
prevent such a development including: market mechanisms, dialogue at international 
level, promotion of animal welfare standards in trade arrangements, improvement of 
labelling  regimes,  strengthening  the  position  of  animal  welfare  in  EU  agricultural 
policy etc. 

The EU has advanced considerably on the strategic channels identified in that report 
which have generally yielded concrete results and still represent a valuable approach 
in  order  to  raise  animal  welfare  awareness  internationally  and  facilitate  the 
application  of  improved  animal  welfare  standards  in  the  EU.  It  is  clear  that  a 
monitoring instrument is required to compare compulsory animal welfare standards 
applied  in  the  EU  with  those  applied  in  Third  countries  in  order  to  analyse  any 
possible market effects. There is a risk that demanding animal welfare standards in 
some  countries  may  lead  to  activities  being  re-located  to  countries  applying  lower 
standards, or that such countries could be at an unfair competitive advantage. 

5.2.  Working with the World Organisation for Animal Health – OIE 

Given  its  global  membership of 167 countries, its long-standing track-record in the 
development of animal health standards and the intrinsic links between animal health 
and welfare, the OIE is very well-placed to build international consensus on the issue 
of animal welfare. OIE Member Countries requested that the OIE develop a detailed 
animal  welfare  vision  and  strategy  and  in  May  2002  a  specific  resolution  was 
adopted  which  mandates  the  OIE  to  elaborate  science-based  recommendations  and 
standards  on  animal  welfare.  Important  recent  achievements  have  included  the 
organisation  of  the  first  OIE  Global  Conference  on  Animal  Welfare  in  February 
2004,  the  adoption  in  May  2004  of  guiding  principles  on  animal  welfare  and  the 
adoption in May 2005 of specific animal welfare guidelines. 

As recognised in a resolution from the Agriculture Council of Ministers adopted in 
December 2002 the OIE is the relevant body for developing international standards 
and guidelines on animal welfare and the Community wishes to actively promote the 
development  of  global  animal  welfare  standards  and  guidelines.  The  OIE,  by  its 
Resolution No. XVII of 2004, also established a World Animal Health and Welfare 
Fund  the  purpose  of  which  is  to  implement  action,  scientific  research  and  training 
programmes,  organise  seminars,  conferences  and  workshops,  produce  information 
media and support OIE Strategic Plans and activities of Developing Countries in the 
fields within the OIE’s remit, including the promotion of animal welfare. 

5.3. 

Promoting animal welfare in the EU’s multilateral and bilateral relationships 

In  the  area  of  trade  and  external  relations  the  Commission  has  promoted  the  EU 
perspective  on  the  importance  of  animal  welfare,  including  by  means  of  a  specific 
submission to the WTO on animal welfare and agricultural trade20. Animal welfare is 
not explicitly mentioned in GATT 1994 or in other WTO agreements, and there has 
not yet been a ruling under the dispute settlement procedure, which would clarify the 
position  of  animal  welfare  under  the  WTO.  The  EU’s  submission  stated  inter  alia 

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COM(2002) 626 final, see Annex. 

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that  “the  objective  of  the  EC  in  raising  animal  welfare  issues  in  the  context  of  the 
WTO negotiations is not to provide a basis for the introduction of new types of tariff 
barriers”  but  “to  promote  high  animal  welfare  standards,  to  provide  clear 
information to consumers, while at the same time maintaining the competitiveness of 
the EC farming sector and food industry”. The Communication highlighted that trade 
protectionism  should  be  avoided  while  ensuring  that  trade  does  not  undermine  the 
EU’s efforts to promote animal welfare within its own territory. While the Sanitary 
and Phytosanitary (SPS) Agreement deals largely with the spread of animal and plant 
diseases  and  food  safety  issues  the  Technical  Barriers  to  Trade  (TBT)  Agreement 
provides  a  list  of  legitimate  objectives  when  taking  measures.  However  it  appears 
difficult to consider animal welfare in the context of these agreements unless the link 
between  poor  animal  welfare  and  associated  risk  to  the  animal  health  status  of  the 
importing  country  could  be  clearly  demonstrated.  The  relevance  of  animal  welfare 
within  the  scope  of  Article  XX  of  GATT  also  needs  to  be  evaluated.  In  particular 
when  there  is  a  risk  that  market  access  may  be  jeopardised  by  demanding  animal 
welfare  standards,  the  impact  assessment  of  any  relevant  policy  proposals  should 
include an analysis of the animal welfare standards and practices applied in the Third 
countries  most  likely  to  be  affected  in  such  situations.  As  a  general  principle  it  is 
clear that a WTO member may act to protect animals within its own territory but in 
general it should not impose these animal welfare rules in the territory of exporting 
countries  or  those  located  outside  its  territorial  jurisdiction.  In  the  Doha  WTO 
negotiations  the  EU  envisages  to  address  animal  welfare  concerns  within  the 
Domestic Support pillar. The EU Rural Development Regulation EC No 1257/99 as 
amended by Regulation No 1783/2003 under the CAP reform in 2003 also allows for 
payments to farmers meeting higher standards, and could be applied from 2005/2006. 
Any  such  payments  to  farmers  would  need  to  be  administered  in  compliance  with 
WTO international trade rules.  

Complementary to the initiative of the OIE, the Community has started to negotiate 
animal  welfare  standards  to  be  incorporated  into  bilateral  agreements  between  the 
EU  and  Third  Country  suppliers  of  animals  and  animal  products  (e.g.  Chile  and 
Canada). The EU has also actively promoted consideration of animal welfare within 
the  framework  of  veterinary  agreements  with  other  Third  Country  trading  partners. 
Internationally  agreed  OIE  animal  welfare  guidelines  offer  an  ideal  basis  for 
discussion and consensus with such trading partners. For example in the context of 
the  EC-Chile  SPS  Agreement  a  specific  Working  Group  for  Animal  Welfare  has 
already been established to further the aims of reaching a common understanding on 
the  application  of  animal  welfare  standards,  raising  knowledge  and  exchanging 
scientific expertise. To this end a number of scientific seminars have been organised 
and  further  initiatives  are  planned  in  the  area  of  knowledge/training  activities  and 
developing future strategies in the field of veterinary education, including e-learning 
initiatives.  

5.4. 

Raising  knowledge  on  animal  welfare  in  Developing  Countries  and  creating 
opportunities for trade 

A recent seminar organised by various animal protection organisations as part of the 
Commission’s  Civil  Society  Dialogue  considered  the  issue  of  “Sustainable 
agricultural  production  and  good  animal  welfare  practice:  trade  opportunities  for 

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Developing  Countries21.”  The  seminar’s  conclusions  and 
recommendations 
considered  that  extensive  and  sustainable  agricultural  systems,  with  good  standards 
of  animal  welfare,  are  still  the  predominant  form  of  livestock  production  in  many 
Developing Countries. 

Initiatives to dialogue with countries who apply high animal welfare standards need 
to  be  investigated  in  more  detail  by  the  Community  in  order  to  develop  efficient 
partnerships with governments and stakeholders involved. Regulation (EC) 882/2004 
provides  for  the  involvement  of  representatives  from  Developing  Countries  in 
training courses organised for the staff of the Member States’ competent authorities 
responsible  for  implementing  Community  animal  welfare  rules.  Most  WTO 
Agreements  include  special  provisions  to  allow  Special  and  Differential  Treatment 
(SDT) for Developing and Least Developed Countries, by giving wherever possible 
longer  time-frames  for  compliance  with  the  implementation  of  new  SPS  measures 
which impact on products of interest to them. In some cases this SDT is provided by 
granting  specified  time-limit  exemptions  on  the  obligations  mentioned  in  the 
Agreements  and  by  providing  trade-related  technical  assistance  (TRTA)  with  the 
main  objective  being  to  maintain  and  expand  market  access  opportunities  for  their 
exports. The Commission has engaged in TRTA projects for Developing Countries, 
including assisting the attendance of experts from Developing Countries to meetings 
of  the  different  international  standard  setting  organisations  which  are  officially 
recognised  as  such  by  the  WTO  (in  the  case  of  the  OIE  this  is  considered  by  the 
WTO  as  the  relevant  international  organisation  for  animal  health,  and  the  OIE  has 
also recently elaborated guidelines for animal welfare) as well as sending technical 
experts  from  Member  States  to  Developing  Countries.  Such  collaboration  and  the 
organisation  of  training  where  technical  experts  of  Developing  Countries  can  also 
participate are to be welcomed. 

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http://trade-info.cec.eu.int/civilsoc/meetdetails.cfm?meet=11116#parts 

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