Why dog breeding laws in Ireland need reform

Dog breeding is lawful. There is consumer demand for puppies, and responsible small-scale breeders maintain high standards. But scale matters. When breeding moves from domestic settings into industrial operations housing dozens — or hundreds — of breeding females, the risks to welfare increase dramatically.

The consequences extend beyond the sheds. The ready availability of commercially produced dogs influences pricing, encourages impulse purchasing, fuels online sales and contributes to abandonment when expectations are unmet. Rescue centres across the country feel that pressure daily. The problem is not confined to individual establishments; it shapes the wider culture of dog ownership in Ireland.

This situation did not emerge overnight. In Britain, the Breeding of Dogs Act 1973 introduced licensing requirements for breeding establishments more than fifty years ago. By contrast, Ireland did not enact comparable legislation until the Dog Breeding Establishments Act 2010 came into force almost four decades later.

By 2010, high-volume breeding was normalised. Ireland had developed a significant export trade in puppies, particularly to the UK. The 2010 Act was intended to regulate the sector. However, because it was introduced after the industry had expanded, authorities have been playing catch-up ever since.

As of 2018, 91 commercial dog breeding establishments were registered in Ireland. Twenty were licensed to keep up to 100 breeding females or more. The largest remains registered for up to 300 breeding females. Whatever the legal position, serious questions must be asked about whether the physical and psychological needs of dogs can be met at that scale.

Dogs are not livestock. They are highly social companion animals with complex behavioural needs. Exercise, enrichment, human interaction, early socialisation and stable environments are fundamental to their wellbeing. Replicating those conditions consistently in large, production-driven establishments is inherently challenging. Weaknesses in the legislative framework compound the problem.

While the Dog Breeding Establishments Act 2010 provides for inspection and enforcement, statutory tools are limited. Improvement Notices can be issued where deficiencies are identified, but they have no effect while an appeal is ongoing. More significantly, failure to comply with an Improvement Notice is not, in itself, a criminal offence.

Closure Notices may only be served where an establishment poses a “serious and immediate threat” to public health or animal welfare. That is an extremely high threshold. Welfare standards should not have to deteriorate to the point of serious harm before meaningful intervention is possible. The Act also lacks clear seizure powers. Instead, operators may be directed to arrange rehousing at their own expense.

Even local authorities committed to improving standards have found the legislation difficult to use effectively. Inconsistent enforcement has played a role, but structural weaknesses in the law itself are equally significant.

International research raises further concerns. A 2017 study by Franklin McMillan in the United States found that dogs bred in high-volume commercial establishments showed increased rates of behavioural and emotional problems compared to dogs bred in domestic environments. While Irish data remains limited, these findings align with long-standing concerns expressed by veterinary surgeons and welfare organisations.

So what can be done?

The NSPCA believes a full review of the Dog Breeding Establishments Act 2010 is overdue. Responsibility for the Act has recently transferred to the Department of Agriculture, Food and the Marine, creating an appropriate policy home for reform. The Social Democrats’ Dog Welfare (Amendment) Bill, introduced by Jennifer Whitmore, received cross-party support in the Dáil. The Government agreed to a nine-month amendment period for consultation and the development of a new Animal Welfare Strategy 2026–2030.

The NSPCA welcomed Deputy Whitmore’s Bill and supports its provisions, including a cap on the number of dogs permitted on any one premises. Such a measure was recommended by the Joint Committee on Agriculture, Food and the Marine in its 2022 report on issues impacting dog welfare. International precedent exists: in November 2024, New South Wales introduced a cap of 20 adult female dogs per premises.

The NSPCA also advocates for a dedicated and properly resourced national Inspectorate with responsibility for regulating dog breeding establishments. Oversight currently rests largely with local authorities whose resources and enforcement priorities vary. A specialist Inspectorate operating to consistent national standards would improve uniformity, build technical expertise in canine welfare, and ensure inspections are proactive rather than reactive.

However, legislation alone will not solve this issue. Responsibility also rests with us as dog owners and prospective dog owners. Dogs should be neutered unless there is a clear veterinary or medical reason not to do so. Responsible ownership includes preventing accidental litters and reducing the number of unwanted dogs entering the system.

Prospective owners must exercise caution and ethical judgement when sourcing a puppy. That means asking questions, seeing where and how the dog was bred, and being prepared to walk away if standards do not appear satisfactory. Convenience and low cost should never outweigh welfare considerations. There are thousands of dogs currently in rescue centres across Ireland, most healthy, sociable and in need of permanent homes. Anyone considering bringing a dog into their life should consider adoption before purchasing a puppy.

Improving canine welfare in Ireland requires both stronger legislation and more responsible consumer choices. Demand drives supply. If we want to reduce the harms associated with large-scale breeding, we must also examine our own role in sustaining the market. For a country that prides itself on its love of dogs, that responsibility belongs to all of us.