USDA signals review of breeding dog welfare rules; advocates urge stronger standards

The federal government is asking the public whether the rules governing how commercial dog breeders must treat their animals are good enough — and humane advocates have a blunt answer ready: they are not.

The USDA joined other agencies to launch a coordinated effort on chronic violators of the Animal Welfare Act at dog breeding facilities. Actions include enforcement measures. Alongside the effort, USDA issued a Request for Information seeking public input on welfare standards for breeding female dogs — covering veterinary care, exercise, and socialization — according to USDA.

Humane World for Animals and Humane World Action Fund — the organizations formerly known as the Humane Society of the United States and the Humane Society Legislative Fund — welcomed the announcement but made clear they see it as a floor, not a ceiling.

A national discussion about updating standards of care for dogs in commercial breeding facilities is welcome, and we are hopeful that the USDA's announcement brings that about, because even if every facility were 100% compliant with current standards, many dogs would still be living in subpar conditions.— John Goodwin, Senior Managing Director, Puppy Mills and Equine, Humane World for Animals

That critique cuts to the heart of what advocates say is the structural problem with current Animal Welfare Act regulations for breeders: the rules set a survival baseline, not a welfare standard. Under existing federal minimums, a dog can legally spend its entire life in a cage just six inches longer than its body, with minimal exercise or enrichment. Breeding females can be cycled through litter after litter without a mandatory pre-breeding veterinary exam.

Breeding females should be examined by a licensed veterinarian before each breeding attempt, and dogs shouldn't spend their lives in cages only six inches longer than their bodies with minimal daily exercise or enrichment. Our federal regulations must reflect scientifically grounded welfare standards that give every dog a chance at a healthy life.— Dr. Lorna Grande, Program Director, Humane Veterinary Medical Alliance

The RFI process — a formal mechanism for gathering public input before potential rulemaking — is significant because it signals the agency is at least open to rewriting the rules, not just enforcing the old ones more aggressively. But an RFI carries no guarantee of final regulations, and the gap between soliciting comments and issuing binding rules can stretch for years.

We're encouraged to see the administration taking a more coordinated, multi-agency commitment to addressing puppy mill cruelty. Updating and strengthening standards of care for breeding dogs in federally licensed facilities, especially around veterinary oversight, as well as looking at the exercise and socialization needs of all dogs, is essential. Real progress will come from turning these commitments into actionable policy reforms that make humane treatment the rule, not the exception.— Naomi Maxwell, Regulatory Specialist, Humane World Action Fund

The public response has been substantial. The Horrible Hundred report, published each year, documents violations and welfare concerns at a sampling of 100 problem breeding operations and has repeatedly prompted action at the state, local, and federal levels, according to humaneaction.org.

The state-level landscape has shifted considerably in recent years even as federal rules have stagnated. As of the end of 2025, eight states and more than 500 communities had banned the sale of puppy mill puppies in pet stores, according to humaneworld.org — a wave of local action that advocates say demonstrates public appetite for stronger standards at every level of government.

What advocates are watching for now is whether the RFI translates into a Notice of Proposed Rulemaking — the formal next step that would put specific new standards out for public comment before they could become law. Humane World has championed bipartisan federal legislation including the Puppy Protection Act and the Better CARE for Animals Act, which would strengthen enforcement and interagency coordination, according to humaneaction.org. Neither has yet been enacted.

The Animal Welfare Act, which governs commercial dog breeders who sell to pet stores or brokers, has been in place since 1966. USDA's Animal and Plant Health Inspection Service enforces it through inspections and licensing. Critics have long argued that the agency is underfunded for the task and that the standards themselves lag far behind modern veterinary and behavioral science on what dogs need to thrive.

Why it matters — For the first time in a generation, federal rules governing how millions of breeding dogs must be treated are on the table — but whether the review produces binding change, or stalls at the comment stage, will determine whether compliance at licensed facilities finally means humane conditions.

Reported by humaneaction.org, usda.gov, aphis.usda.gov, humaneworld.org