Document type: Answer from the European Commission to question E-004663/2025
Authors: Question: Daniel Buda (EPP). Answer: Mr. Várhelyi on behalf of the European Commission
Question in French (translation): The economic challenges of complying with EU animal welfare rules
The study supporting the impact assessment for the revision of EU legislation on the welfare of animals during transport (Milieu SRL, 2023) concluded that compliance with Regulation No. 1/2005 remains "economically unattractive." Despite this, the Commission has presented a proposal for a regulation with high implementation costs. The impact assessment of the new legislative proposal shows that limiting journey times and increasing the space available will result in annual costs of €642 million for the pig sector, €35 million for laying hens, €914 million for broiler chickens, and €1,069 million for cattle. Added to this are the costs of installing feeding systems for calves, which would amount to €3 million per year for transporters, as well as the additional costs of ensuring long-distance transport conditions based on weather forecasts, which would amount to €5 million for the transport of broiler chickens, €3 million for pigs, €2 million for cattle, and €1 million for calves.
1. How does the Commission intend to ensure better compliance with stricter animal welfare requirements during transport if compliance with the current rules is already "economically unattractive"?
2. Will it be possible to use the European Competitiveness Fund to help the sector comply with the provisions of future European animal welfare legislation?
Answer in English: 1. The study found that compliance with Regulation (EC) No. 1/2005 is "economically unattractive" due to inconsistent enforcement and low levels of penalties in Member States, which gives a competitive advantage to operators who do not comply with the rules. The Commission's proposal aims to reverse this trend by introducing clearer rules and harmonizing enforcement tools and penalties, thereby ensuring better compliance and fair competition. With regard to costs, the impact assessment distinguishes between costs incurred by farmers and those incurred by transporters and other sectors. The specific costs related to vehicle upgrades, available space, and weather-dependent logistics planning are operational investments for transport operators. To mitigate these impacts, the proposal provides for transition periods. Given that the most significant economic impacts identified relate to available space, the Commission has shown willingness to discuss adjustments to these rules with the co-legislators in order to strike a balance between economic impacts and improving animal welfare.
2. The European Competitiveness Fund will only support activities that contribute to its relevant objectives. In sectors such as agriculture and the bioeconomy, support is provided for the development, implementation, monitoring, and enforcement of relevant Union legislation and policies. This includes support for the relevant institutions, cooperation between national authorities and with stakeholders, studies, and the development and deployment of tools and infrastructure. Other EU funds are also relevant. For farmers, funding is available under the Common Agricultural Policy. For transport operators, which are generally small and medium-sized enterprises (SMEs), the InvestEU "SME window" facilitates loan guarantees.
Question: The study supporting the impact assessment for the review of EU legislation on animal welfare during transport (Milieu SRL, 2023) concluded that compliance with Regulation 1/2005 remains "economically unattractive." Despite this, the Commission has put forward a proposal for a regulation that has high implementation costs. The impact assessment for the new legislative proposal shows that limiting travel times and increasing available space will result in annual costs of EUR 642 million for the pig-rearing sector, EUR 35 million for laying hens, EUR 914 million for broilers, and EUR 1,069 million for cattle. On top of this, the installation of feeder systems for calves would cost transporters EUR 3 million annually, and then come the additional costs of ensuring long-distance transport conditions based on weather forecasts, which will cost EUR 5 million for the transport of broilers, EUR 3 million for pigs, EUR 2 million for cattle, and EUR 1 million for calves.
1- How does the Commission expect to ensure greater compliance with stricter animal welfare requirements during transport if compliance with the current rules is already 'economically unattractive'?
2- Will it be possible to use the European Competitiveness Fund to help the sector comply with the provisions of future EU animal welfare legislation?
Response in English (original): 1. The study[1] found that compliance with Regulation (EC) No 1/2005[2] is ‘economically unattractive’ because of inconsistent enforcement and low sanction levels across Member States, granting non-compliant operators a competitive advantage. The Commission’s proposal aims to reverse this dynamic by introducing clearer rules, harmonizing enforcement tools and sanctions, thus ensuring better compliance and fair competition. Regarding costs, the Impact Assessment[3] distinguishes between costs borne by farmers and those borne by transporters and other sectors. Specific costs for vehicle improvements, space allowance, and weather-dependent logistical planning are operational investments for transporters. To mitigate these impacts, the proposal includes transition periods. As the most important economic impacts identified relate to space allowance, the Commission has shown openness to discuss with the co-legislators adaptations to these rules to balance economic impacts and animal welfare improvements.
2. The European Competitiveness Fund[4]will only support activities contributing to its relevant objectives. In sectors such as agriculture and the bioeconomy, support is foreseen for the development, implementation, monitoring, and enforcement of relevant Union legislation and policies. This includes supporting relevant institutions, cooperation between national authorities and with stakeholders, studies, and the development and deployment of tools and infrastructure. Other EU funds are also relevant. For farmers, funding is possible under the Common Agricultural Policy. For transporters, which are generally small and medium-sized enterprises (SMEs), the "SME window" of InvestEU[5] facilitates loan guarantees.
[1] Study supporting the impact assessment accompanying the revision of EU legislation on the welfare of animals during transport https://op.europa.eu/en/publication-detail/-/publication/ad660d3f-94e2-11ee-b164-01aa75ed71a1/language-en
[2] Council Regulation (EC) No. 1/2005 of December 22, 2004, on the protection of animals during transport and related operations and amending Directives 64/432/EEC and 93/119/EC and Regulation (EC) No. 1255/97 OJ L 3, January 5, 2005, pp. 1–44. ELI: http://data.europa.eu/eli/reg/2005/1/oj
[3] https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:52023SC0401
[4] COM(2025) 555 https://commission.europa.eu/publications/european-competitiveness-fund_en
[5] https://single-market-economy.ec.europa.eu/access-finance/investeu/investeu-fund-sme-window_en
