Standards and Guidelines for Breeding Dogs and Cats 2026

Commercial breeding facilities, high volume breeders, and professional kennels can all fall under the term puppy mill. We chose the term commercial breeding facility as it reflects the true functionality of a facility.

To define a commercial breeding facility: “any breeding dog facility that keeps so many dogs that the needs of the breeding dogs and puppies are not met sufficiently to provide a reasonably decent quality of life for all of the animals.” (1)

By this definition you can have 10 dogs and be a commercial breeding facility.

The term commercial relates to a profit driven facility, where profit is the primary goal.

The Government is seeking public consultation for Breeder Reforms. Your personal feedback can be submitted via yourSAy – submissions close 13 February 2026.

Below are our opinions on parts of the draft that should be addressed.

DRAFT: Standards and Guidelines for Breeding Dogs and Cats 2026

Purpose - to uphold a high standard of animal welfare in line with public expectations.

Proposed limits: Maximum number of fertile females (dogs and cats combined) per breeding program – 50. Maximum number of fertile females (dogs and cats combined) per breeding facility – 20.

The values and beliefs held by the wider community would not share the proposed limits. With evolving societal awareness, thanks to organisations like Oscars Law, our community has a better understanding of what is ‘ethical’ breeding. For further information, review the conclusion.

Licensing of breeders of dogs and cats: A person must not breed a dog or cat unless the person is the holder of a breeder's licence that authorises the person to breed.

Breeders who already provide reasonable care would apply for a license. The breeders who are mass breeding in filth and in isolation will not. So, a license does not provide a safety net for vulnerable dogs and cats in the very places this Act is trying to prevent.

The Act does not exempt friends and family members from holding licenses, allowing a group of people to breed over multiple sites and potentially funnelling money. This loophole allows the ability for a commercial dog breeding operation to exist.

Neither the applicant or current spouse/ partner has been convicted of prescribed offences in the past 5 years.

People convicted of a prescribed offence (ill treatment of an animal causing harm or death) can apply for a license after 5 years of being found guilty of a prescribed offence.

The objective to the Animal management section supports quality of life where animals are protected from distress, injury, illness and disease, and provided with appropriate food, water, exercise, living conditions and are allowed freedoms to express normal behaviours.

Normal behaviour in dogs includes playing, licking, sniffing, barking, seeking affection, tail wagging, exploring and so forth. How do dogs have the freedom to express normal behaviours when they are contained to be bred for nearly four years?

Animals that may be distressed by the presence of other animals (of the same or a different species) must be housed in a manner that prevents visual contact and minimises or reduces their ability to hear and to smell the other animals.

There is a clear distinction between stress and distress. If an animal is in distress, they should be removed from the breeding program. Promoting isolation of an animal to keep them in a breeding program, does not embrace animal welfare.

Minimum daily exercise for dogs should be of the following duration: dogs over 16 weeks of age - two sessions of at least 30 minutes each session.

It is unclear how a dog can express normal behaviours on an ongoing basis, if at a minimum, they will have 60 minutes a day out of their enclosure over a 4 year period.

A bitch must not be permitted to have more than five litters over her lifetime.

A bitch must not be permitted to have more than two litters every eighteen months.

From the age of one, a dog can have five litters, and she can complete her breeding confinement after 45 months. Within the rules of the Act, she will be released from the breeding program just before the age of five.

Male dogs should not mate with more than one female dog at a time and should have at least 2 rest days every 60 days.

A male dog can be made to mate for 58 days straight.

A queen must not be permitted to have more than five litters over her lifetime.

A queen must not be permitted to have more no more than three litters every two years.

From the age of one, a cat can have five litters, and she can complete her breeding confinement after 40 months. Within the rules of the Act, she will be released from the breeding program just after the age of four.

With a surplus of outdoor owned cats, semi owned cats, community cats, and community kittens with no legislation to support trap, neuter, release – why does the Act support a maximum of five litters?

Male cats more than ten years of age should not be mated unless it is appropriate to do so.

Confining male cats to a breeding program can last nine years.

Record keeping – a missed opportunity

The objective to record keeping is for facilities operate in a transparent, professional and systematic manner, utilising record keeping and other documentation to ensure that standards of animal welfare are maintained that meet community expectations.

Unfortunately, records are only produced at the request of an authorised officer. Records are not for public viewing, making this a lack of transparency and accountability for animal data.

Lucy Hood, Environment Minister (FIVEaa 15 January 2026 13.39-13.50) New breeder licencing Scheme.

“We’ve also significantly increased the funding to the RSPCA under this government. In the 2024/’25 State Budget we increased it – they were provided $1m per year, which is continuing, but actually provided more than $16m over four years as well to the RSPCA.”

Conclusion

The Dog and Cat Management (Breeder Reforms) Amendment Act 2025 does apply robust regulations for dog and cat breeders. However, some issues lay with animal limits, convicted criminals, licensing, potential loopholes, enforcement and animal welfare.

Many of us focus on physical harm and not psychological harm of animals that have been held captive in commercial breeding facilities.

Dr. Franklin McMillan DVM conducted a study on “puppy mill dogs vs pet dogs”.

Dr. McMillan collected data on behavioural characteristics of 1169 dogs that were used in commercial breeding facilities and were rehomed into domestic homes. The mean length of time in the household post adoption was two to three years, ample time for a dog to adjust. Listed are several of his findings of puppy mill dogs in comparison to pet dogs. (1)

-          Fear of unfamiliar people 215% increase

-          Non social fear 128% increase (fear of objects)

-          Fear of dogs 35% increase

-          Sensitivity to touch 96% increase

-          Stares at nothing 53% increase

-          Trainability 26% decrease

Dr. McMillan discussed that these dogs developed long term fears and phobias, compulsive behaviours, possible learning deficits and were often unable to cope. (2)

By reducing the maximum number of litters a female dog or cat can be made to produce, would reduce her time in captivity and therefore reduce her risk of developing psychological harm. This Act concentrates on physical harm, but disregards psychological harm.

The breeders licence funds are kept by the Dog and Cat Management Board, the RSPCA SA have been awarded an increase in funding (albeit overdue), but the Councils are given support and power to enforce the Law. There has been no discussion about financial support for Councils regarding additional employees, resources, and training.

Commercial breeding facilities that comply with the Act will register for a licence. But the filth farms that breed dogs on isolated properties will not apply for a licence. The slogan ‘banning puppy farms’ is misleading, it is more about permitting commercial breeding facilities.

1. Dr. Franklin D. McMillan, DVM, DACVIM, Director of Well-Being Studies at Best Friends Animal Society, presents "Physical and Psychological Health Issues in Puppy Mill and Hoarding Rescues" at the University of Florida's Maddie's Shelter Medicine Conference 2012

2. Franklin D. McMillan, Deborah L. Duffy, James A. Serpell. Mental health of dogs formerly used as ‘breeding stock’ in commercial breeding establishments. Applied Animal Behaviour Science, Volume 135, Issues 1–2, 2011, Pages 86-94, ISSN 0168-1591, https://doi.org/10.1016/j.applanim.2011.09.006.