Implementation of Bovine Electronic Identification (Bovine EID) in Wales

This consultation seeks your views on proposed implementation of Bovine Electronic Identification (Bovine EID) in Wales. The proposals in this consultation focus on implementing Bovine EID in Wales using Low-Frequency (LF) ear tags. We welcome responses from those affected by this proposal and we will consider all public responses received.

Consultation is an essential part of the policy-making process. It gives us an opportunity to collect evidence, consider your opinion and utilise expertise on a proposed area of work, which assists in developing a way forward. 

Responses received will be analysed and used as part of the decision-making process, along with a range of other available information and evidence. Following closure of the consultation and after taking time to consider responses, we will publish a report summarising the consultation results and setting out the proposed way forward.

The Welsh Government also welcomes views on any effects the options may have on opportunities to use the Welsh language and on ensuring the Welsh language is treated no less favourably than English. Responses to this consultation are also welcomed in the Welsh language.

The Welsh Government is seeking feedback from the farming community on the proposed implementation of Bovine Electronic Identification (Bovine EID) in Wales, focusing on the use of Low-Frequency (LF) ear tags. Responses from all stakeholders are welcomed and will help shape the final approach. 

The key points to this consultation are:

• for all calves born after the introduction of Bovine EID, at least one ear tag applied must be an official EID tag
• implementation in Wales is not expected to be until 2027 at the earliest.
• Tag frequency for mandatory Bovine EID is to be agreed
• bovine EID tags can be read visually and will be available as a flag, button or metal tag type
• cattle identification numbering format will change with the introduction of Bovine EID
• bovine EID tags will be WYSIWYG (What You See Is What You Get -  number programmed on the chip will be the same number printed on the tag)
• no current plans to retag the existing herd
• working with tag suppliers to agree timelines for official EID tag availability

Your input is valuable in shaping the future of cattle identification in Wales.

Discussions surrounding the policy development and the implementation of Bovine EID in Wales have been ongoing since August 2011, when the European Commission adopted proposals on ‘Electronic identification of bovines to further strengthen food safety and animal health in the EU’. 

All livestock in Wales, are required to be uniquely identified with official ear tags (except pigs) and have their movements accurately recorded and traced throughout their lives. Within the EU, livestock ear tags are required to conform to international technical standards, including the International Organisation for Standardisation (ISO) standards for identification codes. 

The current cattle identification requirements in Wales are set out in the Cattle Identification (Wales) Regulations 2007. Livestock identification must be complied with by law and is integral for disease prevention, control and eradication and the protection of public health.

Currently all cattle must be identified with a tag in each ear, one is known as a primary tag, the other is the secondary tag. This will continue under Bovine EID.  Each animal has an official unique identification number which is assigned to it at birth (‘individual ID number’).  This number is printed on both tags.

Bovine EID will require one ear tag to contain an EID electronic chip encoded with the animal’s individual ID number.  The animal’s individual ID number will also be printed externally on the ear tag. The type of EID tag used can be either a flag, button, metal or a tissue testing tag.

The primary tag may be put in either ear and must be a distance-readable, large or medium sized tag. The secondary tag must have the same information as the primary tag but may also contain management information. The secondary tag must be in the other ear to the primary tag and can be a flag, a button or a metal tag. For calves born after the introduction of Bovine EID, at least one ear tag applied must be EID. The keeper can choose if this is the primary or secondary tag. Feedback from industry stakeholders suggests allowing keepers this flexibility will be welcomed.

Previous consultation 2021

Following a 2021 public consultation on Changes to Livestock Identification, Registration and Movement Reporting together with the proposed implementation of Bovine Electronic Identification (Bovine EID) , the previous Minister announced her intention for the proposals that received support to be taken forward by form of legislative amendments and enabled through the transition to EIDCymru for cattle and pigs.

Bovine EID was included in this previous consultation for information purposes but the proposed implementation of Bovine EID in Wales was not actively consulted on.

Bovine EID is the identification of cattle with an electronic identifier, so one of the two official ear tags must be EID and thus contain an electronic microchip. Electronic identification together with electronic reporting  will enable the recording and reporting of cattle to align with sheep and goats. Electronic Identification of sheep has been in place since 2010.  Current official cattle identification methods are based on conventional identification tags. Bovine EID tags are currently available for use as secondary or management tags applied for dairy parlour and farm management purposes. 

We have been investigating the use of Electronic Identification (EID) tags for the identification of cattle for many years. Two technologies, Low Frequency (LF) and Ultra High Frequency (UHF) are available for Bovine EID. Only low frequency (LF) EID tags are currently permitted for official use in the EU, and to ensure continuous trade we would follow this requirement in Wales.

Existing herd

We are not currently proposing to retag the existing herd with Bovine EID tags, as Bovine EID microchips cannot accommodate the existing cattle numbering format. Our intention is to allow Bovine EID to be implemented for newborn calves from a set date and then revisit the options available to retag the existing herd and further consultations may be undertaken later.   

Numbering 

Following our exit from the EU, the UK went from a member state to a third country, and this required an amendment for the livestock identification country code prefix from UK to GB. This change aligns with international standards, specifically ISO 3166 which defines the country codes for various nations as set out in Article 21(1 (b)) of Delegated Regulation (EU) 2020/692.  

Currently the legislation governing the identification of livestock states all tags must begin with UK. The legislative changes required following this consultation will include a change to the country code prefix used for cattle from UK to GB.

In addition to changing the numbering prefix to GB, a new numbering system is required for cattle to enable the introduction of Bovine EID in the UK. The new system will create a unique individual number for newborn calves which complies with the latest ISO standard and allows a sufficient number of years before the 30,000 numbers available, per holding, are used. 

To illustrate this the identification number will be split into four parts.  The first part is the country code, this will be GB or (826 on the EID chip) for all newborn calves. Following the country code, the second part of the number is the series number, this will be 0 (zero) as is currently used in sheep. The third part of the numbering sequence is the herd number of the animal.

The final part is the animal number range. Currently, the number range for sheep is 00001 to 69999. Under Bovine EID requirements, cattle numbers will range from 70000 to 99999. When a keeper reaches the maximum animal number issued for cattle of their holding, for example 99999, a new herd number will then be allocated, and the number will restart at 70000. There will be no check-digit as currently appears on cattle tags.

The numbering format for new-born calves shown on the tag will be: 

The numbering format contained on the EID electronic chip will be:

(C = Country coder, S = Series number, H = Herd number and A = Animal number)

The benefits of introducing the cattle numbering system using the 0 (zero) prefix will be:

• it maintains the current system of having the same herd/flock numbers in mixed holdings
• it is sustainable for at least 58 years for 99% of holdings so most keepers would not require a new herd number in their lifetime
• cattle breeders can retain their existing herd number which will reduce burden on administrative business for the keeper

Tag supply

Livestock tags are ordered from an official tag supplier. Each tag supplier has links to a single government-controlled IT system, which allocates a unique individual code for official livestock ear tags. This central database ensures tag manufacturers are given the next number available in a keeper's series when ordering new tags. This system is called the Livestock Unique Identification Service (LUIS). No changes are planned to the current cattle ear tag ordering process and all ear tags will still be ordered through the keeper’s preferred ear tag supplier.

Welsh Government are working with tag suppliers to agree timelines for official EID tag availability. Industry updates will be provided in the Gwlad email newsletters, seasonal updates and communications from tag suppliers.

Mandatory implementation of Bovine EID

We propose for newborn calves to be tagged with a Bovine EID tag from a set implementation date. This date is not expected to be until 2027 at the earliest, when all GB administrations have transitioned from the Cattle Tracings System (CTS) to their replacement cattle traceability system and services. 

All calves born after the implementation date of Bovine EID will be tagged with an EID tag. For these animals the number programmed on the chip of an EID tag will be the same number printed on the tag or pair of tags and would be an official form of identification.  This is known as WYSIWYG (What You See Is What You Get). Bovine EID tags can be read either visually or electronically as appropriate.

The implementation timescales will be determined following this consultation and guidance will be publicised well in advance to ensure keepers have sufficient time to plan.

Question 1

Do you support the mandatory implementation of Bovine EID for newborn calves in Wales? 

Low Frequency (LF) technology for Bovine EID

Within the EU, livestock ear tags are required to conform to international technical standards, including the International Organisation for Standardisation (ISO) standards for identification codes. EU member states that wish to use EID in cattle must use LF, and thus this applies to Northern Ireland under the Windsor Framework Agreement. 

ISO standards are important as they help ensure the interoperability of tags and readers from different manufacturers and help ensure EID equipment meets minimum specifications and functionality. These ISO standards are also important for international trade, and demonstrating robust traceability is easier if the underpinning technologies meet agreed international standards.

LF is a long-established animal ID technology and is already mandated for use in sheep in the UK and many other parts of the world including the EU. The use of LF in livestock identification is covered by a range of ISO standards.

The use of UHF for animal ID is comparatively new and there are concerns around commercial supply of UHF tags and readers. There is currently only ISO 6881 for UHF that sets the structure for the tag in an equivalent way to ISO 11784, but no ISO standard for UHF readers, advanced transponders, and a lack of conformance testing to ensure they meet the appropriate quality standards for livestock traceability.

In 2023/2024 Welsh Government and Defra commissioned a joint Bovine EID pilot in Wales and England, to assess the performance and usability of LF and UHF Bovine EID technology. The independent report on the pilot’s findings, published in October 2024, concluded there are fewer challenges (especially in the short term) with mandating the use of LF tags compared to UHF tags. 

Question 2

Do you have any comments or concerns on using Low Frequency (LF) technology for implementing Bovine EID in Wales?

Broader perspectives on Bovine EID

Livestock traceability plays a vital element in contributing towards safer food, improved public health, reduced demand on health services and the need for antibiotic treatment. Healthy livestock kept to high standards of welfare contribute to rural communities by sustaining profitable farm businesses, supporting marketing and trade opportunities and helping farmers increase profit margins, as well as safeguarding and creating jobs.

In terms of cattle identification and traceability, Bovine EID plays a crucial role in food safety and consumer confidence by enabling quick identification of animals involved in disease outbreaks or food recalls. It also supports compliance with national and international regulations on animal movement and health standards.

The implementation of Bovine EID should reduce risks to human health and safety, both direct and indirect. Given the safer read distances, Bovine EID could potentially reduce the need for physical handling of cattle, as data can be accessed electronically. Alongside this, it will enable the ability to improve herd management and disease control through it use with on farm management programmes.

Additionally, while EID systems can be highly effective, they require investment in equipment and infrastructure, and there are ongoing discussions about data,  systems, standardisation, and animal welfare.

Overall, Bovine EID is seen as a valuable tool for modernising cattle identification and traceability that will enhance the safety and sustainability of the beef and dairy industries.

Question 3

Do you have any additional views on cattle identification and traceability in Wales? 

Benefits to the industry 

This section looks at how the proposed changes can provide major benefits for the livestock industry.   

1.  Improved traceability and disease control

Electronic identification together with electronic reporting provides major benefits for disease control.  The ability to scan EID tags for reporting movements electronically will reduce the errors which can occur when tags are read and recorded manually.  This change will provide improved disease prevention, control, eradication and the protection of public health. 

2. Provenance

Electronic identification coupled with electronic reporting provisions could yield significant benefits to the farming industry, including supporting enhanced provenance, increased quality assurance, the ability to support and build brand value, and support consumer confidence.

3. Animal handling

The use of EID tags, electronic reading and data transfer will not only reduce the administrative burden and recording errors but will be much safer in terms of livestock handling in future. 

Animal welfare and the health and safety of people when handling cattle is of paramount importance. We want to ensure the safety of individuals handling livestock is not compromised and all the tagging is done with the correct infrastructure, equipment and safety measures in place.

 4. Farm management

Immediate access to management data through the use of Electronic Identification alongside EID readers,  and farm software packages, can help with management decisions. Together, they could reduce the time spent on animal husbandry tasks like monitoring weight gains which can influence decisions to sell, feed requirements or identifying and treating any animal health issues.

Implementation considerations

1.  Cross border movements

Ministers in all the UK administrations recognise the importance of cross-border trade and have committed to work collaboratively to ensure that trade is not affected by differing livestock identification policies. We are working closely to ensure we achieve full traceability, improved disease control and a smooth transition to an electronic cattle identification system across the UK. 

2.  Stakeholder engagement

We will continue to work in partnership with the industry via LIDAG (Livestock Identification Advisory Group) and both industry and farmer focus-groups to deliver the efficient implementation of Bovine EID in Wales. LIDAG have fed into these consultation proposals, and we will continue to work closely with the group to discuss the outcomes of this consultation and implement any legislative changes.

Regular updates will feature in Gwlad and we will consult with representatives of LIDAG and other industry representatives prior to publishing guidance to support the implementation of Bovine EID.

3.  Cost

We recognise there is likely to be a cost increase associated with Bovine EID tags compared with the cost of conventional non-electronic tags.  Until all GB nations have agreed the Bovine EID tag specifications, tag manufacturers are not able to produce the official EID tags or accurately confirm any costs.  Current EID management tags are around £1 more expensive than non-EID tags. The implementation of Bovine EID will require all newborn calves to have an official EID tag applied, from an agreed date. 

There may also be the requirement for the upgrade of management software and hardware, including IT training and infrastructure, such as handling equipment, for farms, markets, abattoirs, assembly and collection centres. 

The closing date for responses is 14 August 2025, and you can respond in any of the following ways:

• complete our online response form
• by email: complete the consultation response form and send it to: livestockid@gov.wales. Include “Bovine EID Consultation” in the subject line of your email.
• by post: complete the consultation response form and send it to:

Livestock ID and Movements Policy 
Welsh Government 
Ladywell House
Newtown 
Powys 
SY16 1JB

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e-mail: dataprotectionofficer@gov.wales

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Tel: 0303 123 1113
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In order to show that the consultation was carried out properly, the Welsh Government intends to publish a summary of the responses to this document. We may also publish responses in full. Normally, the name and address (or part of the address) of the person or organisation who sent the response are published with the response. If you do not want your name or address published, please tell us this in writing when you send your response. We will then redact them before publishing.

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Large print, Braille and alternative language versions of this document are available on request.

This document is also available in Welsh: Gweithredu Trefn o Adnabod Gwartheg yn Electronig (EID) yng Nghymru.