Wales Animal Health and Welfare Framework: review (summary)

In 2014, the Welsh Government launched the Wales Animal Health and Welfare (AHW) Framework as part of their devolved responsibility. This 10-year overarching plan, developed in partnership with key stakeholders, aimed to improve AHW standards for all kept animals across Wales. It adopted a results-based accountability framework structured around 2 key components: population accountability and programme and performance accountability.

The Framework adopted 5 principles previously outlined in the AHW Strategy for Great Britain (2004) (Department for Environment, Food & Rural Affairs):

• promoting the benefits of AHW
• understanding and accepting roles and responsibilities
• working in partnership
• ensuring a clearer understanding of costs and benefits
• delivering and enforcing standards effectively

These principles were articulated through 5 strategic outcomes:

• Wales has healthy productive animals
• animals in Wales have a good quality of life
• people trust and have confidence in the way food is produced and the way public health is protected
• Wales has a thriving rural economy
• Wales has a high-quality environment

The principles and outcomes were framed by 2 overarching objectives:

• using an approach focussed on delivery to achieve shared outcomes
• working in partnership to develop a robust monitoring and evaluation framework, underpinned by a strong evidence base

The Framework outlined 4 key mechanisms for implementation and monitoring:

• the Framework Group (FG), made up of a Chair and 7 representatives drawn from a broad range of AHW sectors and areas of expertise
• the Framework Monitoring Team, based within the Welsh Government, responsible for providing secretariat support to the FG and coordinating key aspects of Framework implementation and monitoring
• annual Implementation Plans (IPs) which outlined the agreed actions and core priorities for implementing the Framework over each period (i.e. 2015 to 2016, 2016 to 2017, 2017 to 2018, 2019 to 2020, 2022 to 2024)
• partnership networks and a stakeholder database which registered those interested in engaging with the Framework and the FG and implementing the collaborative agenda

In 2024, the Welsh Government commissioned research to review and evaluate the Framework (2014). The evaluation aimed to inform the development of a future AHW Strategy, by identifying gaps, challenges and opportunities to build upon Framework outcomes.

The research addressed 3 research objectives.

1. To evaluate the Framework (2014 to 2024).
2. To assess the extent to which Welsh Government priorities in relation to animal health and welfare are already covered or under development, in their other plans, schemes and strategies.
3. To make recommendations for the future Wales AHW Strategy, including its structure, content and duration.

A process evaluation involving a primarily qualitative multi-method approach was undertaken. This included 5 stages of data collection and analysis.

1. Scoping literature review of peer reviewed scholarly publications between 2014 and 2024 which specifically mentioned the Framework (4 articles identified).
2. Document analysis of 34 internal and public facing Welsh Government documents.
3. Qualitative interviews with 6 Welsh Government policy team members with duties relating to AHW, analysed in NVivo using thematic analysis.
4. Focus groups (5 groups involving 26 stakeholders) with the FG and key AHW stakeholders, analysed in NVivo using thematic analysis.
5. Online questionnaire (8 respondents) with Welsh Government employees and key stakeholders unable to participate in the interviews and focus groups, analysed in NVivo and Excel using thematic and univariate analysis respectively.

Research limitations

The study was not intended to be representative of the AHW sector; rather, it provides views from 40 participants who represent a wide range of stakeholders and sectors. Due to project time and resource limitations and the vast number of sectors and stakeholders under the Framework, there are limitations in the study. These include gaps in some key stakeholder sectors (e.g. the public, enforcement agencies, small businesses, hobby animal owners, those responsible for wildlife and other kept animal owners), the small sample sizes (e.g. scholarly literature and questionnaire respondents) and participant self-selection bias. Accordingly, the findings are not representative of all Framework stakeholders.

The main research findings are presented thematically here and reflect both the document analysis and research participants’ views.

Purpose

The purpose of the Framework (2014 to 2024) was widely recognised as a unifying mechanism for improving and aligning AHW standards nationally and locally for kept animals in Wales. Most participants affirmed that the Framework’s long‑term vision and principles of collaboration, shared responsibility, enforcement and evidence‑based decision‑making, remain highly valued. The Framework was seen as advancing policy leadership, promoting best practice, guiding decision-making, enhancing government accountability, fostering collaboration and forging a collective sense of purpose among some stakeholders and partners.

The future Strategy was envisioned by most participants as refreshing rather than replacing the Framework. Most participants suggested improvements based on perceived Framework gaps (e.g. enforcement, robust monitoring and evidence base, an outcome-based approach, stakeholder education/training) and limitations (e.g. kept animal categories, clarity on roles and responsibilities, AHW awareness among partners and stakeholders).

To enhance stakeholder engagement, many participants indicated the future Strategy should clarify its intended audience and focus and provide a sector/issue specific focus. They also suggested updating the Framework language in the future Strategy to reflect critical developments in animal sentience, sustainable practices, environmental protection, stakeholder collaboration and One Health and animal welfare.

Many participants argued the future Strategy should stress its importance in responding to broader societal and environmental concerns through AHW.

Structure

The need for the future Strategy to foster consistency and synergy with the several plans, strategies and policies which now directly and indirectly address AHW was noted by many participants and in the document analysis.

For a future Strategy, participants generally supported a concise high-level strategy, with sector specific detail (e.g. outcomes) communicated through focused plans and aligned with other Welsh Government policies. This approach was expected to increase coherence and avoid duplication. Other participants proposed a more robust future Strategy document which would directly address the noted Framework gaps and limitations (e.g. see Section 3.3, above).

To enhance relevance and stakeholder engagement, many participants emphasised the need for sector specific sections in the future Strategy and or in bespoke plans.

The document analysis identified other Welsh Government strategies and policy have employed tools such as theories of change, explicit performance indicators and time bound targets to strengthen monitoring and evaluation. These approaches could offer a useful model and structure for a future Strategy according to some participants.

Duration

Most participants valued a long-term future AHW Strategy for its potential to be apolitical. While the suggested duration of this Strategy varied, broadly participants supported a 10-year period, as it offered stability and fostered continuity across the diverse policy areas relevant to AHW.

Priorities

Most participants recognised a sector and species imbalance in the Framework in prioritising the health of farm animals over animal welfare and other animal species. To address this disparity, many participants called for greater clarity and transparency in setting future Strategy priorities. Several participants perceived the data and evidence gaps in many AHW sectors impacted these decisions. These participants suggested this should be addressed by: identifying existing reliable data across sectors, commissioning new data collection to fill gaps and inviting stakeholders to gather and or share data to inform an evidence-based approach.

Governance

Retaining the Framework governance approach of a well‑integrated secretariat as part of the Office of the Chief Veterinary Officer (OCVO) Monitoring Team and supporting an independent Framework Group (FG), was generally supported by participants. Many participants valued the expertise, critical scrutiny, collaborative support and vital conduit between Welsh Government and stakeholders provided by the FG.

Most participants wanted greater transparency (e.g. clarity on roles and responsibilities), status and visibility and broader sector representation in a future expert Strategy group. Examples of broader membership included expanding FG membership and or developing permanent or task-specific expert subgroups which could sit under the expert group Chair.

Resources

Despite Framework achievements, there was a consensus amongst many participants that the Framework’s broad remit had exceeded the resources available. Reductions in staffing and budget, worsened by external economic and environmental shocks were felt to have constrained delivery, limited FG and OCVO capacity and effectiveness, weakened communication channels and eroded feedback loops.

Many participants also highlighted that some stakeholders may lack the resources to engage with the future Strategy, while others could help provide resources (e.g. data, research, personnel).

According to many participants, the resources provided must reflect the ambition of the future Strategy. Alternatively, a few participants suggested aligning future Strategy ambitions more closely with the available resourcing, so that intended outcomes can be matched by clear, feasible priorities and workplans.

Communication

Although the original Framework envisaged a transparent and inclusive communication strategy, its implementation according to most participants and the document analysis has been irregular (e.g. regularity of IPs, use of the stakeholder database, online publication of the FG minutes). Overall, participants indicated that clearer sector targeted messaging, effective feedback loops and simplified document formats could help restore visibility and stakeholder engagement. For many participants, the need to develop meaningful communication with a broader range of stakeholders and sectors was a priority. They suggested a communication plan which reflected the diversity of stakeholders and sectors was necessary.

Most participants called for the future Strategy to involve a multi-tiered and targeted communication plan with a purposeful and timely feedback loop to manage stakeholder expectations and provide transparency. They proposed online support tools, regular progress updates and defined accountability mechanisms to strengthen stakeholder engagement and Strategy adaptability.

Partnerships and engagement

Existing stakeholder networks and partnerships were viewed by many participants as a key Framework strength. However, many participants also noted the farm animal health sectors have benefited most visibly in the Framework. They argued engagement beyond these sectors was limited.

To address this imbalance in the future Strategy, many participants pointed to more tailored engagement mechanisms, such as sector specific liaison roles or subgroups and stakeholder mapping through a stakeholder database. More generally, they argued the language, focus, priorities and animal sector categorisation used and the expert group membership in the future Strategy needed to be more inclusive of a broader range of stakeholders and sectors.

Based on the research findings, the following recommendations are made for a future Strategy. Consideration should be given by the Welsh Government and OCVO to:

Strategy principles, outcomes and scope

Adopting a long-term AHW Strategy, using the Animal Health and Welfare (AHW) Framework (2014 to 2024) (Framework) as a template for developing the principles and outcomes and employing a 10-year duration to maintain momentum in addressing AHW.

Adopting one of the following options for the Strategy document:

1. a short keystone Strategy document, which details the principles, outcomes and governance roles and responsibilities, and signposts stakeholders to plans which provide the detail on tangible outcomes, timescale and measurement and monitoring (linked to specific roles or partners where possible).
2. a standalone detailed Strategy document which includes comprehensive information on the principles, outcomes, roles and responsibilities, the timeframe for delivery, how tangible outcomes will be measured and monitored (linked to specific roles or partners where possible).

The differing needs of stakeholders and sectors in developing and implementing the Strategy to enhance engagement and relevance.

The process for setting annual AHW priorities and embedding transparency in this process to manage stakeholder expectations. Importantly, the Strategy (through implementation plans or other documents) should demonstrate through a robust evidence-base why these priorities have been chosen and that broader AHW issues had been considered.

Adopting the mechanisms used in other Welsh Government plans, strategies and policies for setting tangible outcomes and measurable targets.

Provide clarity in the Strategy on the key agencies and partners who have roles and responsibilities in delivering AHW, and where appropriate link them to the outcomes.

Addressing the animal species and sectors imbalance in the Framework by considering the Strategy language, kept animals’ categories, priorities, stakeholder groups and outcomes identified. For example, the proportions and contexts in which animals are kept by humans have changed over the course of the Framework (e.g. hobby keepers, private exotic animal owners). By reclassifying the listed kept animal categories, the Strategy may be more inclusive of AHW stakeholders.

Embedding the language of climate change, sustainability and animal sentience in the AHW Strategy.

Building resilience into the Strategy so it can adapt to potential policy, economic, environmental and social changes. For example, the Welsh Government could consider if the principles, strategic outcomes and the scope of kept animal categories should be reduced or resources increased to manage future challenges.

Increasing stakeholder awareness of AHW issues and responses by adding a Strategy outcome which focuses on enhancing education and training.

Enhancing mechanisms for enforcement of standards. This could include effective engagement with key enforcement agencies as part of the Strategy and implementation plans.

Using the Strategy launch as a platform to reaffirm the importance and widespread relevance of AHW to internal and external partners and stakeholders and consider embedding this aim in the Strategy communications plan.

Strategy governance

Retaining the current Framework governance structure and resourcing a strengthened secretariat to support a Strategy expert group and stakeholder communications and engagement.

Retaining and expanding a Strategy expert group (e.g. group membership and or subgroups) to ensure greater sector representation and engagement. Reviewing the expert group Terms of Reference, responsibilities and resources (e.g. renumeration, IT capacity) and opportunities for enhancing their status to ensure visibility, impact and accountability.

Evaluating the resources required to support the Governance structure in meeting the scope of the Strategy, for example, additional SG members, increasing remuneration for SG members, and enhancing secretariat support, communications and IT capacity and support.

Enhancing the status of the SG to ensure visibility, impact and accountability. This could include setting the annual SG meetings with the Cabinet Secretary as a Strategy requirement.

Embedding a clear and prompt feedback loop between all actors (e.g. Welsh Government – OCVO – expert group – partners – stakeholders).

Strategy communication and engagement

Reviewing how best to communicate Strategy priorities and outcomes to stakeholders. For example, by mapping and effectively signposting stakeholders to existing AHW-related plans and developing sector/issue-specific Plans for the priority AHW areas not currently covered elsewhere.

Conducting stakeholder mapping by revisiting the Framework stakeholder database and inviting stakeholders to register their interest in being part of Strategy delivery. This process could provide a valuable tool for identifying and reaching out to underrepresented and peripheral AHW sectors.

Developing a communications plan that considers the needs and the resources available to the Welsh Government, Strategy expert group and various sectors and stakeholders. A multi-tiered (e.g. bespoke website, social media engagement, emailing list, sector events, sector stakeholder days, key gatekeepers) and sector targeted communication approach would be beneficial.

Fostering greater responsibility and compliance with AHW requirements and best practice among stakeholders through new engagement opportunities (e.g. roundtables, call for feedback).

Strategy data and evidence

Evaluating how the complex interplay of factors which influence AHW have changed since the development of the Framework by conducting a PESTLE (political, economic, social, technological, legal and environmental factors) analysis of the wider AHW environment. This analysis could identify how existing Welsh Government policies and plans can be used to support Strategy delivery and stakeholder communication, sector gaps and the AHW sectors and issues already adequately monitored.

Conducting a data scoping exercise to help identify the data and evidence available on AHW in Wales to identify the existing AHW evidence base, the data gaps and opportunities for supporting AHW priorities.

Conducting a structured data mapping exercise based on the data scoping exercise which would document data flows and action the collection of AHW data. This process could facilitate priority setting, outcome monitoring, evidence impact and inform the resources required to fulfil the Strategy vision.

Report author: Associate Professor Jennifer Maher and Professor Harriet Pierpoint

Views expressed in this report are those of the researchers and not necessarily those of the Welsh Government.

For further information please contact:
Climate Change and Environment Research Team
Social Research and Information Division
Welsh Government
Cathays Park
Cardiff
CF10 3NQ

Email: ClimateAndEnvironmentResearch@gov.wales

Social research number: 118/2025
Digital ISBN: 978-1-80633-734-7