The Ministry of Agriculture, Forestry and Water Management has published a public consultation on the draft Law on Livestock Farming. The current law dates back to 2009, with amendments in 2012 and 2016, meaning that many provisions were established before significant changes in European Union legislation.
This highlights the need for a new law, as the existing legislation is no longer aligned with EU Regulation 2016/1012, which governs the breeding and trade of reproductive animals and their genetic material. Compliance with these standards is essential for domestic producers to compete fairly on the European market. Previous EU directives and decisions that shaped zootechnical rules are now repealed, making it necessary for Serbia to modernize its legal framework.
Additionally, domestic regulations needed to be aligned with EU rules on illegal, unreported, and unregulated (IUU) fishing, an area previously unregulated in Serbia. Until now, there was no legal basis to sanction such activities or to prohibit the trade of products derived from them—a serious gap in a field strictly monitored across Europe.
The European Commission, in its 2024 report, assessed Serbia as “moderately prepared” to implement EU standards in this area and recommended the adoption of legislation fully aligned with EU law.
Scope of the new law
During drafting, it was determined that over half of the existing law’s provisions would need significant changes. Methodologically, this justified creating a completely new law. However, certain Serbia-specific elements were retained, such as provisions for poultry, beekeeping, and fisheries, which are not covered by EU zootechnical regulations but are important to local agricultural tradition.
Who can work in livestock farming?
Only legal entities registered in the Register of Breeding Societies for Reproductive Animals may operate in livestock farming. Registration requires submission of a request to the Ministry, which decides within 60 days if conditions regarding staff qualifications, facilities, and equipment are met.
The registration is valid for five years and can be renewed if requested at least 90 days before expiry. Societies must report all changes, and the Register is public and electronically maintained.
The law also defines key breeding goals: increased productivity, improved breed composition, and prevention of herd decline. These goals are implemented through long-term and annual programs adopted by the government. The main breeding program, managed by recognized breeding societies for hybrid pigs and poultry, outlines objectives, selection methods, gene banks, population sizes, and other development issues. The Ministry approves programs meeting all requirements.
EU standards introduced
The new law aligns productivity control and preservation of domestic animal traits with EU rules. Acceptance of purebred reproductive animals, semen, and embryos, as well as rules for natural mating, artificial insemination, and male testing, are directly adopted from EU standards. The law also defines when breeders may limit certain reproductive techniques, especially for endangered breeds, and establishes conditions for collection, production, and storage of reproductive material.
A key innovation is the requirement for breeding societies to verify the identity of reproductive animals using methods like blood typing or DNA analysis, applying the same principles to animals used for egg and embryo collection. For the first time, registration of hybrid reproductive pigs and poultry is regulated. Societies must register all eligible hybrids, including those previously registered by recognized Serbian or foreign breeding societies. Acceptance rules for hybrid animals follow EU legislation.
The law also regulates zootechnical procedures, from natural mating and artificial insemination to semen quality and breeder training. Special rules apply to reproduction and insemination centers, including the responsibilities of service providers. Genetic manipulation is prohibited except for scientific purposes with ministerial approval under strictly controlled conditions.
Domestic animals’ production capacities are tested by breeding societies according to the main program, ensuring internationally comparable results.
Certain existing provisions remain, while rules concerning healthcare procedures for animals have been removed, as these are covered by separate legislation. Facilities for fertilizer and feed are no longer considered breeding facilities.
A fundamental requirement is that animals are kept in conditions meeting their biological and physiological needs, with adequate nutrition, housing, care, and treatment for sick or injured animals. Animals must be marked, with marking conducted by veterinary services or trained breeders, who maintain records in the Central Database.
New rules for beekeepers and fisheries
For beekeeping, the law sets requirements for bee management, pasture registration, hive relocation, and swarm monitoring. Protective zones around queen breeding centers are established with special rules. Insecticides harmful to bees during pasturing may only be used with local government approval, and under all approved methods, not just aerial application.
For fisheries, import, export, and transit of fishery products are permitted only with original international catch certificates, with additional certification required for exports. New provisions regulate illegal, unreported, and unregulated (IUU) fishing, including prohibitions on imports from IUU countries and acceptance of EU risk lists.
Penalties for violations
Violations may be committed by individuals, entrepreneurs, or legal entities, including responsible personnel.
The Law on Misdemeanors (Article 39) establishes fines:
- Individuals and responsible persons: 5,000 to 150,000 dinars
- Legal entities: 50,000 to 2,000,000 dinars
- Entrepreneurs: 10,000 to 500,000 dinars
Fixed fines may also be applied, starting at 1,000 dinars.
A significant innovation is the misdemeanor order, allowing minor violations to be resolved without court proceedings, with offenders admitting the violation and accepting a fine, speeding up resolution and reducing administrative burden.
Transition to new rules
Entities operating in livestock farming have a two-year period to align with the new rules. Existing records will be transferred to the new system, avoiding data loss.
The drafting and adoption of secondary regulations is expected within one year. Many of these rules will be easier to implement, as they build on existing regulations aligned with EU standards. Until new regulations are issued, current bylaws and acts not in conflict with the new law will remain valid, including the Long-Term Measure Program for 2025–2029.
The financial framework for implementing the law is included in Serbia’s 2026 budget, with the Ministry of Agriculture allocated 300 million dinars for incentives, of which 190 million is specifically for implementing breeding programs in livestock farming.
