The Windsor Framework: Pet Travel Explained (2025 Update)

The Windsor Framework sets out the legal rules governing how dogs and cats move between:

• Great Britain (GB)

• Northern Ireland (NI)

• the Republic of Ireland (ROI)

• the European Union (EU)

It replaces post-Brexit uncertainty with a single governing principle:

Pet travel rules are based on where a pet is normally resident — not where it happens to be at the time of travel.

This residency-based approach protects the UK’s rabies-free status while keeping lawful pet travel practical for owners, breeders and professional transporters.

1. Why the Windsor Framework Exists

Following Brexit, Great Britain and Northern Ireland became subject to different animal health regimes:

• Great Britain operates under UK domestic animal health law

• Northern Ireland remains aligned with key EU animal health regulations

This divergence created widespread confusion, including:

• duplicated rabies vaccinations

• unnecessary veterinary certification

• unclear paperwork routes

• inconsistent classification of commercial and non-commercial movement

The Windsor Framework resolves this by establishing clear, residency-based rules that determine which documents and controls apply to each journey.

2. Core Principle: Residency Determines the Rules

Under the Windsor Framework, pet travel requirements are determined by where the pet is normally resident.

Residency is not determined by:

• temporary travel

• holidays

• short-term work stays

• transit routes

• the pet’s current physical location

Residency is linked to:

• the owner’s normal place of residence

• where the pet is ordinarily kept

Documentation, vaccination requirements and eligibility for travel are applied according to this residency classification. Temporary movement does not change a pet’s residency status.

3. Residency Categories Under the Windsor Framework

3.1 Great Britain (GB) Resident Pets

A pet is GB-resident if it is normally kept in Great Britain.

For GB-resident pets:

• GB → NI travel uses a GB Pet Travel Document (PTD)

• NI → GB return travel is treated as internal UK movement

• Rabies vaccination is not required for GB ↔ NI travel

• Additional requirements apply for travel beyond NI into the EU

3.2 Northern Ireland (NI) Resident Pets

A pet is NI-resident if it is normally kept in Northern Ireland.

For NI-resident pets:

• NI ↔ GB travel requires no paperwork

• NI → ROI / EU travel uses an EU Pet Passport

• Rabies vaccination remains required for EU travel

Northern Ireland continues to follow EU-aligned pet travel rules for EU movements, while travel between NI and GB remains internal UK movement.

3.3 EU / Republic of Ireland Resident Pets

A pet is EU or ROI resident if it is normally kept in an EU Member State or the Republic of Ireland.

For EU/ROI-resident pets:

• Travel uses an EU Pet Passport

• Residency does not change during temporary stays in the UK

• UK entry rules apply when entering Great Britain

3.4 Temporary Visitors

Temporary visitors include owners staying short-term for holidays, work or visits.

For temporary visitors:

• Residency classification does not change

• Documentation follows the owner’s normal country of residence

• Duration of stay does not alter legal status

4. Core Movement Rules Under the Windsor Framework

GB → NI

• GB-resident pets normally travel using a GB PTD

• Rabies vaccination depends on residency, not destination

• Treated as internal UK movement

NI → GB

• Internal UK travel

• No paperwork required

NI → ROI / EU

• EU Pet Passport required

• Rabies vaccination required

• EU rules apply in full

EU / ROI → GB

• EU Pet Passport or AHC required

• UK import rules apply on arrival

• Minimum age restrictions apply (see Section 5)

Transit through the Republic of Ireland

Transit through ROI may activate EU requirements even where origin and destination are within the UK. Route planning must consider residency, age and applicable jurisdictional rules at each stage.

5. Minimum Age Requirement (UK Law – 2025)

From December 2025, under the Animal Welfare (Import of Dogs, Cats and Ferrets) Act, the following rule applies:

No dog or cat under six months of age may enter Great Britain from outside the UK.

This applies to:

• EU imports

• non-EU imports

• rescue movements

• commercial movements

This rule does not apply to internal UK movement between Great Britain and Northern Ireland.

Key points:

• There are no exemptions

• Rabies vaccination status does not override age

• Ownership continuity does not override age

Owners must consider return eligibility before travelling. Puppies and kittens under six months cannot re-enter Great Britain once the rule is in force, even if they left legally.

4. Document vs Route

5. 2025 Law: New Minimum Age Requirement

From December 2025, under the Animal Welfare (Import of Dogs, Cats and Ferrets) Act:

No dog or cat under 6 months old may enter the UK.

This applies to:

• ROI ↔ UK

• EU → UK

• non-EU → UK

This replaces all previous under-15-week or rabies-dependent rules.
It is now an absolute restriction designed to stop low-welfare imports.

Always verify age and paperwork before booking travel.

6. Special Cases

Some movements sit outside standard rules and require extra care or restrictions.

Breeders transporting litters

Litters are often commercial movements, and puppies must now be over 6 months old to enter the UK.
Change of ownership triggers additional conditions.

Pets under 6 months

Entry into the UK is not permitted under any route or classification.

Pregnant animals

Late-stage pregnancy restrictions apply.
Fitness to travel and welfare assessments are essential.

Rescue animals

Usually classified as commercial.
Must meet the 6-month minimum age and all welfare documentation requirements.

Commercial vs. non-commercial

The classification affects:

• paperwork

• declarations

• veterinary documentation

• inspection risk

Purpose of travel must be declared accurately. If travelling with more than 5 pets it become classed as commercial movement.

Transit through ROI

Pets may need to meet EU requirements even when origin and destination are within the UK.

Ferry vs. air rules

Transport operators may add their own conditions.
Legal requirements and carrier policies must both be satisfied.

7. What Has Not Changed

Some long-standing rules remain stable:

• Microchipping

• Residency determines document type

• Rabies and Tapeworm treatment requirements for certain routes

• Type 1 and Type 2 transport licences

• Welfare fitness-to-travel standards

These continue to apply regardless of the Windsor Framework.

8. Rabies Vaccination Requirements (By Residency)

9. Additional Health Testing

In certain circumstances, additional health testing may be required beyond standard rabies vaccination.

The most common example is Brucella canis testing, particularly for dogs entering Great Britain from higher-risk regions or specific commercial scenarios. Blood samples may need to be tested by an approved UK laboratory, not overseas facilities. This can add several weeks to travel timelines.

Depending on route and origin, authorities may also require additional parasite or disease screening. Requirements may be applied selectively and can change without notice.

Additional Health Tests and Treatment Timeframes

Health testing and treatment requirements operate independently of documentation. Missing a timing window, even by a short margin, may require tests or treatments to be repeated and can delay or prevent travel.

10. Common misconceptions

Many owners still misunderstand:

• “I live here for 3 months, so my pet becomes a resident here.”
  → Residency never changes based on travel.

• “I need an AHC to enter NI.”
  → Incorrect for GB residents.

• “My EU passport is invalid now.”
  → EU passports remain valid for EU/ROI residents.

• “Young puppies can travel if vaccinated.”
  → Not under the 2025 law — 6 months minimum, no exceptions.

Clarifying these misunderstandings reduces travel delays and failed bookings.

11. When to Seek Expert Guidance

Some journeys are simple.
Others, involving:

• new puppies

• rescues

• breeder movements

• transit routes

• split residency

• commercial classification

• age restrictions

• more than 5 pets

require tailored advice to avoid mistakes, delays, or welfare violations.

Correct documentation depends on the exact combination of residency, age, purpose, and route.

Conclusion

The Windsor Framework makes pet travel predictable by basing all rules on residency, purpose, and welfare protection.
The 2025 law adds a crucial restriction: no dogs or cats under 6 months may enter the UK.

Clear understanding of these principles prevents errors and ensures animals travel safely and legally

Windsor Framework command paper 2023