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Guidance

RPA's regulatory approach

Published 4 September 2026

Applies to England and Wales

© Crown copyright 2026

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This publication is available at https://www.gov.uk/government/publications/beef-sheep-and-pigs-the-rpas-regulatory-approach/rpas-regulatory-approach

1. Introduction

The Rural Payments Agency (RPA) acts as the regulator for:

  • classifying beef, pig and sheep carcases
  • reporting market prices for certain categories of animals and carcases
  • labelling beef and veal products

The RPA does this in England on behalf of the Secretary of State for the Department for Environment, Food and Rural Affairs (Defra), and in Wales on behalf of the Welsh Ministers.

The regulations, set out at section 8 of this document, aim to:

  • make sure producers are paid fairly based on the weight and composition of animals sent to slaughter
  • monitor and improve fairness and transparency in the market
  • ensure beef and veal can always be traced back to where it came from

These regulations apply to slaughterhouses and meat cutting plants. They support producers by making the deadweight supply chain clearer and more transparent.

The beef and veal labelling regulations protect consumers. They make sure the beef and veal sold match the description and country of origin on the label and is not a substitute product.

This guidance explains both:

  • the RPA’s approach to the legislation as the regulator
  • what actions and penalties the RPA can use

In this guidance, ‘we’ refers to the RPA or another party acting on behalf of the Secretary of State for the Department for Environment, Food and Rural Affairs, or the Welsh Ministers.

2. The RPA’s regulatory approach

The RPA’s approach is to prevent problems rather than fix them later.  Our first step is to advise, guide and educate slaughterhouse operators to help them comply with the regulations. If this does not work, we will use our legal powers to make sure the regulations are complied with. There may also be some circumstances where advice and guidance alone is not appropriate.

Our approach and the use of civil and criminal powers follows the Regulators’ Code and the Better Regulation Principles. We focus on:

  • acting in proportion to the issue
  • being consistent
  • using risk-based activity
  • supporting people to comply with the regulations

The Regulators’ Code explains how regulators should work with slaughterhouse operators.

RPA Regulators’ Code shows how the RPA meets the 6 standards of the code to make sure we are open and fair with slaughterhouse operators.

The Better Regulation Framework guidance explains how officials must meet the Better Regulation Framework to make sure the regulations are checked and considered.

The RPA also follows the:

3. The RPA’s outcome focused regulatory approach

The RPA works with slaughterhouse operators to make sure they comply with the regulations. We usually provide advice and guidance first. Where this is not appropriate, we take prompt enforcement action. This means the formal steps we can take to make sure the regulations are followed, including the use of civil or criminal powers.

We take appropriate actions to help those who need to comply with the regulations including:

  • issuing targeted communications such as timely reminders, hints and tips, and advice and guidance where it is needed
  • regularly checking how well our approach works and improve it if needed
  • using risk-based actions to reduce unnecessary work for those we regulate

4. What advice and guidance the RPA can give

The RPA advise, guide and support slaughterhouse operators to comply with the regulations.

If you commit a regulatory breach but it is not serious enough for us to use penalties, we will remind you of the regulations in writing. This gives you a chance to put things right without any penalties being applied.

A breach may be less serious due to one of the following (the list is not in priority order and is not exhaustive):

  • it’s a first offence or you usually meet the rules
  • the offence is small or has little impact
  • you admitted the offence and will work with us to fix it

If later evidence shows the offence is more serious, we may take stronger action including civil or criminal proceedings.

We may also offer advice and guidance where:

  • you have not broken any rules
  • you ask for advice and guidance
  • we think it will help prevent a future offence

We keep records of your compliance history including any advice given either verbally or in writing.

5.  The RPA’s investigation powers - power of entry

The regulations give the RPA officers the right to enter premises to check if either:

  • any breach of the regulations has been committed
  • there is evidence of a breach

When an officer enters any premises, they may:

  • inspect, photograph or record a carcase or part of it
  • inspect, copy or print documents, records or materials related to the regulations, or remove them either to copy them or keep them as evidence
  • inspect, photograph and check machines, computers or equipment used under the regulations
  • require copies of documents, records or materials in a form to take away

6. Notices and penalties the RPA can use

If you breach the regulations, the RPA may send you a warning letter. We also have 4 forms of enforcement we can use.

1. Stop Notice (beef and veal labelling only)

Where beef or veal has been labelled or marketed incorrectly, we can issue a Stop Notice. This means the beef or veal must be either:

  • relabelled or removed from sale until it meets the regulations
  • is made into a product that does not need to meet the regulations

We may take stronger action if you do not follow the Stop Notice. This may lead to prosecution.

2. Compliance or Enforcement Notice

We may send a written Compliance or Enforcement Notice if an RPA officer believes a breach of the regulations has taken place. If you do not follow this notice, we may send you a Penalty Notice.

3. Penalty Notice

If the breach is serious or you ignore a previous Compliance or Enforcement Notice, we may issue a Penalty Notice. The penalty may be up to £50,000 for a breach relating to Sheep Carcase Classification. It may be unlimited for a breach relating to Beef Carcase Classification, Pig Carcase Grading, and Beef and Veal Labelling.

4. Prosecution

If you do not pay a Penalty Notice, you may face prosecution relating to Beef Carcase Classification, Pig Carcase Grading or Beef and Veal Labelling, or civil action relating to Sheep Carcase Classification.

How to appeal

If you think an enforcement decision is incorrect, you can appeal. First, contact the RPA MTS Operations Team on 03300 416 508 or email MTS.Carlisle@rpa.gov.uk. They will give you advice about the relevant regulation the notice was issued under.

Some appeals go through a magistrates court, including The Carcase Classification and Price Reporting (England) Regulations 2018 and The Carcase Classification and Price Reporting (Wales) Regulations 2018.

Other appeals go to the First-tier Tribunal, including The Sheep Carcase (Classification and Price Reporting) (England) Regulations 2025 and The Sheep Carcass (Classification and Price Reporting) (Wales) Regulations 2025.

7.  What information the RPA publishes

In line with Data Protection principles, the RPA will publish a report on GOV.UK about the use of actions and penalties.  The report will list cases where a Compliance or Enforcement notice, or a Penalty notice has been issued.      

We will update this report at least once a year.

We will also share details of the actions and penalties issued at our twice-yearly Stakeholder Group meetings. We update industry representatives at these meetings and get their feedback, which helps us improve our systems and processes.

8. Relevant legislation

Beef, Sheep and Pig Carcase Classification (England and Wales)

Assimilated Regulation (EU) 2017/625 Controls to make sure food and feed laws are followed, as well as rules for animal health and welfare, and plant health.

Assimilated Commission Delegated Regulation (EU) No. 2017/1182 Adds detail to Regulation 1308/2013 about how beef, pig and sheep carcases are classified, and how market prices for certain carcases and live animals are reported.

Assimilated Commission Implementing Regulation (EU) No. 2017/1184 Sets rules for applying Regulation 1308/2013 on how beef, pig, and sheep carcases are classified and how market prices for certain carcases and live animals are reported.

Assimilated EU legislation (Common Market Organisation) (CMO) Regulation 1308/2013 (as amended)

Establishes a common organisation for agricultural markets and on certain agricultural products.

Assimilated Decision 2004/370/EC (as amended) Approves methods used to grade pig carcases in the United Kingdom.

Statutory Instruments (England):

SI 2018 No.1164: The Carcase Classification and Price Reporting (England) Regulations 2018

SI 2025 No. 837:  The Sheep Carcase (Classification and Price Reporting) (England) Regulations 2025

Statutory Instruments (Wales):

SI 2018 No. 1215 (W.248): The Carcase Classification and Price Reporting (Wales) Regulations 2018

SI 2025 No. 1121 (W.186): The Sheep Carcass (Classification and Price Reporting) (Wales) Regulations 2025

Deadweight Price Reporting (England and Wales)

Assimilated Regulation (EU) 2017/625 Controls to make sure food and feed laws are followed, as well as rules for animal health and welfare, and plant health.

Assimilated Commission Delegated Regulation (EU) No. 2017/1182 Adds detail to Regulation 1308/2013 about how beef, pig and sheep carcases are classified, and how market prices for certain carcases and live animals are reported.

Assimilated Commission Implementing Regulation (EU) No. 2017/1184 Sets rules for applying Regulation 1308/2013 on how beef, pig, and sheep carcases are classified and how market prices for certain carcases and live animals are reported.

Assimilated EU legislation (Common Market Organisation) (CMO) Regulation 1308/2013 (as amended) Establishes a common organisation for agricultural markets and on certain agricultural products.

Statutory Instruments (England):

SI 2018 No.1164: The Carcase Classification and Price Reporting (England) Regulations 2018

SI 2025 No. 837: The Sheep Carcase (Classification and Price Reporting) (England) Regulations 2025

Statutory Instruments (Wales):

SI 2018 No. 1215 (W.248): The Carcase Classification and Price Reporting (Wales) Regulations 2018

SI 2025 No. 1121 (W.186): The Sheep Carcass (Classification and Price Reporting) (Wales) Regulations 2025

Beef & Veal Labelling (England and Wales)

Assimilated Regulation (EU) No. 2017/625 Controls to make sure food and feed laws are followed, as well as rules for animal health and welfare, and plant health.

Assimilated Regulation (EU) No 1308/2013 (as amended) Establishes a common organisation for agricultural markets and on certain agricultural products (Single CMO Regulation).

Assimilated Commission Regulation (EC) No 566/2008 Setting detailed rules for how Council Regulation (EC) No 1234/2007 applies to marketing meat from cattle aged 12 months or younger.

Assimilated Regulation (EC) No. 1760/2000 Establishes a system to identify and register cattle, sets rules for labelling beef and beef products, and replaces Council Regulation (EC) No 820/97.

Assimilated Commission Regulation (EC) No. 1825/2000 (as amended) Sets detailed rules for how Regulation (EC) No 1760/2000 applies to the labelling of beef and beef products.

Statutory Instruments (England):

SI 2010 No. 983: The Beef and Veal Labelling Regulations 2010

Statutory Instruments (Wales):

SI 2011 No. 991: The Beef and Veal Labelling (Wales) Regulations 2011

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