In an apparent backdown, Agriculture Minister Jaala Pulford has conceded a government bill to stamp out unscrupulous breeding practices was "unlikely to pass in its current form".

Labor made much of a promise to ban puppy farms in the lead-up to the 2014 state election. But since then it has faced claims the planned legislation, including limiting breeders to 10 fertile bitches, would cripple the industry while doing little to protect the health and welfare of dogs.

A parliamentary committee report tabled on Tuesday found there was "no clear scientific" reason to limit the number of fertile female dogs, with "no correlation between the number of dogs in an establishment and the health and welfare of those dogs".

The government will now pursue, through regulation, higher than existing standards for non-commercial breeders.

But it is understood the government will not waiver from its pre-election commitment to restrict breeders to 10 fertile bitches, a policy that has caused angst among some breeders who fear it will cost jobs and send work interstate.

Labor will also ban puppies in shop windows, although there are exceptions available for rescue organisations.

"We remain determined to stamp out puppy farms, and we're not prepared to back the Liberal-National Coalition's moves to keep puppy farming in Victoria," Ms Pulford said.

Photo: Oscar's Law

Other animal welfare and enforcement issues identified during development of the Bill will be dealt with by more rigorous enforcement of existing provisions, Ms Pulford said.

Australian Veterinary Association Victorian president Paul Martin said unless the government was prepared to put more resources into compliance and enforcement, the proposed crackdown would do little to improve animal welfare.

"Certainly the worst animal welfare may be on bigger farms but there are plenty of bad animal welfare outcomes with smaller breeders," Dr Martin said. "At the moment all they have done is throw a net around all of Victoria and say we pull everyone into it."

Photo: Rohan Thomson

Matt Hams, owner of Banksia Park Puppies, the largest breeder in Australia, said the government had pushed ahead with the legislation with no consultation or consideration of the impact, and was now forced to deal with the consequences of poor policy not supported by evidence.

"I'd like more clarification from the minister on what she considers is a puppy farm and what she is trying to stamp out," Mr Hams said.

He warned limiting the number of fertile bitches to 10 would force out professionals in favour of backyard breeders, potentially at the expense of animal welfare.

"The predicament the government has found itself in is the result of a lack of consultation and that is coming back to bite."