The government has announced an overhaul of Britain's 90-year-old animal protection legislation but a new bill will not feature in the Queen's speech.

Elliot Morley, the animal welfare minister, outlined proposals being trailed by some as a "bill of rights" for pets.

Morley is recommending that the Protection of Animals Act 1911 and nine subsequent pieces of animal welfare legislation are brought into one new law.

"I want the resulting Act of Parliament to stand the test of time. That is why it must be robust but flexible so that we can adapt with the times and in line with changing views," he said.

"The 1911 Act set the pace for animal welfare in the 20th century. We now intend to set the pace for the 21st century."

But the legislation will not address key animal rights causes such as hunting with dogs, animals in zoos, battery hens, the Dangerous Dogs Act, or scientific research.

The new law is set to extend the definition of animal welfare beyond suffering caused by deliberate acts of physical harm or neglect.

"The British are generally animal lovers, but that doesn't stop some horrific offences taking place. We want to stop cruelty, encourage good welfare and yet avoid the trap of excessive legislation," said Morley.

"We recognise that few people are intentionally cruel to animals but rather more neglect welfare by failing to understand animals' needs."

Experts have warned that animal welfare issues are complex and controversial.

"This is a very contentious issue. If pet rats and mice have rights then it raises the question of the way we treat farm animals, vermin and fish," said London university's professor Michael Reiss.

"There are also millions of broiler chickens living in constant pain and misery. Once you start down this path it is hard to know where to stop."

Despite the controversy, Morley will back a wider scope for the definition of animal welfare."We need practical laws that underpin the principles of responsible pet ownership," he said.

"The question for pet owners and law enforcers alike has moved on from 'Is the animal being treated cruelly?' to 'Is the animal being properly looked after?'."

The proposed new bill will include a two tier structure of offences.

The primary emphasis will be on the present ban on cruelty but a statutory duty would be added to promote the welfare of all animals kept by humans.

Measures will include raising age at which children can buy pets and the regulation of animal sanctuaries.

"Raising the age at which children can buy pets unaccompanied by an adult and the licensing of animal sanctuaries are two examples of useful steps, so that those responsible for animals are fully aware of what they are taking on," said Morley.

Some measures may further alienate some sections of the countryside.

A ban on the docking of hunting dogs' tails could come under fire from rural groups.

"Today we are also publishing a review of the scientific and veterinary aspects of tail docking in dogs," said Morley.

"The conclusions indicate that, with the exception of a few specific health reasons, tail docking in dogs has no real benefits for the welfare of the animal.

"Under the new proposed bill, I do not believe there will be any place for docking of dogs' tails for cosmetic reasons.

"There may be some occasions when tail docking may be necessary for welfare reasons and these should be considered on a case by case basis."

DEFRA is also looking again at the Council of Europe Convention for the Protection of Pet Animals.

"Any person who is keeping a pet animal or who is looking after it shall provide accommodation, care and attention," states the Convention.

"In particular: give it suitable and sufficient food and water; provide it with adequate opportunities for exercise; take all reasonable measures to prevent its escape."

A draft of the bill will not be published for "some months" following wider consultation.

"This is a lengthy process, and it is vital that it is not rushed," said Morley.

"I am very encouraged by the overwhelming support our plans to modernise animal welfare have received so far and look forward to working with all stakeholders as we firm up details before proceeding to the house."

"No date has been set for parliamentary time, that will depend on other business."