Concerns have been raised that the Department for Environment, Food and Rural Affairs (Defra) “appears to misunderstand the intent” of a petition asking the government to consider updating the Dangerous Dogs Act to specifically protect horses and “shows concerning disregard for the potential consequences of uncontrolled dogs”.

In its response to the petition, which had received over 19,000 signatures this afternoon (Wednesday 5 March), Defra said the government “recognises that dog attacks can have horrific consequences, and it takes this issue very seriously”.

However, it stated that “the police and local authorities already have a range of powers available to tackle dangerous dogs and irresponsible dog ownership, including dog attacks on other animals”.

It also said that the government “currently has no plans to introduce a legal requirement for all dogs to be on a lead in public when in the presence of a horse.

“There is a careful balance to be struck between protecting the wider public and their horses from dog attacks, the freedom people enjoy when walking their dogs, and the welfare of those dogs, including the freedom to exhibit normal behaviours,” said Defra in the response.

‘Prioritising the freedom of dogs’

In a joint statement from Victoria Privett, who created the petition, and Katie Smart, whose horse George was put to sleep after being chased by a loose dog while turned out in his field on private land, they state that Defra’s reply “overlooks the critical need for public safety” and that the government is “prioritising the freedom of dogs over the safety of others”.

“Suggesting that dogs should be allowed to exhibit ‘normal behaviour’ overlooks the critical need for public safety. Behaviours like chasing, herding, and barking can pose significant risks not only to horse riders and their horses but also to the dogs themselves and the wider public,” they said.

“By failing to introduce a legal requirement for dogs to be on leads around horses, the government is prioritising the freedom of dogs over the safety of others.

“We all are entitled to use and share the countryside respectfully and safely for our leisure, and a dog being leashed for a minute to prevent incidents doesn’t stop them exhibiting normal behaviours.

“The government’s response shows concerning disregard for the potential consequences of uncontrolled dogs, particularly in public spaces where they may encounter animals and riders,” they continued.

“A stronger, more proactive stance is necessary to ensure that laws meant to protect the public are not only quoted but also effectively enforced.”

‘It remains an offence for any dog to attack or worry horses’

When approached by Your Horse for further comment, a Defra spokesperson said: “Owners of any breed of dog which is dangerously out of control are breaking the law. It remains an offence under The Dogs (Protection of Livestock) Act 1953 for any dog to attack or worry horses. 

“We continue to work with the police, local authorities and animal welfare groups to prevent dog attacks by addressing dog control issues before they escalate and using the full force of the law where needed.”

Your Horse was also told that Defra has worked with the Crown Prosecution Service (CPS) to update its prosecutorial guidance to clarify to prosecutors and enforcement practitioners that Section 3 of the Dangerous Dogs Act 1991 provides for an offence to apply to dog-on-dog attacks or dog attacks on other animals.  

The CPS guidance indicates that dog attacks on other animals may amount to a dog being dangerously out of control, not least because of the risk to its owner should they seek to intervene in the attack on their animal.

The CPS would assess whether to proceed with a prosecution under section 3 of the 1991 Act or the 1953 Act (or any other relevant legislation) on a case-by-case basis. It remains a matter for the courts to ultimately decide whether on the facts of the case an offence has been committed.

Defra also told Your Horse that it is considering the role of education and training (for both dogs and their owners) in reducing the risk of dog attacks. The department wants to improve data collection and recording so that it is in a better position to take action. 

It will also consider whether the current dog control rules are sufficiently enforced to ensure communities are protected.

Current legislation

Police and local authorities can currently tackle dangerous dogs and irresponsible dog ownership through the following legislation:

  • It is an offence under section 3 of the Dangerous Dogs Act 1991 for the owner, or other person in charge of a dog, to cause or permit the dog to be dangerously out of control in any place.
  • A dog may be considered dangerously out of control if it injures a person or a horse, or it causes a person to fear that it may injure them or their horse, and the person in charge of the dog has no proper control of it.
  • Section 2 of the Dogs Act 1871 allows a complaint to be made to a Magistrates’ Court where a dog is “dangerous and not kept under proper control”.
  • Police and local authorities can issue community protection notices to address anti-social behaviour involving dogs under the Anti-Social Behaviour Crime and Policing Act 2014.
  • Horses fall within the scope of the Dogs (Protection of Livestock) Act 1953 under the definition of livestock, which tackles the attacking or other worrying of livestock in agricultural settings, including grazing land.

The petition

The petition requests that dog owners face penalties proportionate to the incident if their dog causes a nuisance to, terrorises or attacks a horse when in public.

It also asks for the introduction of a leash law for dogs when in the presence of horses to reduce incidents and injuries for the horses, horse riders, dogs and wider public.

“We want people to understand the importance of keeping dogs under control. It’s about educating people and keeping everyone safe including the dogs and owners. Sadly, there is little protection or accountability for such attacks and that needs to change,” said Katie Smart.

“I lost my horse George due to ignorance of a dog owner and in an incident that could have been avoided.

“Many of the laws mentioned [in Defra’s response], such as the Dangerous Dogs Act 1991 and the Dogs Act 1871, are rarely applied or enforced, resulting in a lack of prosecutions that fails to deter irresponsible dog ownership.”

If the petition attracts 100,000 signatures before its six-month deadline on Thursday 22 May 2025, it will be considered for debate in parliament.

“The next steps are to get the 100,000 signatures, but we are also meeting with MPs to move for a private bill to be taken to government incase the signature total is not met,” added Katie.

“We are encouraging people to write to their own local MP to raise awareness of this issue and to take action as the laws the Government claim to be in place do not cover riders as they imply.”

View the petition here

Dog attacks in the news

In January, Your Horse reported on the tragic case of Loki, a palomino pony who was in a collision with a car and suffered four broken legs after being spooked by a loose dog and bucking off his rider before bolting on to a road in West Yorkshire.

The pony was put to sleep on the road.

Police later confirmed in a statement to Your Horse that they would like to identify and speak with a man who was walking a chocolate-coloured Spaniel off its lead when the incident occurred.

Then in February, a horse suffered catastrophic injuries after being scared by a group of dogs while out hacking in Herefordshire.

The gelding bolted onto a main road and was in a collision with a pick-up truck, causing him multiple broken bones and other injuries. He had to be put down at the scene.

According to the rider, police attended the scene but as the dogs did not leave a private field their owners are not deemed responsible for the accident.

Defra’s petition response in full

This is the full response from Defra:

“The Government recognises that dog attacks can have horrific consequences, and it takes this issue very seriously. The police and local authorities already have a range of powers available to tackle dangerous dogs and irresponsible dog ownership, including dog attacks on other animals.

“It is an offence under section 3 of the Dangerous Dogs Act 1991 (DDA) for the owner, or other person in charge of a dog, to cause or permit the dog to be dangerously out of control in any place.

“A dog may be considered dangerously out of control if it injures a person or a horse, or it causes a person to fear that it may injure them or their horse, and the person in charge of the dog has no proper control of it. The Crown Prosecution Service will assess whether to proceed with a prosecution under section 3 of the DDA on a case-by-case basis.

“Section 2 of the Dogs Act 1871 allows a complaint to be made to a Magistrates’ Court where a dog is “dangerous and not kept under proper control”. The court may make any Order it considers appropriate to require the owner to keep the dog under proper control.

“Under the Anti-Social Behaviour Crime and Policing Act 2014 the police and local authorities can issue community protection notices (CPNs) to address anti-social behaviour involving dogs.

“A CPN could require the owner of a dog to start doing certain things to reduce the impact of the dog’s behaviour on the community, such as keeping the dog on a lead when in public or attending dog training.

“Under this legislation, enforcement authorities also have powers to make Public Space Protection Orders, insisting that dogs are kept on leads in certain areas.

“The Government currently has no plans to introduce a legal requirement for all dogs to be on a lead in public when in the presence of a horse. There is a careful balance to be struck between protecting the wider public and their horses from dog attacks, the freedom people enjoy when walking their dogs, and the welfare of those dogs, including the freedom to exhibit normal behaviours.

“The Countryside Code already provides comprehensive guidance for dog walkers and highlights that it is best practice to keep dogs on a lead around livestock. 

“Visitors should always check local signs as there are locations where you must keep your dog on a lead around livestock for all or part of the year.  

“It is also important to note that horses fall within the scope of the Dogs (Protection of Livestock) Act 1953 under the definition of livestock. The purpose of the livestock worrying legislation is to tackle the attacking or other worrying of livestock in agricultural settings, including grazing land.

“The Government will continue to do its utmost to reduce the risk to people and communities from dangerous dogs and to prevent any more tragedies.”

View the petition and the government’s response here

Main image © Shutterstock (stock image)

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