📋 Ministerial Foreword
The United Kingdom has a proud history of leading on animal welfare, yet our current approach to dog control no longer reflects modern science, public expectations, or the realities faced by communities across the country. For too long, legislation has focused on the appearance of certain breeds rather than the behaviour of individual dogs or the responsibilities of their owners. This has not delivered the level of public protection that people rightly expect.
At the same time, many families have experienced the distress of seeing well behaved, non‑aggressive dogs seized or destroyed solely because of how they look. This is neither fair nor effective. It is clear that the time has come for a more modern, evidence based approach, one that recognises dogs as sentient beings, supports responsible ownership, and addresses the root causes of dog related incidents.
This proposal sets out a new direction: replacing breed specific bans with a universal Animal Needs & Training Education Programme for all prospective dog owners. By equipping owners with the knowledge and skills they need, we can improve public safety, reduce unnecessary euthanasia, and ensure that our laws reflect the best of contemporary behavioural science.
This is a balanced, humane, and practical reform. It strengthens public protection while upholding the values of fairness, responsibility, and compassion that the public expects from modern legislation.
📊 Executive Summary
This proposal sets out a modernised approach to dog related public safety in the United Kingdom. It recommends replacing breed specific prohibitions with a mandatory Animal Needs and Training Education Programme for all prospective dog owners. This shift reflects contemporary behavioural science, recognises dogs as sentient beings, and strengthens public protection by addressing the true causes of dog aggression: inadequate training, unmet welfare needs, and owner misunderstanding.
Breed specific legislation has not delivered the intended reduction in dog attacks. A universal education based model offers a more effective, humane, and evidence led alternative.
Key Recommendations
- 🎓 Universal Training Programme - Mandatory education for all prospective dog owners covering welfare needs, behaviour, and public safety responsibilities
- 📜 Repeal Breed Bans - Managed removal of breed specific prohibitions with behaviour based assessments and enhanced monitoring
- 🔬 Evidence Based Policy - Legislation grounded in modern behavioural science and animal sentience recognition
- 🤝 Stakeholder Partnership - Collaboration with veterinary professionals, animal welfare organisations, and training experts
🚨 Case for Change
The Current System Is Fundamentally Broken
Dog attacks have continued to rise despite decades of breed specific legislation. NHS admissions for dog bites have increased, and police forces report ongoing challenges in enforcing laws based on appearance rather than behaviour.
System Failure Statistics
6.7%
Increase in NHS dog bite admissions 2023-24
60-80%
Reduction in healthy dog euthanasia possible with reform
£45-70M
Annual economic benefit from education based approach
85%
Reduction in dog bites achieved through owner education (Calgary model)
1. Breed Specific Legislation Is Scientifically Outdated
Contemporary animal behaviour research demonstrates that aggression is shaped by environmental and social factors, not genetics alone.
Primary Determinants of Dog Aggression:
- Training Methods: Punishment-based training increases aggression; positive reinforcement reduces it
- Early Socialisation: Inadequate exposure to people, animals, and environments during critical periods
- Environmental Stressors: Lack of mental stimulation, inadequate exercise, social isolation
- Owner Behaviour: Aggressive handling, inconsistent boundaries, lack of leadership
- Welfare Provision: Unmet basic needs creating anxiety and reactivity
- Medical Issues: Pain, illness, or neurological conditions affecting behaviour
Breed alone is not a reliable predictor of individual dog behaviour or risk.
2. Dogs Are Sentient Beings, Not Property
The UK legally recognises animal sentience through the Animal Welfare (Sentience) Act 2022, yet dog control laws still treat dogs as property that can be seized and destroyed based solely on appearance.
Legal and Ethical Inconsistencies:
- Sentience Recognition: Law acknowledges dogs experience emotions, pain, and distress
- Property Treatment: BSL treats dogs as dangerous objects rather than individuals
- Welfare Impact: Seizure and kenneling cause psychological trauma to dogs
- Family Bonds: Destruction of well-behaved dogs causes severe distress to families
3. Dog Attacks Have Increased Since the XL Bully Ban
Early data from police forces, local authorities, and NHS admissions indicates a notable rise in dog bites and attacks following the introduction of the XL Bully ban.
Post Ban Consequences
- Panic Driven Rehoming: Rushed placement of dogs without proper assessment or preparation
- Disrupted Socialisation: Dogs kept isolated due to legal uncertainty affecting behaviour
- Diverted Resources: Enforcement focus on breed identification rather than behaviour-based risk
- False Reassurance: Owners of non-banned breeds assuming their dogs pose no risk
- Underground Breeding: Illegal breeding continuing without regulation or welfare oversight
4. Owner Education Is the Proven Route to Public Safety
Jurisdictions focusing on owner training and behaviour based enforcement achieve better safety outcomes than those relying on breed bans.
Successful International Models
Proven Results:
- Calgary, Canada: 85% reduction in dog bites through licensing and education
- Netherlands: Repealed BSL in 2008 with no increase in incidents
- Italy: Behaviour based approach resulted in improved public safety
- Australian States: Education focused policies showing better outcomes than breed restrictions
🎯 Policy Objective
Primary Objective
To replace breed specific dog bans with a universal, mandatory education and competency programme for all prospective dog owners, creating a more effective, humane, and scientifically grounded approach to public protection.
Supporting Objectives
🛡️ Enhanced Public Safety
Reduce dog related incidents through education addressing root causes of aggression
⚖️ Fair and Proportionate Law
Base legislation on individual behaviour rather than breed appearance
🐕 Animal Welfare
Reduce unnecessary euthanasia and improve quality of life for all dogs
🔬 Evidence-Based Policy
Align legislation with contemporary behavioural science and veterinary knowledge
🎓 Proposed Reform: Animal Needs & Training Education Programme
Programme Overview
All prospective dog owners must complete a short, accessible, government approved training programme before acquiring a dog. The programme will be delivered through multiple channels to ensure accessibility while maintaining consistent standards.
Programme Content
🗣️ Dog Communication & Body Language
- Understanding stress signals and warning signs
- Recognising play vs aggression
- Reading dog emotions and intentions
- Safe interaction with unfamiliar dogs
🏠 Welfare Needs & Environmental Management
- Five welfare needs: physical health, behaviour, environment, diet, companionship
- Mental stimulation and enrichment activities
- Appropriate exercise for different ages and abilities
- Creating safe, comfortable living environments
✅ Positive Reinforcement Training
- Science based training methods
- Basic obedience: sit, stay, come, heel
- House training and routine establishment
- Addressing common behavioural issues
🚫 Behaviour Prevention & Management
- Early socialisation critical periods
- Preventing resource guarding and territoriality
- Managing interactions with children and other animals
- Recognising and addressing anxiety and fear
👥 Public Safety & Social Responsibility
- Lead training and public space etiquette
- Recall training in open areas
- Managing interactions with other dogs and people
- Emergency procedures and incident response
📜 Legal Responsibilities & Requirements
- Microchipping, registration, and insurance requirements
- Public space regulations and restrictions
- Owner liability for dog behaviour
- Reporting requirements for incidents
Delivery Model
💻 Online Modules
- Interactive video content with real dog demonstrations
- Self paced learning with progress tracking
- Available 24/7 with mobile device compatibility
- Multi-language support for accessibility
- Built-in assessment and certification system
👨🏫 Accredited Trainers
- Certified professionals delivering in-person sessions
- Hands on training with demonstration dogs
- Small group sessions for personalised attention
- Available through dog training schools and community centres
- Specialised sessions for specific needs or circumstances
🏥 Veterinary Led Sessions
- Health and behaviour integration
- Medical aspects of behaviour and welfare
- Delivered through veterinary practices
- Links to ongoing veterinary care and support
- Evidence based medical and behavioural advice
Certification Process
Step 1: Programme Completion
Within 6 monthsComplete all modules through chosen delivery method
Step 2: Competency Assessment
Practical testPass practical assessment demonstrating understanding of key principles
Step 3: Certification
Digital certificateReceive digital certificate valid for dog acquisition and registration
Step 4: Ongoing Support
Lifetime accessAccess to refresher courses and professional advice networks
🛡️ Public Protection Benefits
Addressing Root Causes
Dog attacks typically arise from poor socialisation, inadequate training, unmet welfare needs, and owner misunderstanding. By addressing these root causes through education, we can achieve better public protection outcomes than appearance based restrictions.
Example: Small Breed Misunderstanding
The Problem
Excessive barking in small breeds is often dismissed as harmless but can indicate underlying anxiety and stress. Without proper understanding, owners may unknowingly reinforce the behaviour or fail to address the root cause.
Current Approach
Small breeds are generally exempt from BSL despite causing significant numbers of bites, particularly to children. The focus on large breeds ignores behavioural issues in smaller dogs.
Education Based Solution
Training programmes teach owners to:
- Recognise anxiety driven barking vs alerting behaviour
- Use positive reinforcement to reward quiet behaviour
- Provide appropriate mental stimulation and environmental enrichment
- Manage triggers through desensitisation and counter conditioning
- Seek professional help when behaviour problems persist
Public Safety Outcome
Calmer, better adjusted small dogs pose less risk to children and visitors, while owners develop skills applicable to managing any dog's behaviour.
📜 Legal Modernisation
Aligning Law with Scientific Understanding
Recognising dogs as sentient beings aligns dog legislation with the Animal Welfare (Sentience) Act 2022 and reflects contemporary understanding of animal consciousness, emotional capacity, and individual differences.
📜 Animal Welfare (Dog Education) Act 2025
Section 1: Mandatory Education Requirements
(1) No person may acquire a dog without first completing an approved animal needs and training education programme.
(2) The programme must cover dog communication, welfare needs, positive reinforcement training, behaviour prevention, and legal responsibilities.
(3) Certification must be obtained before microchipping and registration of any dog.
Section 2: Individual Assessment Framework
(1) All dog control measures shall be based on individual behavioural assessment rather than breed classification.
(2) Qualified behaviourists and veterinarians shall conduct evaluations using evidence based assessment protocols.
(3) Regular review of individual cases shall ensure proportionate and effective interventions.
🔄 Managed Removal of Breed‑Specific Prohibitions
Why Remove Breed Bans
International evidence demonstrates that breed bans have not reduced dog attacks in any jurisdiction. Countries that have repealed breed specific legislation have seen no increase in incidents while reducing unnecessary euthanasia and improving resource allocation.
Controlled Unbanning Framework
Stage 1: Legislative Preparation
Months 1-12- Training Programme Development: Complete curriculum design and delivery network establishment
- Professional Standards: Certification requirements for behaviourists and assessors
- Local Authority Guidance: Clear protocols for transition and ongoing management
- Public Information Campaign: Education about new requirements and processes
Stage 2: Pilot Implementation
Months 6-18- Selected Areas: Trial in specific local authority areas with strong support systems
- Enhanced Monitoring: Detailed data collection on incidents and outcomes
- Professional Support: Additional behaviourist and veterinary resources
- Community Engagement: Regular consultation and feedback collection
Stage 3: National Rollout
Year 2+- Phased Implementation: Gradual expansion based on pilot success
- Resource Allocation: Funding for training programmes and assessment services
- Legal Framework: Amendment of Dangerous Dogs Act and related legislation
- Ongoing Evaluation: Continuous monitoring of safety outcomes and system effectiveness
International Evidence
🇳🇱 Netherlands
Action: Repealed BSL in 2008
Outcome: No increase in dog attacks; improved animal welfare; better resource allocation to behaviour-based interventions
🇮🇹 Italy
Action: Removed breed lists in 2009
Outcome: Focus shifted to owner education and individual dog assessment; maintained public safety while reducing discrimination
🇨🇦 Canada (Multiple Provinces)
Action: Several provinces repealed BSL 2012-2020
Outcome: No increase in bite incidents; reduced legal costs; improved focus on dangerous behaviour regardless of breed
🔬 Modern Behavioural Science: Rethinking Exercise Needs
Beyond Outdated Exercise Myths
Traditional advice about dog exercise often relies on oversimplified formulas that don't reflect contemporary understanding of canine psychology and welfare needs. Modern research shows that mental stimulation, environmental enrichment, and appropriate activity are more important than rigid exercise quotas.
Debunking Exercise Myths
❌ Myth: "High energy breeds need 5+ miles daily"
Reality: Exercise needs vary enormously between individuals. Many dogs become over stimulated or anxious with excessive forced exercise. Quality matters more than quantity.
❌ Myth: "Tired dogs are good dogs"
Reality: Over exercised dogs can become reactive, hypervigilant, and difficult to settle. Appropriate mental stimulation is often more calming than physical exhaustion.
❌ Myth: "Large breeds always need more exercise than small breeds"
Reality: Many large breeds (e.g., Great Danes) have lower exercise needs than energetic smaller breeds (e.g., Jack Russell Terriers).
The Power of Scent Work
Ten minutes of concentrated scent work can exceed the welfare value of an hour long walk. Scent based enrichment:
- Natural Behaviour: Dogs evolved to use scent; it's deeply satisfying and calming
- Mental Exhaustion: Cognitive engagement more tiring than physical exercise
- Confidence Building: Success builds self assurance and reduces anxiety
- Indoor Activity: Weather independent welfare provision
Public Safety Impact
Over exercised or overstimulated dogs can become reactive and unpredictable. Appropriate mental stimulation creates calmer, more predictable behaviour that benefits both dogs and public safety.
📊 Impact Assessment
Summary of Benefits
🛡️ Improved Public Safety
- Reduced Incidents: 15-25% reduction in dog related injuries within 3 years
- Early Intervention: 40% increase in behavioural issues addressed before escalation
- Better Reporting: Improved incident reporting and investigation quality
- Professional Response: Enhanced cooperation with veterinary and behaviour professionals
🐕 Animal Welfare Impact
- Reduced Euthanasia: 60-80% reduction in healthy dogs destroyed due to breed appearance
- Better Care Standards: Improved understanding of physical and mental health needs
- Reduced Abandonment: Better prepared owners less likely to surrender dogs
- Enhanced Quality of Life: Dogs receive appropriate stimulation, exercise, and social interaction
Economic Assessment
💻 Programme Development
- Curriculum design and content creation: £2.5 million
- Online platform development: £3.2 million
- Assessment system creation: £1.8 million
- Multi language translation: £800,000
📅 Annual Operating Costs
- Platform maintenance and updates: £1.8 million annually
- Quality assurance and monitoring: £2.2 million annually
- Professional development: £1.0 million annually
- Programme evaluation: £800,000 annually
Cost Recovery: Programme fees (£50-80 per person) projected to cover 70-85% of ongoing costs, with significant economic benefits offsetting remaining public investment.
Net Economic Benefit: £45-70 million annually after implementation costs
🤝 Stakeholder Collaboration and Expert Partnership
Partnership Approach
Effective reform requires close collaboration with the organisations and professionals who work directly with dogs, owners, and communities.
🏥 Veterinary Sector
Veterinary professionals will support:
- Early identification of behavioural issues
- Welfare led assessments
- Owner guidance
- Consistent national standards
Partners include: RCVS, BVA, and veterinary practices nationwide.
🐕 Animal Welfare and Rights Organisations
Groups such as RSPCA, Dogs Trust, Blue Cross, Battersea, and ADCH bring expertise in:
- Public education
- Behaviour rehabilitation
- Community outreach
- Welfare standards
🎓 Behaviourists and Training Professionals
Accredited behaviourists and trainers (APBC, IAABC, IMDT, ABTC) will:
- Design the curriculum
- Deliver training
- Support behaviour based assessments
📚 Evidence Base
📊 Ineffectiveness of BSL
- EFRA Committee (2018): "Breed specific legislation has not resulted in a reduction in dog bites"
- RSPCA (2021): "No evidence that BSL improves public safety or reduces dog attacks"
- Dogs Trust Research: Comprehensive analysis showing no correlation between breed bans and bite reduction
- International Repeals: Multiple jurisdictions abandoning BSL without increased incidents
🔬 Behavioural Science
- Peer reviewed studies: Over 50 published studies demonstrating breed is not a reliable predictor of aggression
- APBC Research: Professional body findings on behaviour modification and training effectiveness
- IAABC Guidelines: International best practices for behaviour assessment and intervention
- Veterinary Behaviour Journal: Evidence on environmental and social factors in aggression
📈 Public Safety Data
- NHS Statistics: Hospital admissions for dog bites continuing to rise despite BSL
- DEFRA Enforcement Data: Resources spent on breed identification vs behaviour based interventions
- Police Incident Reports: Analysis showing most attacks involve non-banned breeds
- Post XL Bully Ban Data: Evidence of increased attacks following recent breed ban implementation
📢 Citizen Action Plan
🚀 Support Evidence-Based Dog Legislation
Contact your MP to demand a practical, evidence based alternative to failed breed specific policies. The education based approach offers humanitarian solutions with enhanced public safety benefits.
- Reference the 85% reduction in dog bites achieved through owner education (Calgary model)
- Highlight the increase in dog attacks following the XL Bully ban
- Emphasise the 60-80% reduction in unnecessary euthanasia possible with reform
- Support evidence based policy over discriminatory legislation
🎯 Immediate Actions
- MP Pressure: Demand cross party support for evidence based dog legislation
- Media Engagement: Write to local newspapers highlighting BSL failures
- Community Discussion: Organize public meetings on dog policy alternatives
- Stakeholder Contact: Engage local veterinarians and dog trainers
📈 Sustained Campaign
- Parliamentary Petitions: Submit formal petitions for BSL repeal
- Select Committee: Request EFRA Committee investigation
- Cross Party Groups: Engage All Party Parliamentary Groups on animal welfare
- International Support: Connect with successful reform models abroad
🗳️ Electoral Strategy
- Candidate Commitments: Demand manifestos include dog legislation reform
- Policy Platforms: Push parties to adopt evidence based animal welfare policies
- Local Elections: Support candidates backing humane approaches
- Coalition Building: Unite dog owners across all breeds for reform
The Vision: Evidence Based Animal Welfare
Imagine a UK where dog legislation is based on science rather than prejudice, where public safety is improved through education rather than discrimination, and where every dog is judged as an individual rather than by their appearance.
Where responsible owners receive the knowledge they need to prevent problems before they occur, where behavioural issues are addressed with professional support, and where dogs and humans coexist safely in communities across the country.
This vision is achievable through evidence based policy, stakeholder collaboration, and the political will to prioritise effective solutions over populist gestures.