Who let the dogs out?
Dog Law Ireland maintains that current legislation is barking up the wrong tree. Hannah Unger, Demi Mullen, and Carrie McMeel blow the dog whistle to suggest how we can best help man’s best friend
In August 2024, we founded Dog Law Ireland. It came together at a pivotal point in Ireland’s dog-control landscape – shortly after the announcement of Ireland’s first breed ban.
This moment crystallised an urgent issue the founders had long observed: very few people, even within the legal and enforcement sectors, truly understand Ireland’s dog laws and the consequences for breaching them.
Dog Law Ireland’s mission is simple: to make dog law accessible and to promote evidence-based reforms and improved enforcement.
Dog me around
In its first year, the organisation has already had a meaningful impact on the national conversation about dog welfare, such as:
- Submitting open letters to the Minister for Rural and Community Development highlighting concerns about the Control of Dogs (XL Bully) Regulations 2024 (SI 491/2024),
- Launching a ‘Pawsitive Pledge’ for general election candidates to sign, committing to prioritising dog-welfare reforms,
- Engaging directly with TDs and senators to discuss proposals for private members’ bills aimed at improving dog law,
- Submitting numerous freedom-of-information requests and parliamentary questions to ensure transparency and accountability in the development and enforcement of dog-related policies,
- Assisted the Naturewatch Foundation to update its dog-breeding map to include Ireland, and
- Creating social-media content aimed at educating the public and affected stakeholders about dog laws in Ireland, and highlighting possibilities for reform.
One of Dog Law Ireland’s proudest achievements to date has been in supporting the legal team in a successful judicial review challenge against the Minister for Rural and Community Development regarding certain aspects of the regulations.
The judicial review was brought on behalf of six small, under-resourced dog-rescue centres, challenging a number of issues with the regulations, among them:
- The fact that they were extremely unclear (particularly in relation to the definition of an ‘XL Bully type’, arbitrarily capturing many other breeds), and
- They had no effective appeals process, despite carrying serious criminal penalties and the potential for dog euthanasia.
Black dog
Because of the judicial review, the Government has agreed to add an appeals process and clarify the law in amending regulations – an important legal win, but one that should never have been necessary.
In addition, an injunction was obtained to prevent dog wardens from seizing/ euthanising dogs from charitable organisations, pursuant to the regulations, until the law was clarified.
This resulted in potentially saving the lives of countless innocent dogs that otherwise would have been euthanised.
We still await the minister’s amending regulations and, therefore, it remains to be seen how effectively the issues will be addressed.
There is a requirement to ensure public safety and protect dog welfare – however, a breed ban is not the answer. This is demonstrable through the fact that countries that have introduced breed bans have not seen a reduction in dog attacks.
Prior to the initiation of the judicial review, Dog Law Ireland wrote to the minister, proposing alternatives to a breed ban, such as:
- Introducing stricter penalties (and jail time) for owners who fail to act on a dog’s known aggression,
- A mandatory ‘theory test’ to obtain a dog licence (valid for ten years), which could cover areas like socialisation, responsible ownership, dog body language (to prevent bites), the risks of using painful training tools, etc,
- Hiring more dog wardens to increase enforcement of current laws,
- Mandatory annual veterinary check-ups, since pain is often a contributing factor in aggression,
- Thorough investigation of dog bites to collect data on breed, owner history, training, where the dog was sourced, and incident-circumstances to inform policy,
- Increasing enforcement for dog licences and using the fees to invest in better regulation and dog welfare,
- Regulating the dog-training industry and banning aversive training methods – techniques that use unpleasant or punishing stimuli to discourage unwanted behaviours in dogs – since studies show they increase aggression,
- Temperament testing for restricted breeds, similar to the approach taken in Germany, and
- Setting up an independent regulator, similar to South Australia’s Dog and Cat Management Board. This state-government statutory body is responsible for planning, promoting, and providing advice on dog and cat-management practices. It oversees the administration and enforcement of the state’s dog and cat-management laws. Such an independent regulator would:
- Educate the public on responsible dog ownership and bite prevention,
- Develop policies on dog control and welfare, and
- Oversee local councils on dog breeding and control.
While Dog Law Ireland received an acknowledgement email from the minister’s office in reply, there was no substantive response. At present, there appears to be no plan in the near future to explore alternative avenues, such as those laid out above.
Dog eat dog
Ireland is at a critical juncture when it comes to dog welfare. Rising dog-ownership rates, the ongoing consequences of the pandemic and the housing/rental crisis, along with a rising number of dog attacks have placed increased scrutiny on the country’s laws governing dogs.
At a high level, Ireland’s dog laws can be broken down into three categories:
- The control of dogs,
- The breeding of dogs, and
- The welfare of dogs.
Dog Law Ireland believes that the laws in relation to each of these areas are in need of reform and better enforcement.
The Control of Dogs Act 1986, though foundational, is now almost four decades old. Dog ownership and society’s attitudes towards dogs have changed dramatically in that time, but the legislative framework has not kept pace.
As a result, owners, rescue centres, local authorities, and enforcement agencies are often left navigating outdated, ambiguous, and inconsistently applied laws.
Old Shep
Meanwhile, the country still carries the shameful title of ‘puppy-farm capital of Europe’. Legal loopholes and poor enforcement continue to allow unethical breeding – overburdening rescue centres and shelters. Urgent reform of Ireland’s dog-breeding laws is needed.
While the Animal Health and Welfare Act 2013 does allow for broad protection against animal cruelty, it is overdue reform and, much like all of Ireland’s dog legislation, is significantly lacking in terms of enforcement.
This is problematic in and of itself, but even more so given the proven link between violence towards animals and violence towards humans.
Furthermore, even when prosecutions are taken, sentencing is often light and does not act as a deterrent.
Dog Law Ireland believes that the way forward lies in thoughtful reform, grounded in empirical evidence, legal clarity, and compassion.
Issues such as responsible dog ownership, regulation of breeding practices, enforcement of welfare standards, and the prevention of cruelty all require modernised laws that are fit for purpose and that are properly enforced.
Walking the dog
Dog Law Ireland’s vision for the future is clear:
- Expand educational efforts to ensure that all stakeholders – including gardaí, Government personnel (such as local authorities and policymakers), legal professionals, rescue centres, veterinary professionals, and those in the dog industry generally (including dog trainers and dog minders) – understand their rights and responsibilities,
- Empower these stakeholders with the tools and knowledge they need to make a positive difference,
- Advocate for evidence-based legal reforms that protect both people and dogs.
We are working on a number of exciting projects, including:
- Turning the suggested reforms outlined in Fieldfisher’s report, Key Reforms to Dog Breeding in Ireland, into a draft private members' bill, which will be brought forward by Jennifer Whitmore TD,
- A campaign dedicated to advocating for legal reforms to better protect sighthounds used in ‘sport’,
- Working with Senator Chris Andrews, who has established a dog-welfare society in the Dáil and has asked us to provide an Oireachtas briefing later this year,
- Preparing for upcoming webinars we have been asked to give by a number of organisations, including The Links Group and The Irish Veterinary Behaviour Association.
Something we have learned in our first year of Dog Law Ireland is that the legal profession has a big role to play in making life better for Ireland’s dogs – whether by educating, advocating, or simply by understanding the existing law.
We are realistic about the challenges ahead but remain optimistic. With passion, persistence, and partnership, real change is possible – and Ireland’s dogs will be the better for it.
For more information, or to get involved with Dog Law Ireland, visit www.doglawireland.ie.
Hannah Unger is a public and regulatory law solicitor with Fieldfisher Ireland LLP. She also leads a pro bono team focused on reviewing dog laws and proposing reforms. Demi Mullen is an investment funds solicitor who co-established Animal Law Network Ireland with a colleague in 2024. Carrie McMeel is a regulatory solicitor who regularly advises dog rescues on a range of legal matters, including governance and compliance, and has drafted their policies and internal procedures.