Would you donate to dogs in need if you had no way of knowing whether the shelter was neglecting the dogs? Or would you put your dog in a kennel without knowing that the shelter would keep him safe? What would you think of a company that charges high adoption fees for rescued dogs and threatens to send the dogs away to be slaughtered for human consumption if you don’t pay?
Dogs, cats, and many other pets are protected from these injustices in Colorado, but horses are not because our equine industry is unregulated. In Colorado, the Pet Animal Care Facilities Act (PACFA) protects dogs and cats by ensuring that businesses and animal rescues meet standards of care. However, there are no similar protections for horses, creating significant welfare and consumer protection issues.
It was during my time as director of the Bureau of Animal Protection for Colorado that I first learned of the magnitude of the horse-related challenges our state faces. While working with law enforcement across the state to address animal abuse, I quickly became inundated with horse cases. For example, some so-called animal shelters neglected the horses in their care, relocated their operations to avoid detection, and made it difficult for donors to know the true condition of the facilities. In addition, negligent breeders sold horses in poor condition, with some horses even having to be euthanized due to severe emaciation and untreated medical conditions.
Concerns also arose because boarding kennels did not maintain proper health standards, leading to the spread of diseases such as strangles. In addition, companies exploited the system by selling unwanted horses to rescuers and transporting unsold horses out of the state to be slaughtered for human consumption. Some rescuers purchased these horses but then released them onto public land, leading to a growing population of feral horses in some parts of the state that competed with native wildlife and cattle for feed.
These problems place a significant burden on our law enforcement agencies.
Through recent research, I found that there were 893 investigations of equine cruelty in 2021-2023 across 12 law enforcement, nonprofit, and regulatory agencies in Colorado. A total of 71 investigations resulted in criminal or civil charges. Of those, 23 charges involved 8 large facilities such as breeding, boarding, and rescue operations—meaning these facilities are repeat offenders. In just one year, these 12 law enforcement agencies took 355 horses away for mistreatment. In one 2022 neglect case reported by the Colorado Humane Society, 52 horses had to be euthanized because they were severely lame or suffering medically.
There are important efforts in the state to address these issues, but they are limited. The Colorado Unwanted Horse Alliance works to improve equine welfare by supporting horse rescues and raising awareness about responsible horse ownership. Recent legislation, HB 24-1458, created the Division of Animal Welfare and provided funding for an equine welfare grant program. However, these measures do not address consumer protection concerns, ensure that rescues meet basic animal welfare standards, and do not prevent horses from being transported to slaughter.
Proactive solutions are needed to close the gaps in horse welfare. States such as Maryland and New Mexico offer models with regulatory programs that include licensing and regular inspections to ensure that facilities that recruit horses meet animal welfare standards. Both the Maryland Horse Industry Board and the New Mexico Livestock Board have the authority to inspect certain facilities and enforce standards, and are funded in part by licensing fees. These programs could serve as a blueprint for Colorado, where a similar model could regulate rescue and service horse businesses.
Adopting a regulatory approach similar to PACFA for facilities and emergency services that use service horses could ensure humane treatment and protect both the animals and consumers. This proactive stance would address problems before they require law enforcement intervention and create a safer and more transparent environment for horses and their owners.
Rebecca Niemiec is director of the Animal Human Policy Center at CSU and former director of the Colorado State Bureau of Animal Protection.
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