Unlimited fines loom for dog owners under new livestock protection law near Exeter

Rural police officers and farmers across Devon have welcomed new legislation aimed at tackling dog attacks on livestock, with the strengthened law expected to have a direct impact on rural communities surrounding Exeter.

The Dogs (Protection of Livestock) (Amendment) Act 2025, passed by Parliament in December, will come into force on 18 March 2026.

 It introduces tougher penalties for irresponsible dog ownership, including unlimited fines, and significantly expands police powers to investigate incidents of livestock worrying.

Livestock worrying refers to incidents where dogs chase, attack or cause distress to farm animals such as sheep and cattle. 

Even when no physical contact occurs, the stress caused can result in serious injury, death or the loss of unborn lambs. 

The updated legislation extends legal protection to alpacas and llamas and, for the first time, makes incidents on roads and public footpaths offences, in addition to those taking place in fields and enclosed land.

For farmers on the outskirts of Exeter, where public rights of way frequently cross grazing land, the changes are being seen as a crucial step. 

Devon & Cornwall Police’s Livestock Lead, Rural Affairs Officer PC Jules Fry, said many incidents stem from a lack of awareness among dog owners.

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“Many dog owners may not be aware of livestock worrying laws or may think their dog momentarily chasing farm animals is harmless, but these incidents can cause animals to experience extreme stress, which can lead to pregnancy loss, injuries and fatalities,” he said.

“The best way to protect both dogs and livestock is for owners to keep their dogs on a lead anywhere near livestock, or where livestock could be encountered.”

Local farmers say the impact of dog attacks can be devastating. A sheep farmer grazing land close to public footpaths near Exeter said incidents often go unreported.

“People don’t always realise the damage that’s done,” he said. 

“We’ve had sheep miscarry after being chased, even when there were no visible injuries. It’s heartbreaking and it’s entirely preventable.”

Animal welfare charity Dogs Trust has said it supports tougher penalties for livestock worrying, while stressing that enforcement should be matched with education and better data collection. A spokesperson said the charity recognises the serious impacts these incidents have on farmers and their animals.

“In theory, the introduction of these penalties should reduce the problem,” the charity said, “however it will be difficult to measure the impact due to the lack of consistent reporting of incidents of livestock worrying, which makes assessing the true scale of the problem difficult.”

Dogs Trust added that alongside tougher penalties, it strongly encourages mandatory, standardised data gathering and reporting to help quantify the problem and identify what actions are most effective in reducing incidents.

Under the amended Act, police will have wider powers to seize and detain dogs suspected of worrying livestock, enter premises under warrant to collect evidence and take forensic samples such as DNA or mouth impressions. 

Courts will also be able to order owners to cover the costs of seizing and detaining dogs.

PC Fry said the new powers would allow officers to take firmer action. 

“The changes in the new bill will bring stronger powers which will allow us to thoroughly investigate incidents of livestock worrying and to take action against irresponsible owners whose dogs are proven to have caused harm to innocent animals,” he said.

Dogs Trust has also urged responsible dog ownership in rural and semi-rural areas, advising owners to keep dogs on a short lead whenever livestock are nearby. 

The charity said dogs may be able to smell or hear animals before owners can and that vigilance is essential, even on familiar routes.

“Good recall training is essential and should be regularly refreshed,” the spokesperson said. 

“Chasing is a natural dog behaviour, and any dog can worry livestock through actions such as running, stalking, or play. Even well-trained dogs can cause harm.”

The charity also highlighted a common misconception among owners that strong recall makes it safe to let dogs off lead, even where signage requires them to be on a lead. 

Dogs Trust warned that livestock can be distressed even through fences or gates and that animals may react differently depending on the environment.

National figures highlight the scale of the issue. 

A survey by the National Sheep Association found that almost 87 per cent of sheep farmers experienced at least one dog attack on their flock in 2024, while the National Farmers Union estimates the cost to the industry at nearly £1.8 million.

NFU Devon has described the legislation as a major milestone after years of campaigning. NFU vice-president Rachel Hallos said: “This is a huge victory for the farming community and a moment of real relief for livestock keepers across the country. 

“Attacks by dogs on livestock have devastating impacts on farmers, their families and their animals, and we have consistently called for stronger protections to tackle this issue.”

Another Devon farmer, Braunton-based Trevor Wayborn, who is due to speak at an upcoming police awareness event, said even well-behaved dogs pose a risk.

 “Even the most friendly and well-trained dogs have a natural instinct to chase, and we know that as we’ve been victims of livestock attacks ourselves in the past,” he said.

Devon County Council has stressed that while Devon & Cornwall Police are the relevant enforcement body under the new legislation, land managers and graziers also have an important role. 

Advisory signage along public rights of way is discretionary, with support available from the council’s Public Rights of Way team.

The council said it works cooperatively with farmers, landowners, police and other stakeholders to encourage appropriate, considerate and lawful behaviour. 

Information on the legislation is provided by Defra, while council webpages direct the public to Devon & Cornwall Police guidance on animal and wildlife crime.

An educational livestock worrying event will take place on Wednesday 4 February at Blisland Village Hall as part of wider efforts to reduce incidents across Devon and Cornwall. 

Police and animal welfare organisations are urging dog owners in Exeter and surrounding rural areas to familiarise themselves with the new law ahead of its introduction and to keep dogs on leads near livestock to prevent avoidable harm.