The Issue

Across New Zealand, dog control bylaws are being updated without a consistent, evidence-based framework for assessing professional dog handling competency.

This has resulted in different standards across councils, creating confusion for the public, inconsistency in enforcement, and increased risk in shared public environments.

Current bylaws often rely on blanket numerical limits, such as allowing any individual to walk up to four dogs, without requiring demonstrated practical, real-world competency.

However, managing multiple dogs in public is not simply a matter of numbers. It requires:

Behavioural assessment and threshold management
Environmental awareness and risk mitigation
Control under distraction and emergency scenarios
Understanding of canine welfare, stress, and group dynamics
Without a mechanism to assess these skills, competency is assumed rather than proven.

 

Lack of Data and Differentiation

There is currently no clear, segmented data distinguishing casual dog owners from professional dog handlers.

Using Christchurch as an example:

Approximately 45,000 registered dogs
Approximately 35,000 registered owners
An estimated 30–50 professional dog walking operators
Only 9 known exemption applications submitted to date
This represents well below 1% of the dog-owning population.

Yet reforms have been justified in part due to concerns around “professional dog walkers”.

This raises a critical question:

How are complaints being identified, categorised, and attributed — if there is no formal mechanism to distinguish between casual ownership and professional handling?

 

Environmental Pressure and Behavioural Risk

Recent bylaw changes have introduced restricted areas, reducing available off-lead space and concentrating dog activity into limited green zones.

This creates:

Increased dog density
Reduced ability to manage space and thresholds
Higher likelihood of frustration-based behaviours
Increased risk of reactivity and conflict
At the same time, more dogs are required to be on-lead in public spaces — without any requirement to demonstrate handler competency.

Without education and competency:

Leads can increase tension and reactivity
Handlers may lack the skills to de-escalate situations
Behavioural stress builds in confined environments
Environmental pressure + lack of competency = predictable risk

 

Infrastructure and Implementation Gaps

These changes have not been supported by:

Adequate infrastructure (e.g. appropriate off-lead spaces)
Public education on dog behaviour and handling
Clear competency expectations
This results in pressure being shifted, not resolved.

 

Proportionality and Public Access

Dog owners are rate-paying members of the public.

Access to public space must remain:

Proportionate
Evidence-based
Fair and consistent
Where restrictions are introduced without supporting frameworks or infrastructure, this risks:

Reduced fair access to public spaces
Increased conflict between users
Reduced overall safety outcomes

 

National Context

Across New Zealand:

Approximately 830,000 dogs
Around 530,000 are registered
This leaves approximately 300,000 dogs outside the system.

This raises a key question:

How do restrictions on a small professional group address non-compliance at this scale?

 

The Core Problem

Current bylaws risk regulating based on assumption rather than evidence.

Anyone can walk multiple dogs without proving competency
Academic or theoretical knowledge does not equal practical capability
Real-world handling skills are not being consistently assessed
Dogs require safe, competent handling in real-world environments — not assumed capability.

 

What Has Changed

For the first time in New Zealand, NZQA-listed and approved workplace certifications are now available.

These include:

Junior
Intermediate
Advanced
These pathways assess:

Practical handling ability
Real-world decision making
Behavioural understanding under pressure
There is now a clear, measurable way to assess competency.

 

Why This Matters

Existing legislation already sets expectations:

Dog Control Act 1996 — dogs must be under control
Animal Welfare Act 1999 — welfare needs must be met
Health and Safety at Work Act 2015 — risks must be managed
But without competency frameworks:

Capability is not measured
Enforcement is reactive
Decisions lack consistency

 

The Risk

If exemptions are granted:
→ Consistency cannot be proven

If exemptions are declined:
→ Fairness cannot be proven

If exemptions are broadly approved:
→ Competency is not being assessed

Who is assessing competency — and based on what standard?

 

Proposed Transition and Nationwide Pilot Programme

To support a practical and fair transition toward competency-based regulation, we are proposing a nationwide pilot programme implemented across all councils in New Zealand.

A national approach ensures consistency from the outset, rather than fragmented regional systems.

The programme would include:

Nationwide rollout across all councils
Subsidised access to NZQA-listed and approved certifications
Assessment of Prior Learning (APL/APLES) for experienced professionals
Standardised competency assessment criteria in real-world environments
Collaboration between councils, industry bodies, and accredited assessors
Centralised data collection to inform legislation

 

Reducing Barriers to Compliance

To be effective, reform must be accessible nationwide.

This includes:

Scholarships or partial funding support
Recognition of existing experience
Clear progression pathways (Junior, Intermediate, Advanced)
This ensures:

Competent professionals are not excluded
Standards are applied consistently
Compliance is achievable, not punitive

 

Why a Nationwide Approach Matters

A fragmented approach risks:

Continued inconsistency
Public confusion
Unequal access
A nationwide model ensures:

Consistency across all councils
Comparable data for the Dog Control Act review
A scalable system for legislation

 

The Outcome

A national, competency-based system would deliver:

Improved public safety
Better animal welfare outcomes
Clear distinction between casual and professional handling
Consistent standards across New Zealand

 

What We Are Asking For

We are calling on the New Zealand Government to:

Implement a national competency framework
Recognise NZQA-listed certifications
Introduce clear, transparent assessment criteria
Move from blanket limits to competency-based thresholds
Support transition through a nationwide pilot programme

 

Call to Action

Support the introduction of a national, competency-based framework for dog handlers.

Because when it comes to managing dogs in public:

Competency must be demonstrated — not assumed.

 

Disclaimer

This petition is for advocacy and public awareness purposes and does not constitute legal advice.