Managing equids of unknown ownership

In practice, clinicians may be called to provide urgent medical attention to equids who are of unknown ownership status. Although these cases rarely occur, when the situation does arise it is important to be clear on how to appropriately navigate your way through. Cases typically arise outside regular working hours, where the usual sources of help may not be available. This results in additional stress for the clinician managing the case, potentially resulting in unnecessary suffering for the animal in question.

This toolkit pulls together relevant information from the current animal welfare legislation, RCVS Code of Professional Conduct and has been created in collaboration with welfare organisations including the RSCPA, World Horse Welfare, SSPCA, representatives from the Police and Local Authorities from all areas of the UK. We have provided documents to facilitate vets in following appropriate, validated procedures in which they should be able to access the right help at the right time.

Our working goal is to ensure vets receive a timely and nationally harmonised response regardless of where in the UK they are; thereby upholding our duty to place the animal’s welfare first and foremost.

“I PROMISE AND SOLEMNLY DECLARE that I will pursue the work of my profession with integrity and accept my responsibilities to the public, my clients, the profession and the Royal College of Veterinary Surgeons, and that, ABOVE ALL, my constant endeavour will be to ensure the health and welfare of animals committed to my care.”

Declaration on Admission to the RCVS

Roles and responsibilities

Veterinary Surgeons

Where a veterinary surgeon is called upon by a member of the public to attend an animal is distress, the RCVS Code of Professional Conduct states that they should not unreasonably refuse to provide first aid and pain relief. This may include euthanasia.

The attending veterinary surgeon also has a responsibility to make reasonable efforts to identify and contact an owner of the animal presented prior to undertaking treatment or euthanasia. In all circumstances, the animal’s welfare should be the primary focus of the attending clinician. The term ‘reasonable efforts’ should be interpreted in accordance with the severity of clinical presentation, response to treatment, location and safety of both the animal and people involved.

Under animal welfare legislation, any person with responsibility for an animal may commit an offence if an act, or failure to act, causes an animal to suffer unnecessarily. In the absence of an owner, responsibility for that animal may fall to the veterinary surgeon whilst providing veterinary care. Failing to provide or delaying first aid treatment and/or euthanasia may result in unnecessary suffering, and as such the veterinary surgeon may commit an offence under the Animal Welfare Act 2006.

It is therefore, vital to support clinicians to respond efficiently and effectively, with the confidence that they are doing so to fulfil their professional, legal, ethical and moral responsibilities.

Police officers/Local Authorities Inspectors

A Constable/Inspector has the authority to authorise the destruction of any animal where a veterinary surgeon certifies that it is in such a condition that euthanasia is required for its own interest. This authorisation may be granted remotely where appropriate, and where the authorising party is satisfied with the evidence presented by the clinician.

The RSPCA have published guidance for Police Officers, including a description of what is required of a Police Constable.

In England, Wales and Scotland, Police should be contacted on 999 where the animal is in immediate distress and an urgent response is required to prevent unnecessary suffering. Using the communication statement provided triggers the appropriate procedure from the operator in the Police Force Control Room to access the appropriate assistance to authorise a request for animal euthanasia. Local Authorities Inspectors, generally working as part of Trading Standards, have similar powers to authorise euthanasia.

In Northern Ireland, district councils are responsible for the welfare of non-farmed animals, including equids. Out of hours the relevant regional number should be contacted and calls will be diverted. Contact details can be found in the drop down section below.

Welfare Organisations

Where an animal requires immediate veterinary treatment or euthanasia, and a veterinary surgeon is in attendance, the support of welfare charities (RSPCA/SSPCA/USPCA) is not required, unless a cruelty offence is suspected and an owner identified. Regardless, involvement of the welfare organisation should not delay the treatment or euthanasia of the animal.

The exception is in Scotland, where there SSPCA have powers of entry and to authorise euthanasia under their legislation, so they may be the primary agency called upon. The SSPCA are currently only active during the hours of 08:00-20:00.

Contact numbers/advice lines for support on how to manage cases

RCVS: Advice team on 020 7202 0789 or advice@rcvs.org.uk.

RSPCA (England and Wales): RSPCA National Control Centre 0300 123 8008 (08:00-20:00, for emergency services only)

SSPCA (Scotland): Stray Animals | SSPCA (scottishspca.org) 03000 999 999 (08:00-20:00)

USPCA (Northern Ireland): USPCA | Protecting All Animals 028 3025 1000

Northern Ireland District Councils:

• Belfast: 028 90 270431
• Eastern Area (Lisburn & Castlereagh Council, Ards & North Down District Council): 028 9244 7861
• Northern Area (Mid & East Antrim District Council, Causeway Coast & Glens District Council, Antrim & Newtownabbey Borough Council): 028 2563 3134
• Southern Area (Armagh City, Banbridge & Craigavon Borough Council, Newry, Mourne & Down): 028 37 515800
• Western Area (Fermanagh & Omagh, Derry & Strabane, Mid-Ulster): 028 82 256226

Police: 999

Local Authorities Inspector: enter postcode then search “Trading Standards” to find an AWA appointed inspector

Veterinary Defence Society (VDS): 01565 652737

Equine Register microchip checker

This statement is for the veterinary surgeon to use when contacting the Police for assistance to obtain authorisation for euthanasia. Police should be contacted on 999 for this purpose. The SSPCA are contactable on 03000 999 999, 08:00-20:00.

“My name is .....….....

I am a registered veterinary surgeon, MRCVS registration number is …….....

I am calling to request remote authorisation for the euthanasia of an animal in accordance with:

State the following as appropriate for your location:

ENGLAND or WALES: Section 18(3) of the AWA 2006 ; OR

SCOTLAND: Section 25 of the Animal Health and Welfare Act 2006; OR

NORTHERN IRELAND: Part 3, section 3 of the Welfare of Animals (NI) Act 2011;

as its condition is such that it should in its own interest be destroyed.”

The Police should provide an incident number, which you must record on forms in the appropriate fields. Where relevant, a crime number may also be provided, which must also be recorded.

This statement should trigger the correct response from the Police force control room operator to assist you rather than recommend the relevant welfare charities are contacted instead.

Troubleshooting - what to do if….?

You have no data/phone signal.

Once you have assessed the animal and administered first aid, you may need to leave the scene to get help. Leave the advice notice at the scene so anyone else arriving can see the animal is receiving attention. You may be able to make a 999 call without signal from your network provider, so try before leaving the scene. You may also be able to text 999 and make an emergency SMS message.

If you know the area has no signal, contact the Police prior to your arrival and request someone meets you at the site or a nearby location to ensure you do not end up without assistance.

You don’t have time to acquire a second opinion.

Prioritise the animal’s welfare. Second opinions are just as valid after decisions have been made. Make sure to document your findings and clinical reasoning for the decisions made, along with any opinions that have been made either prior to/after treatment/euthanasia.

The animal requires immediate euthanasia before authorisation can be sought.

Where the animal cannot be stabilised with first aid measures, no-one will expect immediate euthanasia required on welfare grounds to be delayed for authorisation. Efforts to stabilise the patient should be made where appropriate and clearly recorded. Where euthanasia is the sole option, this should be done without delay and the reasons for doing so clearly documented. In all cases, authorisation must be sought as soon after euthanasia as practicable.

You do not receive authorisation for euthanasia in the required time scale to protect the animal’s welfare.

Similarly to the above situation, the animal’s welfare must always take priority. In cases which have received first aid, but destabilise clinically beyond that which is reasonable to support life whilst awaiting authorisation to be processed, euthanasia should be performed without delay. The clinical deterioration and reasoning must be clearly documented and the authorising body updated of the situation as soon as practicable.

You fear for your safety.

If the situation becomes dangerous, or you feel threatened in any way, you must prioritise your own safety and leave the scene. Call 999 and explain the situation requesting immediate assistance. If you believe your safety may be at risk prior to attending, call 999 and request Police attendance at the scene as you leave. Arrange to meet at a nearby location in a place of safety if needed, and enter only with Police accompaniment.

You think you might be trespassing to access the animal.

Contact the Police and do not enter the site without their assistance. In Scotland, the SSPCA have power of entry and Police attendance may not be required. If there is a public right of way, the animal is on public land, or the animal is in clear distress in a field to which there is no private dwelling attached, access may be made.

The Passport Issuing Authority (PIO) or Central Equine Database (CED) cannot be reached to acquire owner details even though the microchip is present and registered.

Access to these organisations is limited to working hours, and from specific organisations. At present, it is highly likely information held by these organisations will not be readily accessible in the timescale required to protect the animal’s welfare. The veterinary decision making must reflect prioritising the animal’s welfare at all times. Where it is practicable to contact these organisations, this should be done, but it is often a good idea to delegate this responsibility to another member of your team, or the Police in the case of the CED.

You recognise the condition as treatable but requires hospitalisation or further intervention.

Where an owner is unknown, the animal must not be removed from the premises without authorisation from the Police. The Police may take advice that the animal can be treated and agree to take the animal into possession for treatment. Unfortunately, this is increasingly unusual without supporting financial funding. Where an owner cannot be identified, financial costs for ongoing treatment will fall to the Practice providing the care, unless otherwise agreed.

Your practice has financial concerns relating to providing veterinary care.

Unfortunately, where an owner cannot be identified, financial costs for ongoing treatment will fall to the Practice providing the care, unless otherwise agreed. According to the RCVS Code of Professional Conduct, veterinary surgeons should not unreasonably refuse to provide first aid and pain relief. This includes euthanasia where indicated. As such, Practices should be prepared to shoulder the financial responsibility for this initial triage process. Practices may submit a claim form to BEVA for review by the Emergency Rescue Fund should this be thought appropriate.

You are leaving the site following euthanasia by lethal injection.

The BEVA Guidance Notes cover who to contact for carcass management following euthanasia. It is prudent to make reasonable attempts to cover the carcass to avoid scavenging as far as possible and support assistance with removing the carcass in a timely fashion. Methods of euthanasia other than Somulose may also be considered where it is likely the carcass collection may be delayed. 

See FVE/FEEVA Best Practice Protocol for Euthanasia of Horses for more information. 

The BEVA Advice Notice should be completed and left secured in a prominent location so that anyone managing the carcass is aware of the means of euthanasia employed. This should be photographed and uploaded to the clinical record.

Top tips to avoid trouble

Be familiar with the key aspects of the relevant animal welfare legislation in your geographical area. Links to the relevant devolved legislation can be found in the Guidance notes below.

Keep detailed contemporaneous clinical notes and document clinical reasoning. The BEVA Worksheet will prompt you to record the less common but essential details.

Acquire supporting evidence. Take photos or videos of the scene and case and upload these to the clinical notes where relevant.

Phone a friend. Make sure you gain a second opinion to validate your concerns and share your decision making. These are highly emotive situations and even where clear cut, support from colleagues is valuable.

Do not trespass. If you are unsure about whether you can access the animal’s location legally, contact the Police for advice.

Prioritise the animal’s welfare. Once you have made your clinical evaluation, gather immediate information/evidence (photos, video, bloods etc.), provide first aid and euthanasia in the order you determine to be appropriate. The task list and worksheet have been created to act as prompts, not to dictate the order of action.

Stay safe. Make sure a colleague or friend know where you are going, and if there are any safety concerns call the Police for urgent assistance. Take a colleague (vet/nurse or other colleague) where possible.

A veterinary surgeon should attend the scene to assess and triage the case, and provide first aid and pain relief as appropriate.

A veterinary surgeon has a duty to attend an animal in distress to relieve pain and suffering.

Initial contact with practice

• Document name and contact details of the person requesting veterinary intervention, including their relationship to the animal in question.
• Try to establish owner/keeper/keepership status: ask the caller who owns, or who they suspect owns the animal; do they recognise them; where might it have come from etc?
• Record the animal’s presenting complaint.
• Record location of animal in question (///W3W) and identify potential access issues, e.g. private land, right of way through private land, public land, highway etc. If legal access is uncertain, the Police should be asked to attend to prevent trespass violations. In Scotland, the SSPCA have powers of entry, as well as appointed Local Authorities officers.
• Identify the landowner/keeper where possible to request access permission.
• Call for police assistance to ensure legal and safe access to the animal, if they are located on private land without access permission.

On site

• Introduce yourself and identify where the animal is located.
• Ensure there is a legal access route to the animal and/or document who has permitted access, e.g. yard owner/keeper/Police/Local Authorities Inspector (if appointed)/SSPCA (Note: the RSPCA do not have powers of entry).
• Call 999 for police assistance to ensure safe and legal access to the animal if it becomes apparent this is necessary.
• Record the Police incident number, and where relevant, the crime number.
• Undertake a dynamic risk assessment of the environment, including general public, hazards etc).
• Make clinical appraisal including scanning for microchip and provide appropriate first aid.
• Establish onward plan for animal according to the following criteria:
  • Physical health concerns resolve after treatment. Leave on site in a safe and secure environment.
  • Physical health concerns stabilised with first aid. Further interventions/monitoring required with potential for resolution. Requires relocation to more appropriate facilities. Euthanasia may be appropriate.
  • Physical health concerns requiring immediate euthanasia on welfare grounds, despite first aid intervention.

In all cases an Advice notice should be completed and left at the scene. Where treatment has been provided for animals left on site, this should be accompanied by an Equine requiring emergency treatment in the absence of a passport form. Photographic evidence should be kept of both form and notice in situ.

Supporting guidance

Relevant RCVS Code of Professional Conduct supporting guidance:

Providing first aid and pain relief (sections 3.7-3.10)

Conscientious objection (section 2.29)

All reasonable attempts should be made to contact the owner/keeper, and these should be documented. 

The term ‘reasonable’ should be proportionate to the severity of the clinical presentation. The extent of attempts made also depends on the response to treatment and location of animal. In all circumstances, the animal’s welfare should be the primary focus of the attending clinician. Rarely, attempts to identify the owner might be made post-mortem.

• Scan microchip and trace:
  • Equine Register microchip checker provides details of horse, passport issuing authority (PIO) and food producing status information.
  • Central Equine Database: Local Authorities Animal Health Officers, often within working Trading Standards Service, have data access 10:00-16:00 only.
• If the microchip is registered, contact the PIO/chip company and request they contact they owner. If owner does not reply, proceed as if without owner.
• Ask if there is a known owner/keeper? 
  • If yes:
    • Document name, contact details and number of contact attempts made.
    • If there are nearby properties, enquire if the animal is recognised/owned.
    • If name of owner/keeper is established without contact details, proceed as if without owner.
  • If no: 
    • document type and number of attempts made to identify an owner and proceed as dictated by the welfare needs of the animal.
• If no microchip is found, permanently identify animal for records by implanting a new microchip, document signalment, draw ID where possible. Consider alternative identifying markers, e.g., plait in mane with name tag; spray paint ID etc.

Record contemporaneous notes of the clinical examination and clinical reasoning supporting decisions made.

• Make detailed contemporaneous notes using the BEVA Worksheet. This document should be a factual summary and strictly objective. It is used to evidence your clinical opinion in recommending treatment/euthanasia and a copy should be provided by email to the Police/Local Authorities Inspector/SSPCA when seeking authorisation.
• Note the animal’s position on arrival at your first observation; including whether the animal can stand unaided, remains in recumbency or makes failed efforts to stand despite reasonable encouragement.
• Assess posture and gait, noting whether any limb is persistently rested and note whether lameness is apparent at walk. Provided it is safe to do so, and the degree of lameness or injury noted at rest or walk does not preclude this, then a brief period of trotting in hand may be performed, and an approximate lameness grade noted.
• Consider supporting your records with voice recording(s) to add further detail to clinical records off site, photos, video etc.
• Include description of site and clinical concerns, working diagnosis or prioritised differential diagnosis list, first aid treatment administered and clinical response.
• Make ongoing clinical plan.
• If clinical signs resolve, issue the necessary management advice to person(s) who reported concern/those on site. Ensure the animal is safely secured before leaving the site. The landowner may be referred to the Control of Horses Act (devolved) on how to manage removal of the animal from the premises.
• Where the animal is stable but requires further intervention, or is an unsecure or unsafe location, the Police must be contacted. The clinician must decide whether to advise the animal should be removed to a safe location or euthanased on welfare grounds.
• Failure to respond to treatment requires immediate euthanasia.
• When documenting your veterinary opinion consider using the statement “As a result of my documented findings, in my professional opinion the condition of the animal is such that it should in its own interest be destroyed”.

Where euthanasia is thought to be required, a second veterinary opinion should be sought prior to euthanasia where welfare needs allow. Where welfare needs dictate, a second opinion following euthanasia may be more appropriate.

• Seek a second veterinary opinion. This may be from another colleague within the same veterinary practice, or from a veterinary surgeon in another veterinary practice, i.e. a secondary referral centre.
• Where a direct second opinion clinical examination is not practical, this may be achieved via video conference where possible, coupled with an appraisal of objective clinical observations and photo and/or video evidence.
• Document the name of the veterinary surgeon and the outcome of the second opinion.

Supporting guidance

Relevant RCVS Code of Professional Conduct supporting guidance:

Euthanasia without the owner/keeper/keeper's consent (sections 8.12 and 8.13)

Authorisation for euthanasia should be obtained from the Police or AWA appointed Inspector, in accordance with relevant regional welfare legislation. A euthanasia certification form should be completed by the veterinary surgeon citing the constable or inspector as the authorising party, in place of the standard euthanasia consent form.

Gaining authorisation from the Police or an AWA appointed Inspector

• Contact the appropriate authorising body by region:
  • England and Wales: Police or Local Authorities Inspector.
  • Scotland: Police, Local Authorities Inspector or SSPCA
  • NI: Local Authorities Inspector
• Record the Police incident number, and where relevant, crime numbers.
• Other welfare organisations (RSPCA/WHW) do not need to be contacted/involved.
• Request authorisation for euthanasia of the animal to relieve suffering in accordance with the relevant section of welfare legislation (above).
• A euthanasia certification form should be completed using the authorising constable or inspector as the consenting party.
• Evidence required by the constable or inspector is as follows: RCVS registration number, worksheet, and completed euthanasia certification form.
• Provided that the constable or inspector is satisfied with the evidence provided by the Veterinary Surgeon, the authorisation may be granted remotely.
• Veterinary surgeons must record the name of constable or inspector, collar number and incident log number.
• All documents should be attached to the patient records as well as sent by email to the relevant authorising department.

Supporting Guidance

England and Wales - Animal Welfare Act 2006

18 Powers in relation to animals in distress

(3) If a veterinary surgeon certifies that the condition of a protected animal is such that it should in its own interests be destroyed, an inspector or a constable may—

(a) destroy the animal where it is or take it to another place and destroy it there, or

(b) arrange for the doing of any of the things mentioned in paragraph (a).

Scotland - Animal Health and Welfare (Scotland) Act 2006

35 Resort to destruction of animals

(1) If a veterinary surgeon certifies that the condition of a protected animal is such that it is appropriate that it be destroyed, an inspector or a constable may—

(a) destroy the animal where it is or take it elsewhere and destroy it there, or

(b) arrange for the taking of any of those steps.

Northern Ireland - Welfare of Animals (Northern Ireland) Act 2011

Part 3 Animals in Distress

Powers in relation to animals in distress

(3) If a veterinary surgeon certifies that the condition of a protected animal is such that it should in its own interests be destroyed, an inspector or a constable may—

(a) destroy the animal where it is or take it to another place and destroy it there; or

(b) arrange for the doing of any of the things mentioned in paragraph (a).

Recommendation 6: The veterinary surgeon should advise the relevant person/authority of their obligations relating to carcass collection.

Carcass Management

• Carcasses should be covered whilst awaiting collection/disposal to prevent animals and birds gaining access, the legislation requires carcasses to be disposed of without undue delay.
• Where an owner is unknown, the carcass location should be reported to Trading Standards for them to follow up with landowner/arrange collection. Find an appointed Local Authorities Inspector and search 'Trading Standards'.
• Where the animal is euthanased on private land and the owner/keeper could not be identified, it is the landowner/keeper’s responsibility to arrange collection of the carcass. The landowner/keeper will be liable for financial obligations associated with this arrangement.
• Where the animal is euthanased on public land or a highway, the regional Local Authority is responsible for collection of the carcass and the associated costs. Example: ‘We are responsible for collecting dead animal carcasses from highways, lay-byes, bus shelters, subways, council car & coach parks and recycling bring sites’. (Wealden District Council, East Sussex).
• Should the carcass require collection from a motorway the National Highways are the responsible authority 0300 123 5000 or info@highwaysengland.co.uk.

Supporting Guidance

Fallen Stock guidance (England, Scotland and Wales) key points:

• If a carcass is dumped on your land then, wherever possible, the owner/keeper/keeper of the animal will be responsible for its disposal.
• If the owner/keeper cannot be identified then you will be expected to arrange for the disposal of the animal using an approved disposal method.

Fallen Stock guidance (Northern Ireland) key point:

• Where a carcass is dumped elsewhere, including on public land or highways, and owner/keepership of the carcass cannot be ascertained, responsibility for disposal rests with the local authority.