Conclusions of the 2nd Forum on Equine Welfare

The forum took place at the headquarters of the Ministry of Social Rights, Consumer Affairs and Agenda 2030, and was opened by the Directorate-General for Animal Rights, who generously hosted the event, and the Animal Welfare Division of the Ministry of Agriculture, Fisheries and Food.

José Ramón Becerra Carollo, Director General for Animal Rights (DGDA), highlighted in his speech that, although farm animals do not fall directly within the remit of his department, the welfare of equines is a key concern.

He stressed that the DGDA headquarters is a space dedicated to the defence of both human and animal rights. He also noted achievements such as the inclusion in Law 07/2023 of a ban on the use of leg traps for equines and their use in mechanical rides and fairground carousels.

He further announced that the DGDA is working on a project to develop electric carriages for municipalities wishing to replace animal traction. Finally, he expressed his support for animal protection organisations, acknowledging their efforts and assuring that they will continue to receive financial and logistical backing from his team.

Mª Teresa Villalba Rodríguez, Director of the Animal Welfare Division at the Ministry of Agriculture, Fisheries and Food, thanked the organisers and the Ministry of Social Rights for hosting the forum. She emphasised the complexity of the various uses of equines, as they may be considered companion animals, bred for meat production, used in ecosystem services or therapy.

She stressed the need to balance these uses with the recognition of equines as sentient beings, with intrinsic value beyond their utility. She also explained that the Ministry acts as a liaison between European institutions and regional and municipal administrations, which are responsible for enforcing legislation. While no new regulations are currently underway at the European level, there are voluntary guidelines, such as the “Best Practice Guide on the Welfare of Horses during their Keeping, Care, Training and Use”, which she emphasised should be promoted. 

She also shared that the Ministry will work on protocols for managing abandoned and mistreated equines, in collaboration with the Directorate General for Agriculture and Livestock of Catalonia, which has already implemented such procedures.

Aritz Toribio, President of the recently established National Federation of Equine Associations (FNAE), introduced the federation as a starting point for equine protection, representing associations with diverse focuses: legal, veterinary, welfare and cultural.

Legislative challenges in Spain

The first session tackled legislative challenges in Spain, with a notable presentation by Commander José Carlos Martínez Moreno from the Environmental Operations Unit (UCOMA–SEPRONA). He detailed fraudulent practices in the horse meat trade, such as document forgery, dual identification using tags or microchips, and collusion with certain slaughterhouses — all of which jeopardise public health and animal welfare.

Prosecutor Sonia Castañeda Redondo, from the Provincial Prosecutor’s Office of Cáceres, also spoke, analysing the criminal protection of equines in Spain. She stressed the importance of applying effective precautionary measures and ensuring suitable destinations for surviving animals in cases of abuse. She also highlighted the difficulties in managing their custody due to their size, specific care needs, and the high costs involved in their protection.

Aritz Toribio, also holding a PhD in Criminal-Legal Sciences, returned to the stage to discuss the benefits and challenges of equines as companion animals. He underlined the need for unified legislation to protect equines across all uses, and for institutional protocols to ensure their welfare during legal proceedings, so that the burden of care does not fall solely on non-profit associations.

Equine welfare in the European Union

The forum also included presentations on equine welfare progress in the EU. One such talk, “The impact of lack of basic care in equines on One Health, One Welfare”, was delivered by our director Elena Barrio, who highlighted the connection between equine and human health. She discussed how issues such as obesity, dental problems, parasites, and other zoonotic diseases affect both humans and equines, and how working from a “One Health” perspective can benefit the welfare of both.

We had the privilege of hearing the presentation of the “White Paper on Equine Welfare” by Izaskun Arrieta from Eurogroup for Animals. This publication, created by members of the Eurogroup’s equine welfare working group and translated into Spanish by our organisation, outlines key considerations for ensuring a “good life” for equines across Europe, regardless of their use.

Sandra P. Zafra, from World Horse Welfare, spoke about the “Social License to Operate” with equines — a concept referring to the public acceptance and approval of activities involving horses, donkeys and mules, whether in sport, leisure, work or production contexts.

Why is this important? As public awareness of animal welfare grows, society demands higher standards in how equines are treated. If industries and sectors do not meet these expectations, they risk losing their legitimacy and public support, leading to stricter regulations or even bans on certain practices.

In equestrian sports, for example, the use of specific training methods or inappropriate equipment has sparked ethical debates. In tourism, donkey rides under extreme conditions have faced strong criticism. Without positive changes, these sectors may lose their social license to operate.

In summary, the social license to operate is the “permission” society grants to those who work with equines — and it hinges on how well their welfare and dignity are upheld in each sector.

Mercè Soler Barrassús, Deputy Director General of Livestock at the Directorate General of Agriculture and Livestock of Catalonia, shared the development of equine welfare protocols and the current management system for seized equines in Catalonia, discussing its successes and lessons learned.

Challenges for authorities responsible for animal protection

The roundtable “Challenges for Authorities Responsible for Animal Protection” featured Eduardo Justa Roldán (Police Association for Animal Protection – APDA), Dulce Aguilera Aguilera (animal law expert), Laura Riera (FAADA), Zuleica Molina Herrera (Deputy Mayor for Social Affairs, La Línea de la Concepción), and Bianca Pigino (legal expert in animal abuse cases). The discussion addressed key issues such as the police and Civil Guard’s lack of resources to enforce animal welfare laws — including training, microchip readers, access to ownership databases like REGA, and the shortage of public facilities for seized animals.

Other topics included the allocation of responsibility in cases of abandonment or seizure, the importance of clear protocols for equine welfare, the sustainability of sanctuaries, and the challenges faced by under-resourced municipalities. The panel emphasised the need for better coordination with regional and provincial authorities, particularly regarding health inspections, livestock registries, and transportation regulations — all of which are crucial in preventing equine abandonment and mass seizures.

Solutions and alliances for the equine sector

The final roundtable gathered equine veterinary experts to discuss strategic solutions and partnerships in the equine sector. Participants included Carla Aguirre (President of the Spanish Association of Equine Veterinary Specialists – AVEE), Sofía de Freitas (Catalonian Association of Equine Veterinary Specialists – AVEEC), Juan Antonio de Luque Ibáñez (President of the Ibero-American Federation of Equine Veterinarians – FIAVE), and Jill R. Newman (representing FNAE). The session highlighted the major welfare challenges faced by equines in Spain today and potential ways forward.

Conclusions

The II Equine Welfare Forum concluded with a strong commitment to continue working for the protection and well-being of equines, through concrete actions and collaborative efforts across all sectors. Key recommendations included:

1. A need for unified and updated legislation that ensures equine welfare, regardless of their use.
2. Awareness and education — for the public, owners, lawmakers, law enforcement, and official veterinarians. The involvement of Veterinary Colleges is crucial, given their expertise in equine welfare. The importance of responsible ownership education — as is done for pets — was highlighted, including the mandatory completion of a responsible equine ownership course for all owners, due to a trend of people acquiring equines without understanding their physical and mental needs.
3. Implementation of official protocols for managing mistreated or abandoned equines.
4. Development of guidelines to ensure the welfare of equines participating in fairs, festivals and other public events — including the mandatory presence of equine specialist veterinarians.
5. Standardisation of procedures across all local agricultural offices for issuing Equine Farm Codes. It was noted that requirements currently vary widely, sometimes even within the same province, and that inspections are often skipped in favour of photo evidence. These codes should only be granted if minimum welfare conditions are met (shelter, pasture, space, access to water, fencing, etc.). Experts stressed that equine welfare is incompatible with stabling systems that prevent daily turnout.
6. Respect for veterinary clinical judgment, and the need to revise Royal Decree 666/2023 in line with recommendations from a scientific veterinary committee. The decree was criticised for undermining vets’ clinical criteria, placing them in ethical and professional dilemmas that harm animal welfare.
7. Ensuring that authorities and law enforcement have access to veterinary experts and their reports. Veterinarians are the first to assess equine conditions and have a moral duty to report concerns — they must be empowered to do so effectively.

Finally, the forum concluded with a call to hold this event annually as a space for dialogue and collaboration among legal experts, veterinarians, associations and institutions, to find solutions and improve the lives of equines.

From El Refugio del Burrito, we thank all speakers and attendees, as well as the Animal Welfare Division of the Ministry of Agriculture, Fisheries and Food for their representation.

We also extend our deep gratitude to the Ministry of Social Rights, Consumer Affairs and Agenda 2030, and especially to the Directorate-General for Animal Rights, for their logistical support, venue, and assistance with broadcasting the event — which was essential to making this forum possible.