The Responsible Dog Ownership Taskforce was established by the government in 2022, following a series of high-profile dog attacks.
The taskforce’s report noted that since 2011 the dog population in the UK had grown by 35%, while hospital admissions relating to dog bites in England had risen by 77%.
It said pet ownership had spiked during the Covid pandemic at a time when it was harder to access support services.
“This led to less experienced owners struggling to access services and finding it harder to get help,” the report said.
Until 1987, dog owners in England, Wales and Scotland had to pay an annual fee to get an ownership licence.
The scheme was scrapped on the grounds that the amount of money it raised was outweighed by the operating costs.
Dog owners in Northern Ireland still have to buy a licence of £12.50, or £5 if the owner receives an income-related benefit.
In France, owners of the most dangerous dogs have to get special permits which can involve passing a training course and putting the dog through a behavioural assessment.
Switzerland previously required potential dog owners to complete a knowledge test, followed by a practical, but this condition has been scrapped.
The report said that most members of the taskforce backed introducing legal requirements for dog owners but “further consideration would be needed regarding the form that this should take”.
“Any legal requirement would need careful consideration of its objective and not appear as a tax on already responsible dog owners.
“Reintroducing a universal dog licence may amount to another database of responsible owners or an administrative exercise with little public safety benefit or opportunity to promote responsible dog ownership.”
It said options could include focusing a scheme on high-risk dogs, introducing background checks on owners and requiring potential owners to pass a knowledge test.
The Dogs Trust and the RSPCA have commissioned research into the costs and benefits of different systems and their conclusions are due to be published later this year.
In a ministerial foreword to the report, environment minister Baroness Hayman of Ullock said: “In recent years, we have seen a concerning rise in dog attacks, alongside changes in patterns of dog ownership.”
She said the taskforce’s report was an “important and timely contribution”, adding: “As ministers, we are carefully considering the recommendations alongside the wider programme of work already under way.”
