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It's all about proper care and attention. If some people cant achieve this without Government and agency intervention then we just have to have laws that at least compel minimum standards. I say get tough on the owners and not the dogs. You can't walk a dog just once a day and nothing for the remainder- particularly if the dog is otherwise confined. For instance, dogs need to toilet more than once a day. So the law in whatever country this dog walking regulations prevails is not as stupid as you might think. Again, the authorities will take into account circumstances when applying the laws.
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