Concern about tethering has increased in recent months after a pony was killed on a busy Cardiff road
The Welsh Government has ruled out changing the law to ban tethering of horses. A petition calling for the end of horses being tied up, often on the side of public roads, is currently the most signed on the Senedd website, with more than 13,000 people giving it their backing.
Tethering a horse is not illegal, but the RSPCA say it is one of the “most common” equine welfare issues their inspectors deal with.
The tethering of a horse involves restraining an equine with a rope, chain, or strap to an anchor point in the ground. It restricts an equine’s ability to exercise freely, perform vital social behaviours and to forage, while also potentially restricting their access to water, preventing escape from attacks by other animals and seeking shelter or shade. For our free daily briefing on the biggest issues facing the nation sign up to the Wales Matters newsletter here
In March, a pony died after being hit by a car on Rover Way in Cardiff – one of a number of similar incidents that has happened on the same road this year, according to a nearby animal rescue centre.
One person who signed the Senedd petition said she almost struck two ponies on Rover Way after the incident in March, adding that “there is absolutely no reason” for ponies to be tied up on busy roads.
RSPCA Cymru say it received 122 reports concerning horses being tethered across Wales in 2025 compared to 66 in 2024. Since 2021, and up to last month, there have been a total of 471 reports.
Any petition with more than 10,000 names will be considered for a Senedd debate.
The text reads: “The suffering of tethered horses has gone on for long enough. They are tied up in unsuitable places, often along major roads. They have no shelter, veterinary help and often no food or water. This is neglect and needs to stop. How can we call ourselves civilised when this abuse is going on in full view of everyone?”
Sara, a supported of the petition, said: “I signed the petition a long time ago when it first came out after the pony died and after almost striking two ponies on Rover Way soon after, I became more passionate about change happening.
“Like lots of people, I thought that the issue was that the authorities didn’t care, but it took me a while to speak to the right people and get the truth. I spoke to those directly involved in trying to manage the animals on Rover Way ( and other areas) and keep them safe, and I heard the sadness and frustration around the fact that they do not have enough powers to do so, that the current legislation is easily abused by those who want to do so.
“Every horse on Rover Way should be in a secure large field. There is absolutely no reason for this not to happen. Same in other areas of east Cardiff.”
She went on to add: “There is absolutely no reason for ponies to be tied to roundabouts on busy roads”
The Welsh Government has a code of practice saying tethering is “not a suitable method of management of an animal” – but it remains a permissible and commonplace practice in Wales.
Under the Control of Horses (Wales) Act 2014, councils can seize horses fly-grazing, abandoned or straying on public land without lawful authority.
Where appropriate, RSPCA Cymru urges Wales’ councils to utilise this legislation; to prevent the illegal fly-grazing of horses; and to ensure community safety and prevent welfare problems from escalating.
Caerdydd Penarth MS Huw Thomas asked the First Minister about the issue in First Minister’s questions asking if he would review a 2014 act specific to horses.
He said: “There was a tragic incident earlier this year where a formerly tethered horse was hit by a vehicle and killed on one of the approach roads into Cardiff, and it’s an issue of great concern to my constituents in Caerdydd Penarth yet horses continue to be tethered along roads such as Rover Way on the road into Cardiff, creating welfare concerns, particularly in periods of extreme weather like the recent heat, and clearly posing a risk to motorists as well.
“The RSPCA reports that tethered horses reports have almost doubled and have warned that local authorities often lack the resources and the rescue capacity.”
He referenced his former role as the leader of Cardiff Council, saying: “I know from personal experience that there are practical challenges with making full use of the Control of Horses (Wales) Act 2014.
“The First Minister will appreciate, as I do, some of the cultural sensitivities surrounding this issue and he’ll want to calibrate the government’s response accordingly.
“But in view of the increase in incidents and the wider public concern, can the First Minister outline his position on the banning of the tethering of horses and will he commit to reviewing the Control of Horses (Wales) Act 2014?”
The First Minister replied: “Tethering, clearly, is not unlawful, as the member said, but it is a practice that does raise significant welfare concerns. There are no plans to review legislation at this point in time, but the Animal Welfare Act 2006 does require horse owners to meet welfare needs, including shelter, diet, healthcare and behavioural needs.
“It’s very, very clear to me and to this Government that tethering is unsuitable for long-term use.
“The equine code of practice, though, sets conditions, including access to food, water, shelter and supervision around this.
“Alternatives are very much encouraged and it is then around the enforcement of animal welfare laws in general as to whether those animals are being treated well or not with this practice, which is clearly worrying.”


