A Milestone in the Protection of Horses and Ponies in Italy
Italy currently has several legislative initiatives aimed at significantly expanding the protection of horses, donkeys, ponies, mules and other equids. One key proposal is entitled “Norme per la tutela degli equidi e loro riconoscimento come animali di affezione” – roughly translated as: Rules for the protection of equids and their recognition as companion animals. The corresponding Bill C. 2187 was introduced in 2025 and has been undergoing parliamentary committee proceedings since February 2026.
Another bill, C. 2585, likewise provides for the recognition of equids as “animali di affezione” and contains further measures for the protection of these animals, as well as provisions concerning the possible transition of keeping and breeding practices. This proposal was referred to a committee in February 2026; at that time, substantive consideration had not yet begun.
What does “sentient beings” mean?
Interestingly, Italy is not only now recognizing horses as sentient animals. The official Italian “Codice per la tutela e la gestione degli equidi” already explicitly refers to the dignity of the equid as an “essere senziente”, meaning a sentient or feeling being. The code applies to horses, ponies, donkeys, mules and hinnies and requires them to be kept in conditions that take into account their physical and ethological needs.
The Italian Ministry of Health also already implements measures for the protection and health of equids. The existing code contains provisions covering areas such as housing, breeding, training and sporting use. However, the Ministry points out that the code is generally voluntary and was intended as a first step towards more comprehensive regulation.
In addition, EU law explicitly recognizes animals as “sentient beings.” Article 13 of the Treaty on the Functioning of the European Union requires the EU and its Member States, when formulating and implementing certain policies, to take account of animal welfare requirements while respecting the fact that animals are sentient beings.
So what is supposed to change?
The current Italian initiative is therefore less about establishing, for the first time, that horses are capable of experiencing feelings. Rather, it is about translating this principle more strongly into concrete legal provisions.
A key element is the possible recognition of equids as “animali di affezione.” This would give horses a stronger legal status as animals that have a special relationship with humans and whose welfare should not be considered solely from an economic or sporting perspective.
This is connected with discussions about various forms of horse use, including:
- keeping and housing
- training and education
- equestrian sport
- breeding
- transport
- public events
- tourist activities
- the treatment of horses after the end of their sporting or professional careers
- the use of horses for meat production
The precise scope will, however, depend on which of the legislative proposals is ultimately pursued and in what form it is adopted.
Particularly important: This is not yet a completed law
This point is essential when assessing the situation. The proposals currently under discussion are legislative initiatives and do not yet constitute generally applicable new law. The Italian Senate, for example, explicitly states that Bill C. 2187 has been undergoing parliamentary examination since February 2026.
Italy currently has several political initiatives aimed at significantly expanding the legal protection of horses and other equids. A central element is their stronger recognition as sentient animals with their own needs and as “animali di affezione.” The aim is to give their welfare greater consideration in relation to economic, sporting or traditional interests. However, the relevant legislative proposals are still undergoing the parliamentary process.
Why is the issue controversial?
The issue affects several areas in which horses have traditionally been used in Italy – including equestrian sport, breeding, public events and, in some cases, food production. The debate is therefore not solely about animal welfare; it also concerns the question of which forms of horse use are compatible with their status as sentient beings.
The Italian Ministry of Health already has regulations governing public events involving horses. These include, for example, requirements concerning the suitability of the animals, the condition of racecourses and facilities, as well as inspections and the exclusion of certain individuals with relevant criminal convictions.
In short: this is not a completely new concept of regarding horses as sentient beings. What is new and politically significant is the attempt to strengthen this principle in law and fundamentally enhance the legal status and protection of horses and other equids.
