In April, Casey Burkinshaw dropped off her 4-pound dog, Zuri, for doggie day care at Paws With Inn in Ipswich, Massachusetts. An hour later, Burkinshaw learned that her dog had been killed by a 30-pound bulldog. Burkinshaw said she had chosen this facility in 2016 specifically because they assured her that they could safely care for her particularly small dog in their dedicated “Tiny Paws” area.
Paws With Inn owner, Patrick Lindqvist, reported the incident to Ipswich Animal Control Officer Megan Sousa. In her police report, Sousa did not find evidence of negligence by the day care business but stated that “dog day cares are not governed by law.” Sousa said the incident fell into a grey area that limits her enforcement powers under current kennel laws.
“I did think that the weight limit in their ['Tiny Paws' section] was high,” said Sousa in a phone interview. “But here, similar to other places when I’ve seen staff-to-dog ratios of concern, the law doesn't say anything. It’s hard for us because we have to rely on [facility owners] to know their packs so things like this don't happen. Dogs have personalities that need to be managed constantly.”
In Massachusetts, the only requirement to keep more than four dogs is a kennel license. It is granted by the municipality yearly after an inspection by an animal control officer and, in some cases, a health inspector. The inspection is to verify that the facility is clean and safe, treats dogs humanely, and that all dogs are vaccinated for rabies and distemper. Oversight of kennels varies widely by locale and there are no mandatory standards of care or training for staff who are directly in charge of groups of dogs.
A group of pet "parents" backed by the Animal Rescue League and other animal protection groups are fighting to increase regulations on the pet care services industry. Advocates want additional laws that will mandate staff certifications and training, limit the number of animals each staff member can oversee, and require emergency response training and insurance for care facilities.
Dog owners used to board their pets primarily during family vacations. Commercial boarding kennels were managed by professional dog breeders and trainers. But more pet owners are now seeking day care options for their pets, seeking socialization and stimulation for their animals while the humans are at work. Care options now include doggie day care, pet sitting and dog walking services, some of which are home-based businesses.
The pet care industry has exploded over the past few decades. According to the American Pet Products Association (APPA), Americans spent $21 billion on their pets in 1996. By 2018, the total had increased to $72.56 billion.
And there are not many barriers to people wanting to start a dog day care business, with limited regulations and a kennel license fee in Massachusetts between $50 and $100 per year.
There is no central database of licensed kennels in Massachusetts, and no way to know how many day care services exist.
As an animal control officer for 20 years, Sousa said she has observed rapid and haphazard growth.
“It is an industry that took off very fast,” she said. “In most cases where incidents have occurred, I think it's [because] there are no regulations. There's really not a ton of guidance for the owners or the staff.”
Carmen Rustenbeck, founder and CEO of the International Boarding & Pet Services Association (IBPSA), the industry trade association, believes the time has come for states to help set the standards of care on behalf of consumers and the animals.
“I get phone calls every day from ‘pet parents’ who value their pets as much as they do their children. They ask me if their doggie day care has been certified. They believe the pet boarding industry is already as regulated as veterinarians,” said Rustenbeck.
Rustenbeck is even more concerned about the “Uberization” of pet care. Online platforms such as www.Rover.com allow individuals to market themselves directly to consumers, regardless of their knowledge of dog behaviors and pack dynamics.
“With no regulatory requirement of certification, these internet platforms are one of the biggest threats to the pet sitting industry,” she said.
IBPSA has developed several safety courses and certifications. Additionally, three years ago, an independent third party created the Professional Animal Care Certification program. The program teaches the basics of safe dog handling techniques: canine body language; how to evaluate and recognize dogs who are not suitable for day care; management of group play; defensive handling techniques and dog bite prevention; and signs of predatory aggression. Once completed, an individual handler is certified for three years.
Paws With Inn owner Patrick Lindqvist said he supports increased regulations for the industry, though he would not discuss the specifics of the Burkinshaw incident because of ongoing legal action.
“There are so many illegal kennels in the North Shore right now,” said Lindqvist. “They can run their business without any of the costs that I have. And what’s worse is that because some of them don’t require vaccines for kennel cough, there has been an increase in the outbreaks in the past few years.”
Not everyone is convinced that training and education will solve the safety and sanitation challenges inherent in keeping and caring for large groups of dogs in confined spaces every day.
“You can take these set of issues and plug in any establishment,” said Joe Chague, an animal control officer in Pittsfield and board president of the Animal Control Officers Association of Mass. “How often does the health department go through a restaurant? Only when a customer gets food poisoning. They don’t inspect regularly.”
It is difficult to know exactly how many dogs have died or been injured while in day care and overnight boarding facilities in Massachusetts. However, WGBH News has identified eight other dog deaths since 2012 alleged to have been because of some combination of negligence and a lack of knowledge and training of an owner or staff member.
Several bills are pending in the Massachusetts State House that would tighten the rules, regulations and minimum standards for boarding kennels and day care facilities for dogs.
One of these bills moved out of its initial committee in late 2019. Kara Holmquist, the MSPCA's legislative director, expressed cautious optimism.
"It is a good sign," said Holmquist. "But after working with the legislature for so long, it’s really impossible to predict and relatively early in the process."
Correction: This story has been updated to correct the spelling of MSPCA.
Rachel Rock was an intern for the New England Center for Investigative Reporting at WGBH News in the fall of 2019.
