Dangerous Dogs and Safeguarding Children and Young People (including the Unborn Child)

The benefits of owning pets are well established. Living in a pet owning household can have physical and emotional benefits for children, young people, and their families, as well as teaching them about responsibility and caring for living creatures.

However, in the UK there have been increased numbers of children of different ages and adults who have come to significant harm (or have died from attacks by dogs). A Royal Mail report in 2023 highlighted in Jersey there have been over a 1,000 people seen in the emergency department having been injured by dogs in the last decade, with 128 dog attacks recorded in 2022.

It is important Practitioners working with children, young people and families are aware of the issues around dangerous dogs and the risks they pose to children and young people. Many dog bites are preventable. Learning from research and investigation is that a baby or young child should never be left unsupervised with a dog, even for a moment (no matter how well known the dog is). This message is relevant to all contact with dogs, including when the chid is in the care of others such as grandparents or friends.

Dogs (Jersey) Law 1961 provides detailed information about the legislation covering the responsibilities of owners and the actions that can be taken to remove and/or to control dogs who are dangerous. 
Under Article 11 (1) A dog shall be regarded as being dangerously out of control if on any occasion it is not being kept under control effectively by an individual and:

1. It is causing or has caused death, injury, or other harm to an individual, a domestic animal or livestock; or
2. Its behaviour gives, or has given, rise to alarm or apprehension on the part of an individual for the individual’s own safety, the safety of another individual or the safety of a domestic animal or livestock, and that alarm or apprehension is, in all the circumstances, reasonable.

In circumstances such as these the Police have a power to seize the dog in a public place. The Police can apply for a warrant to seize a dog that is dangerously out of control if it is on private property.

The Customs and Excise (Import and Export Control) (Jersey) Order 2006 lists which breeds of dogs and other animals are prohibited in Jersey. There is advice on the website to prospective owners around knowing what breed they are buying and what to consider when making an online purchase. As well as information on the regulations in relation to the need for Dog Licenses, and the control of dogs on parks, beaches, and roads. 
UK Legislation (not in statute in Jersey) but this does include useful information on how to assess risk, please see link below.

When you visit a family who has a dog practitioners should consider whether the dog poses any threat to the child’s health, development, wellbeing or welfare.

Whilst keeping this in context, all children are potentially vulnerable from attack(s) from dog(s).
Babies and children under 5 at higher risk. As they will be unaware and unprepared for the potential dangers and may be less able to protect themselves. They are more likely to be of a size that leaves especially vulnerable parts of their body exposed.

The Royal Society for Prevention of Cruelty to Animals (RSPCA) give advice to owners and state under the Animal Welfare Act (UK) pet owners are legally obliged to care for their pets properly, most owners already do this. Practitioners should use professional curiosity as to a dog’s welfare if they are concerned. When asking about a dog, practitioners should think about the following points (not an exhaustive list):

• Does the dog have a suitable environment, is there evidence of a suitable diet?
• Does the dog need to be kept isolated due to its behaviours?
• Is the dog cared for, with no sign of pain, suffering, injury, or disease?
• Is it a large dog in a small home?
• Is the dog left alone with a baby or child under 5 years of age?

The unpredictability of dogs means that it is the responsibility of all parents/carers to be aware of the need to supervise the interaction between children and dogs. Dogs are known to display several characteristics when feeling anxious about a situation and these will often precede an animal either attacking or defending itself.

Warning signs include:

•    Pulling lips back and showing front teeth (aggressive);
•    Wrinkled nose (aggressive);
•    Yawning (anxious);
•    Licking their lip/nose (anxious);
•    Tail between back legs (anxious);
•    Clearly visible sclera (whites of eyes) (anxious/aggressive);
•    Avoiding eye contact (anxious);
•    Tense body muscles (anxious/aggressive);
•    Growling (aggressive);
•    Barking (anxious/aggressive).

A Tool Kit for parents and practitioners on “Speak Dog Stay Safe” found here.

There will be times when even the most well cared for dog behaves in an unexpected way. The care, control and context of a dog's environment impacts the dog’s behaviour and the potential risks it may pose. Research indicates that neutered or spayed dogs are less likely to be territorial and aggressive towards other dogs and people. There will be occasions when even the ‘best’ of owners fail to anticipate or prevent their dog’s behaviour where research informs some owners pose higher risk (see  Section 8, Higher Risk Owners).

For further information from the RSPCA, please see How Kids Should interact with Dogs and How Kids Should Not Act with Dogs.

Barnes et al 2007 found owners who have reason to encourage aggressive behaviour from their dog and dogs that are kept for the purpose of defending or threatening, will present more risks than those who are kept as genuine pets. An owner’s motivation for owning a particular breed of dog raises risk where dogs are kept and/or bred for:

• The purpose of fighting;
• As a status symbol and part of the criteria of belonging to a gang;
• For protection where owners are part of criminal activity, anti-social behaviour, drugs or violence.

Dangerous, prohibited or powerful dog are more likely to inflict the most serious injuries and where they are found in families who are unlikely to appreciate or take steps to protect children from the risks their dog(s) present this should inform risk assessment.

Practitioners visiting homes with families who have risks associated with aggression and domestic abuse are more likely to trigger excitement and attacks by dogs; they are also less likely to appreciate and anticipate risks. They may be less likely to take necessary precautions and less likely to take steps to ensure the safety of the children. Young, small children living in chaotic or dysfunctional families are likely to be especially vulnerable to dog attacks.

Practitioners who find indication of a dangerous, prohibited or powerful dog in a home along with the presence of high risk owners should use this information to inform their risk assessment.

Any agency aware of a dog who could be considered dangerous or come from a prohibited breed should collect as much information as possible including the dog’s name, breed and the owner’s details.

If you consider a dog to be a serious risk to a child/young person you should contact the police immediately. If safe to do so, practitioners should have clear discussions with the owner regarding planned management of the dog, (where unsure seek advice from the Police).

During the visit ask if there is a dog in the household, including the back garden. If there is, and the dog isn’t in the same room, ask to see a picture or see it with the owner, from a safe distance.

If a practitioner is made aware of an injury to a child caused by a dog; or is treating an injury caused by a dog; establish precisely when and how the injuries were caused. When or if there is any history of previous, similar injuries where consideration must be given to whether the injuries caused are “non accidental injuries.”

When a practitioner undertakes a home visit and there are both children and dogs in the household, the practitioner should routinely consider whether the presence of the dog/s presents any kind of risk to the welfare of the child/ren. This should involve a discussion with the parents or the pet owner about the dog’s behaviour. This is particularly important when there is a new baby in the household and it should be established if the dog’s behaviour has changed since the baby has been born. A further assessment of risk should be made when the child is mobile.

Where the risk is in association to babies’ practitioners must ask ‘is the dog left alone with the child?’ and if the answer is “yes” then give advice not to do this.

See also: Guidance from the RSPCA on assessing the whether a dog’s welfare needs are met.

Where there is risk of immediate harm practitioners must call the police on 999. 
 
Where there are concerns for the health and development of a child or there is a need to protect the welfare of a child (including an unborn child) or young person (see Statutory Guidance – Levels of Need). Practitioners must follow the SPB Jersey Child Protection Procedures, Children and Young People Safeguarding Referrals Procedure and refer to the Child and Families Hub for support.

In the referral to the Children and Families Hub and or police, practitioners should give consideration to:

• The nature of the injuries;
• The circumstances of the attack/incident;
• Whether the parents/carer sought medical advice, (the injury may be caused by an unknown dog);
• Whether the dog has previously shown any aggression;
• What action the pet owner has taken to prevent a recurrence of any attack.

A referral to the Children and Family Hub (and the police where appropriate) must be made if any of the following criteria apply:

• There is reason to believe that a dog in the household is prohibited or of a dangerous breed;
• Where a child or young person has been injured, has required medical treatment and injuries are seen to be significant and/or life changing or life threatening;
• Where a child injured is under two and has required medical treatment;
• A child or young person has been injured more than once by the same dog;
• The child/young person has required medical treatment and initial information suggests the dog responsible could be prohibited and/or dangerous;
• A prohibited and/or dangerous dog is reported and/or treated and is believed to be living with and/or frequently associated with children or young people;
• If practitioners are not satisfied risks will be addressed. 

Each referral will require a different response, some referrals might prompt information on dogs and safe care of children, if the incident or injury was clearly minor.

If the child was older or if the family have clearly shown themselves to be responsible dog owners.

See – Institute of Health Visiting : Keeping babies and children safe around dogs, The Blue 
Cross Be Safe with Dogs Leaflet – Your Dog and your baby, Keeping Toddlers Safe Around Dogs, Guidance for Families.

Some owners may require information on how they can improve their child’s safety around dogs. Please see The Dogs Trust: Guide to Staying Safe.

In other circumstances, the police will use their powers to control and seize the dog. 

Where an Article 42 Enquiry is required the minister has a duty to investigate and police and Children’s Social Work will decide whether a single or joint agency investigation is required.  A multi-agency health and development and/or Safeguarding Welfare assessment will be made (See SPB Jersey Assessment).

Practitioners may seek advice from a veterinary Practitioner to help determine the likely nature or level of risk presented by the dog(s).

Practitioners should have access to regular Internal agency safeguarding supervision.
 
Agencies should also consider multi-agency reflective supervision where cases are complex, stuck or drifting.

Professional challenge should be welcomed and partnership working depends on resolving professional difference and conflict as soon as possible. Where staff experience professional differences, they must follow the SPB Resolving Professional Difference/Escalation Policy.

Policing of Parks (Jersey) Regulations 2005

Policing of Roads (Jersey) Regulations 1959

Policing of Beaches (Jersey) Regulations 1959

Animal Welfare (Jersey) Law 2004

Hospital admissions for dog bites FOI (GOV.JE) - UK based information.

Be Safe with dogs a guide for families

The Dogs Trust: Staying Safe with Dogs

Dogs and Children Living Happily Together

Battersea Dogs and Cats Home

Kennel Club's Safe & Sound Programme with Resources for Schools

Dogs, babies and children: living safely together

How to prepare your dog for a new baby

The dangerous dogs (Designated Types) (England and Wales) Order 2023