After the turn of the new year, a new Government Decree on the Welfare of Horses (321/2025) will enter into force in Finland. The decree has been approved and will be applied as part of the Animal Welfare Act (693/2023).
The decree specifies the dimensions and conditions of horse keeping facilities and emphasises ensuring the species-typical behavioural needs of horses. The decree is set to enter into force on 1 January 2026 and will replace previous regulations.
At a general level, the decree emphasises the horse's opportunity for species-appropriate behaviour, such as movement, outdoor exercise/grazing, social interaction, foraging, rest and body care. Specific points that are highlighted in many sources include visual and auditory contact with another horse in permanent housing, as well as the possibility of daily nose-to-nose contact with another horse.
Regarding stalls and keeping areas, more precise minimum dimensions have been defined, along with structural requirements for open barns/paddocks. In addition, there are new requirements for open barn and feeding solutions to enable species-typical behaviour.
Different requirements have been given separate transition periods. Some requirements will enter into force immediately in January 2026, while others have been granted longer implementation times. It is advisable to review the exact transition periods in the guidelines.
The most important changes
In the new horse welfare decree, the points that have sparked the most discussion and will require the most changes in practice relate to matters concerning structures, space usage, and daily routines.
In the sections concerning the provision of drinking water, the horse's constant basic need for clean and easily accessible water is emphasised. The horse must have either continuous access to drinking water or water must be provided so frequently that the horse's fluid balance is not endangered.
The water must be suitable and of good quality for the horse, and it must not be clearly contaminated or frozen. In practice, this means active monitoring especially in winter, a sufficient number of drinking vessels, and solutions that ensure all horses can drink without competition or obstruction.
In the regulations concerning the provision of hay and other roughage, the horse's natural need to eat small amounts throughout the day is emphasised. According to the decree, feeding must not result in unreasonably long breaks without roughage, unless there is a veterinary medical reason. Particularly long night fasts are seen as problematic, as they increase the risk of digestive disorders and behavioural problems.
For many stables, this will require a reassessment of feeding practices, such as increasing evening hay or adopting solutions that slow down eating and extend the availability of hay.
In the sections concerning daily paddock time and outdoor exercise, the decree makes it clear that outdoor exercise is part of the horse's basic care, not an optional extra. The horse must have daily opportunities to move and be outdoors in conditions that allow species-typical behaviour, such as observing the environment and social interaction.
Exceptions to paddock time are allowed only temporarily, for example due to illness, injury, or a veterinarian's order. In practice, this means that paddock arrangements must work even during busy times and varying weather conditions. Skipping outdoor exercise will require a clear and justified reason in the future.
Concrete action plan
First and foremost, it is advisable to read and save the decree text as well as the official guidelines received. Assess the current situation and conduct a survey of stalls, open barns, paddocks, grazing opportunities, foal weaning practices, and social contacts.
Identify which points are immediate mandatory requirements, i.e., those with no transition period.
Prioritise the most urgent construction and arrangement changes, such as temporary pass-throughs in stalls, modification of visual barriers, paddock fencing, and the possibility of nose-to-nose contact.
If necessary, contact a veterinarian and the local supervisory authority. Draw up a joint plan and ask about possible transition periods and interpretation questions. Implement structural changes in stages.
If time is tight or budgeting is challenging, prioritise animal welfare and statutory requirements. Prepare a written change plan that you can show to the supervisory authority. Often, a plan and evidence that actions are being taken positively influence the authorities' attitude.
How to approach the reforms?
In this case either, there is no need to fear change. Better conditions reduce illnesses, improve performance, and decrease both financial losses and reputational damage.
The requirement that a horse must have daily opportunity for physical contact with another horse will change the daily life of many stables based on individual stalls. Especially older stables, racing stables, and private stables are built in a way that contact is not possible without modification work.
Therefore, first check the urgent points. Find out which requirements must be met at your stable immediately on 1 January 2026 and which can be implemented within the transition periods, if any exist. Prioritise repairs that are critical for animal health and eliminating unavoidable violations.
In repairs, it is worth seeking support, such as agricultural development grants, or utilising local advice and joint projects, as well as planning phasing and joint projects.
Communication with stakeholders should also be handled smoothly. Transparency reduces confusion and builds trust.
