Understanding GoK CIRCULAR : ‘Reg implementation of orders issued by Supreme Court for control of stray dog menace‘

The CJ Memorial Trust
2 days ago
13 min read

Updated: 1 day ago

Here is a circular in Kannada from Chief Secy to concerned departmentsregarding the implementation of Supreme Court orders on controlling stray dog menace in Karnataka. The scope, attention to detail and breadth is a worrying for us animal lovers , but it’s better to be informed and prepared, rather than caught off guard. So we have looked at a translation, a summary including how it differs from previous animal rules, a list of stakeholder actionables, and advice on preemptive actions for animal welfare advocates. Its about being practical, prepared and preemptive WITHIN this framework, SHOULD this horrible situation really happen, and definitely NOT something we really want to do. We realise that GoK is merely following Supreme Court instructions and ensuring compliance, so there is no point railing against them. .

📜 Complete Translation of the Note

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Dr. SHALINI RAJNEESH, I.A.S.,

¹Chief Secretary

Government of Karnataka ³

No.: CS/1239611/2025 ⁴Date: 13-11-2025

CIRCULAR ::

Subject: Regarding the implementation of orders issued by the Hon'ble Supreme Court for the control of stray dog menace in the State. ⁶

Order dated: 07.11.2025 in the case: ⁷Suo Moto WP(Civil) Nos 5 of 2025 ⁸

A copy of the Order dated: 07.11.2025 in the case Suo Moto WP(Civil) Nos 5 of 2025 is enclosed herewith. ⁹In the said Order, continuing the Hon'ble Supreme Court's Order dated 22-08-2025, additional directions have been given to the State's Urban Development Department, Rural Development and Panchayat Raj Department, Animal Husbandry and Veterinary Services Department, Education Department, Transport Department, Railway Department, Health and Family Welfare Department, and Youth Empowerment and Sports Department regarding the measures to be taken to control the stray dog menace. ¹⁰¹⁰Selected extracts from the order are as follows: ¹¹

Room No. 320, 3rd Floor, Vidhana Soudha, Bengaluru - 560 001, ¹²Phone: +91-80-22252442 / 22033300 ¹³Fax: +91-80-22258913 ¹⁴E-mail: cs@karnataka.gov.in ¹⁵

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1. Excerpted Paragraph on measures to be taken by the Urban Development and Rural Development and Panchayat Raj Departments. 16

2. The directions contained in the order dated 22nd August, 2025, inter alia, mandated the municipal authorities to continue the exercise of capturing, sterilising, deworming, and vaccinating stray dogs in accordance with the Animal Birth Control Rules, 2023, while permitting the release of sterilised and immunised dogs to the same localities from which they were picked up, except those infected with or suspected to be infected with rabies and those exhibiting aggressive behaviour. ¹⁷The Court further directed the creation of designated feeding zones for stray dogs, establishment of municipal helplines for reporting violations, and the filing of comprehensive compliance affidavits by the respective municipal authorities. ¹⁸The report submitted by the learned Amicus Curiae, Shri Gaurav Agrawal, is taken on record and shall form part of this Order.¹⁹The Registry is directed to annex the same as Schedule I. The contents of the said report shall be read as part and parcel of this order for all purposes. ²⁰The States and Union Territories shall peruse the report and take appropriate steps to address the deficiencies and shortcomings pointed out therein. ²¹Each State and Union Territory shall file comprehensive additional affidavits before the next date of hearing, specifically indicating the remedial measures undertaken to ensure full compliance with this Court's directions and to rectify the lapses highlighted in the report of the learned amicus curiae. ²²Any lethargy in this regard shall be viewed seriously. ²³

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Excerpted Paragraphs on measures to be taken by the Urban Development Department, Transport Department, and Public Works Department for the control of stray dogs. 24

10 A. The directions issued by the High Court of Rajasthan at Jodhpur in D.B. Civil Writ Petition No. 14726 of 2025 vide order dated 11th August, 2025, are hereby reaffirmed, to the extent that the municipal authorities, road and transport department/Public Works Department of all the States and Union Territories and the National Authority of India (NHAI) shall ensure the removal of all cattle and other stray animals from the State Highways, National Highways, and National Expressways falling within their respective jurisdictions. ²⁵10 B. The concerned authorities, i.e., the municipal authorities, the road and transport department/Public Works Department of all the States and Union Territories and the National Highways Authority of India shall undertake a joint, coordinated drive to identify stretches of highways and expressways where stray cattle or animals are frequently found, and shall take immediate steps for their removal and relocation to designated shelters. ²⁶The cattle and other stray animals so picked up shall be kept in appropriate shelters or Gaushalas/cattle pounds, as the case may be, and provided with all necessary food, water, and veterinary care, in accordance with the provisions of the Prevention of Cruelty to Animals Act, 1960 and the Animal Birth Control (Dogs) Rules, 2023.²⁷

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C. Each authority shall constitute dedicated highway patrol teams and/or assign existing road-safety units for continuous surveillance and immediate response to reports of stray cattle or other animals obstructing the roadways. 2828Such patrols shall function on a 24x7 basis and coordinate with local police stations, veterinary officers, and municipal authorities/Panchayati Raj institutions. 29

D. All National Highways, State Highways, and National Expressways shall have prominently displayed helpline numbers at regular intervals, enabling commuters to promptly report the presence of stray animals or accidents caused thereby. 30These helplines shall be linked to the control rooms of the local police, National Highways Authority of India, and district administration for real-time redressal and monitoring. 31

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The directions on measures to be taken by the Education, Health and Family Welfare, Youth Empowerment and Sports Departments, and Transport Department are as follows: 32

25. Having regard to the alarming rise in incidents of dog bites within institutional areas such as educational institutions, hospitals, sports complexes, bus stands/depots (including Inter-State Bus Terminals) and railway stations, this Court deems it appropriate to issue the following directions in the interest of public safety, health, and management of stray dogs: - 3333

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A. The State Governments and Union Territories shall through their respective local/municipal authorities, within a period of two weeks, identify all Government and private educational institutions, hospitals (including district hospitals, primary health centres, and medical colleges), public sports complexes or stadia, bus stands/depots (including Inter-State Bus Terminals) and railway stations situated within their territorial limits. 34

B. The administrative heads of the aforesaid institutions shall through their respective local/ municipal authorities, under the overall supervision of the District Magistrate concerned, ensure that the premises are secured by adequate fencing, boundary walls, gates and such other structural or administrative measures as may be necessary to prevent the ingress of stray dogs. 35The said exercise shall be completed as soon as possible and preferably within a period of 8 weeks from today. 36

C. The management of every educational institution, hospital, sports complex, bus stand/depot (including Inter-State Bus Terminal) and railway station identified under Direction (A) shall designate a Nodal Officer responsible for the upkeep and cleanliness of the premises and for ensuring that stray dogs do not enter or inhabit the campus. 3737The details of the said officer shall be displayed prominently at the entrance and notified to the jurisdictional municipal body/authority. 38

D. The local municipal authorities and panchayats shall carry out regular inspections, at least once in every three months, of all such premises to ensure that no stray dog habitats exist within or in the immediate vicinity of these 39

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institutions. 40Any lapse in this regard shall be viewed seriously, and responsibility shall be fixed upon the concerned municipal officials/administrative authorities. 41

E. It shall be the responsibility of the jurisdictional municipal body/authority to forthwith remove every stray dog found within the premises of an educational institution, hospital (public or private), sports complex, bus stand/depot (including Inter-State Bus Terminal) or railway station and to shift such animal/s to a designated shelter, after due sterilisation and vaccination, in accordance with the Animal Birth Control Rules, 2023. 42The stray dogs so picked up shall not be released back to the same location from which they were picked up. 43We have consciously directed the non-release of such stray dogs to the same location from which they were picked up, as permitting the same would frustrate the very effect of the directions issued to liberate such institutional areas from the presence of stray dogs. 44

F. All Government and private hospitals shall maintain a mandatory stock of anti-rabies vaccines and immunoglobulin at all times. 45

G. Every school and educational institution shall be directed by the Ministry of Education, Government of India, to conduct awareness sessions for students and staff on preventive behaviour around animals, first-aid in case of bites, and immediate reporting protocols. 46

H. The management of stadiums and sports complexes shall ensure the deployment of security or ground-keeping personnel specifically tasked with around the clock vigil against the entry or habitation of stray dogs. 47

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I. The railway authorities having jurisdiction over the railway stations as well as the State transport corporations and municipal authorities having jurisdiction over bus stands, depots and Inter-State Bus Terminals, shall ensure that such public-transport premises/facilities are effectively secured and maintained so as to prevent the habitation or movement of stray dogs within their premises. ⁴⁸Proper waste-management systems shall be implemented to eliminate food sources that attract animals, and regular inspections shall be conducted to detect and address the presence of stray dogs. ⁴⁹

As detailed above, all concerned departments are directed to review the contents of the Hon'ble Supreme Court's Order dated 07.11.2025 in the case Suo Moto WP(Civil) Nos 5 of 2025 and take immediate proactive and appropriate action. ⁵⁰Furthermore, they must comply with the directions within the time stipulated by the Hon'ble Supreme Court and send their departmental compliance report through an affidavit to the Nodal Department, Urban Development Department (Municipal Administration), by 15.12.2025, and send a copy to this office. ⁵¹

Additionally, the Hon'ble Court has directed that all stray dogs in public areas such as Government and private educational institutions, hospitals (including district hospitals, primary health centres, and medical colleges), public sports complexes or stadia, bus stands, bus depots (including Inter-State Bus Terminals), and railway stations, etc., shall be captured by the concerned urban local bodies and corporations. ⁵²

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They shall be kept in dog shelters after undergoing sterilisation, to ensure they do not pose a danger to public safety. ⁵³As the Hon'ble Supreme Court has directed Urban Local Bodies (ULBs) to complete this operation within 8 weeks, ULBs are instructed to take the following actions in accordance with ABC Rules: ⁵⁴⁵⁴

To notify the date and time of the dog-catching team's visit to the concerned public institutions in advance. ⁵⁵
After catching stray dogs from public places, to relocate them to designated buildings/places for sheltering. ⁵⁶
To manage rabies-infected dogs in separate buildings/places. ⁵⁷
Regarding the sterilisation of stray dogs, to obtain proposals from additional institutions, apart from NGOs recognised by the Animal Welfare Board, and take action as per rules. ⁵⁸
To formulate an action plan on the human resources and other resources required to control the feeding of stray dogs by the public in public places, and to urgently provide this information in the attached Google Spreadsheet: https://docs.google.com/spreadsheets/d/1NMUVQ6IR5i-cYilgKu63-6YcUHXQpSPsMpOvKWGFTJ4/edit?usp=sharing ⁵⁹

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To instruct that a warning be prominently displayed in all public places identified by urban bodies, including parks, bus stands, hospitals, and offices, stating that non-compliance with these orders will be considered contempt of court and will incur a penalty under the present rules. ⁶⁰

Furthermore, the Secretaries of the Departments of Primary and Secondary Education, Higher Education, Health, Medical Education, Sports, Transport, and Infrastructure Development shall issue Government Orders on the following points: ⁶¹

Directing all institutions within their jurisdiction to record the number of stray dogs within their premises. ⁶²
Responsibilities for fencing after the dogs are caught, to prevent other dogs from re-entering the premises. ⁶³
All public institutions must nominate a Nodal Officer to coordinate with local bodies. ⁶⁴⁶⁴

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To effectively implement the Hon'ble Supreme Court's order, a committee has been constituted at the District level under the chairmanship of the Deputy Commissioner, as follows: ⁶⁵

Sl. No.	Designation of Officer	Role
1	Deputy Commissioner	Chairman ⁶⁶
2	Chief Executive Officer, Zilla Panchayat	Member ⁶⁷
3	District Superintendent of Police	Member ⁶⁸
2 (Re-numbered)	Commissioner, Mahanagara Palike	Member ⁶⁹
3 (Re-numbered)	Municipal Commissioner/Chief Officer	Member ⁷⁰
4	District Health and Family Welfare Officer	Member ⁷¹
5	Executive Engineer, Public Works Department	Member ⁷²
6	Project Director, National Highways Authority (NHAI)	Member ⁷³
7	Deputy Director, Primary and Secondary Education Department	Member ⁷⁴
8	Deputy Director, Pre-University Education Department	Member ⁷⁵
9	Registrar, Concerned University	Member ⁷⁶
10	Director, Institute of Medical Sciences in the District	Member ⁷⁷
11	Deputy Director, Youth Empowerment and Sports Department	Member ⁷⁸

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12	Regional Transport Officer, State Road Transport Corporation and Major Ports	Member
13	Other Directors/Chairpersons, State Government Owned Bodies	Invitee (as required) ⁸⁰

The Nodal Department, Urban Development Department, is instructed to compile the action taken reports of all departments and the affidavit submitted to the Hon'ble Supreme Court by the Chief Secretaries of all States and Union Territories on 15-12-2025 and send the same to the Hon'ble Supreme Court. ⁸¹

Furthermore, the Chief Secretary to Government (Urban Development, Rural Development, PWD), Chief Secretary to Government (Transport, Railway), and the Chief Secretary to Government (Health, Family Welfare, Education, Youth Empowerment and Sports) are requested to hold a meeting on 20-12-2025 to review the implementation status and take necessary action. ⁸²

Sd/- (Dr. SHALINI RAJNEESH)

Chief Secretary to Government

Copy to: (List of various Principal/Additional Chief Secretaries and Secretaries of the concerned Departments)

End of Circular.

CJ Memorial Trust Notes on this : 📝 Summary and Difference from Previous Animal Rules

Summary of the Supreme Court Order (07.11.2025)

The circular mandates a coordinated, multi-departmental approach to control the stray dog and cattle menace, particularly emphasizing public safety in institutional areas and on highways.

Key Directives:

Continuation of ABC: Municipal authorities must continue capturing, sterilising, deworming, and vaccinating stray dogs under the Animal Birth Control Rules, 2023⁸³.
Designated Feeding Zones: Municipalities must create designated feeding zones and establish helplines for reporting violations⁸⁴.
Non-Release in Institutional Areas (Crucial Change): Stray dogs caught within educational institutions, hospitals, sports complexes, bus stands/depots, and railway stations SHALL NOT BE RELEASED BACK to the same location. They must be shifted to a designated shelter after ABC procedures⁸⁵.
Securing Institutions: The heads of these institutions must secure their premises with adequate fencing/walls within 8 weeks to prevent dog ingress⁸⁶.
Highway Clearance: Municipal authorities, Transport/PWD, and NHAI must undertake a joint drive to remove all stray cattle and other animals from National/State Highways and Expressways and relocate them to shelters/Gaushalas⁸⁷.
Helplines & Patrols: 24x7 highway patrol teams and prominently displayed helpline numbers are mandated for immediate response to stray animal reports⁸⁸⁸⁸⁸⁸.
Medical Preparedness: All government and private hospitals must maintain a mandatory stock of anti-rabies vaccines and immunoglobulin at all times⁸⁹.
Nodal Officers: All public institutions must nominate a Nodal Officer for upkeep, cleanliness, and coordination with local bodies^90909090.
Compliance: All departments must submit a comprehensive affidavit to the Nodal Department (Urban Development) by December 15, 2025⁹¹.

Difference from Previous Animal Rules (Animal Birth Control Rules, 2023)

The most significant deviation and concern is the non-release clause for stray dogs picked up from institutional areas⁹².

Feature	Previous ABC Rules (2023) Mandate	Supreme Court Order (07.11.2025)
Release Location	Sterilised and immunised dogs must be released back to the same locality from which they were picked up⁹³.	Stray dogs from institutional areas (hospitals, schools, stations, etc.) SHALL NOT BE RELEASED BACK to the same location, but must be shifted to a designated shelter⁹⁴.
Focus Area	Primarily focused on municipal authorities and the ABC program (Capture-Sterilize-Vaccinate-Release)⁹⁵.	Expands scope to multiple State/Union Ministries(Education, Health, Transport, Railway, etc.) and mandates specific, time-bound actions in institutional and highway areas^96969696.
Stray Cattle/Other Animals	Primarily focused on dogs.	Explicitly includes a directive for the removal and sheltering of stray cattle and other animals from all Highways/Expressways⁹⁷.

🎯 Stakeholder Actionables

Stakeholder	Key Actions Mandated by the Order	Deadline/Frequency
Urban Local Bodies (ULBs) & Panchayats	Continue ABC program (capturing, sterilising, vaccinating). Create designated feeding zones and municipal helplines⁹⁸. Must not release dogs picked up from institutional areas back to that location⁹⁹. Complete the operation of capturing and sheltering dogs from institutional areas¹⁰⁰¹⁰⁰.	Operation completion within 8 weeks (from Nov 7, 2025)^101101101. Regular inspections (at least once every three months) of institutional premises¹⁰².
Educational/Hospital/Sports/Bus/Railway Authorities	Identify all institutions within two weeks¹⁰³. Secure premises with fencing/walls to prevent dog ingress¹⁰⁴. Designate a Nodal Officer for premises upkeep and dog prevention^105105105105. Implement proper waste management to eliminate food sources¹⁰⁶.	Identification within 2 weeks¹⁰⁷. Securing premises within 8 weeks¹⁰⁸.
Health and Family Welfare Department	Ensure all government and private hospitals maintain a mandatory stock of anti-rabies vaccines and immunoglobulin¹⁰⁹.	At all times¹¹⁰.
Education Department	Direct all schools/institutions to conduct awareness sessions for students and staff on preventive behaviour, first-aid, and reporting protocols¹¹¹.	Ongoing¹¹².
Road & Transport Dept/PWD/NHAI	Joint, coordinated drive to remove stray cattle and other animals from National/State Highways and relocate to shelters/Gaushalas¹¹³. Constitute 24x7 highway patrol teams¹¹⁴. Display prominent helpline numbers on highways¹¹⁵.	Immediate steps¹¹⁶. 24x7 function¹¹⁷.
All Departments (Nodal)	Send compliance reports via affidavit to the Nodal Department (Urban Development)¹¹⁸.	By 15.12.2025¹¹⁹.
District Administration	Form and oversee a high-level committee chaired by the Deputy Commissioner for effective implementation¹²⁰.	Immediate formation¹²¹.

🐾 Preemptive Actions for Animal Welfare Advocates

Most of these break our heart, but we are in a dark universe and still need to protect our dogs. The Supreme Court order has a high emphasis on public safety and structural changes, which, while necessary, pose challenges for welfare organisations. To protect animals and ensure humane implementation, we could take the following preemptive actions:

1. Secure Immediate Sheltering Capacity

We do NOT WANT THESE SHELTERS. BUT in parallel we need to ensure that cruelty doesn’t happen either.

Mobilise Resources: The "non-release" clause for institutional dogs will create a massive, immediate demand for dog shelters. If you have or partner with shelters, immediately assess and expand capacity (kennels, medical supplies, staff).
Coordinate with ULBs: Reach out to your local Municipal Commissioner and District Magistrate (Chairman of the District Committee) immediately. Share NGO/organisation as a partner to receive the dogs that must be removed from institutions, as they cannot be released back. This ensures dogs go to a known, humane environment instead of an unregulated "designated shelter."
Expand ABC Infrastructure: The ULBs are seeking proposals from institutions other than AWB-recognised NGOs for sterilisation¹²². Advocate for strict due diligence to ensure any new facility adheres to ABC Rules and welfare standards. Offer your existing expertise to ULBs to scale up the ABC program quickly and humanely.

2. Advocate for Humane Compliance (The "Non-Release" Dogs)

This is NOT What we WANT , but we must work in parallel to avoid any issues.

Track Relocations: Request the ULB's action plan for dog relocation (point 2 of the ULB instructions)¹²³. Work with them to ensure the "designated shelter" is a safe, long-term, and humane environment.
Focus on 'Aggressive' Dogs: Dogs that are aggressive or rabies-suspect were already to be sheltered¹²⁴. Focus your advocacy on ensuring that only genuinely aggressive dogs—not just fearful or territorial ones—are permanently sheltered and that all others are properly managed.

3. Proactively Engage on Highways and Feeding

Offer Expertise for Cattle/Animal Shelters: Reach out to the Project Director, NHAI (a member of the District Committee) ¹²⁵, to offer veterinary and care expertise for the stray cattle/animals being removed to Gaushalas or shelters¹²⁶.
Establish/Formalise Feeding Zones: Since "designated feeding zones" are mandated¹²⁷, work with local authorities to help identify and formalise these zones away from institutional areas and highwaysto comply with the spirit of the order and prevent conflict.
Assist with Awareness and Education: Volunteer to help the Education Department conduct the mandated awareness sessions in schools¹²⁸. This can be a proactive way to teach safe interaction with strays, which will reduce bites and prevent inhumane responses.

4. Monitor for Violations

Watch for Illegal Culling/Relocation: Be vigilant for any attempts at illegal culling or mass relocation of dogs outside the institutional areas, as the ABC Rules (and the order) still mandate releasing sterilised, non-aggressive dogs back to their original localities¹²⁹. Use the newly mandated municipal helplines to report such violations immediately¹³⁰.
Document and Report: Document all dog-catching operations to ensure they are done humanely and according to the ABC Rules