Lots more horses and burros would be adopted except for all the goobermint redtape and restrictions.
A certain pasture and corral and other amenities that most folks don't offer their animals and they can't be bred for 3 or 5 years or some such....I honestly don't know all the particulars, just what I have overheard in other's conversations.
Main reason is folks don't want to give some civil service employee the unfettered right to just walk on their property at will and go nosying around.
I don't know the particulars about other restrictions, but one of the restrictions that does make sense is the specification that fencing must be safe wood or pipe fencing or something equally strong and tall enough. A wild horse will go right through a barbed wire or electric fence. They aren't like our pets.