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Unfortunately right now hay prices are almost as bad as gas prices and they show no change anytime soon. While you can use grain as well, almost everyone needs hay sometime. Add into that the rising prices of gas and the fact that not every owner is a equine nutrition expert and you can see how they get underfed and neglected.
Lobbying and working with local authorities can help, but most neglect cases happen where noone will ever see them.
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