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Regulation of the Day (Darth Vader Edition)

mulholland-open-space-rule-1

Recently I decided to run in Mulholland Open Space in Moraga (which has amazing views) when I encountered this regulation:

“Animals that are under a person’s control are permitted on the paved portion of Donald Drive without a leash.”

I can understand having leash rule, I can also understanding having a no leash required rule, but I cannot for the life of me understand a no leash required but must-be-in-control rule. Can someone enlighten me? This is done for legal reasons only, right?