The article specifically made the distinction between service dogs - which are well-trained and, as a result, well-behaved and very seldomly a bother to anyone

The article specifically made the distinction between service dogs - which are well-trained and, as a result, well-behaved and very seldomly a bother to anyone - and untrained animals that are held only for reasons of mental comfort. The idea of the article is that, although some people with disabilities benefit from an untrained animal to the point that one wants to prevent others (e.g. landlords) from doing undue harm by not being accommodating at all, uncertainty about these provisions (not the provisions themselves!) are being abused by some egocentric pet owners.