The biggest issue is that there is no real definition available for BUSINESSES to work with to help with sorting out the wheat from the chaff.  
If enforcement at the base level was applied, along with proper definitions of the three types of assistance animals similar to the ADA in the US (service animals must be able to perform tasks that mitigate the handler's disability and the enquirers CAN ask what task the dog/animal does without asking what the disability is). Service dogs have public access. Therapy dogs have limited public access to the areas the therapy is being given (libraries, hospitals, senior residences) and Emotional Support animals have only the ability to accompany their owners in their own homes and cannot cause eviction of the owner for having a pet. Currently ESA are also allowed on planes, but that may necessarily be made more specific. 

The public needs more education,  including the businesses that have to adhere to access rules.  Fakes affect the real ones.