If she can prove they are all well cared for and not a nuisance to others, then perhaps she should be allowed an exception. With the provision that she not acquire or breed any more dogs, IMO. If she is getting letters of support from her neighbors, that's a good sign, IMO. We can then presume that the dogs are kept inside, are not noisy and she cleans up after them.

I do wonder though, is there a law in this town specifically stating that a certain number of dogs is the legal limit? I know within the city limits of the town I live near, one may only have three dogs. If there is a law, and it was in place before she aquired 22 dogs, then I have to question why she would deliberately break the law, and then ask for an exception to be made for her after the fact. I don't know that this is the case, just throwing out a question.