August 31, 1998

To:Board of Health

From:Dr. Sheela V. Basrur, Medical Officer of Health

Subject:Provision of Proper Enforcement of Animal Control Legislation

Purpose:

This report outlines the provision of proper enforcement of Animal Control Legislation.

Source of Funds:

The funds to provide by-law enforcement at current levels were approved by City Council at its meeting of April 29, 1998.

Recommendation:

It is recommended that Toronto Animal Services continue to provide the current level of service with respect to enforcement of the Animal Control By-law pending a review and resolution of related amalgamation issues.

Background:

As a result of deputations at its July 6, 1998 special meeting on Animal Services, the Board of Health requested that the Medical Officer of Health report on providing proper enforcement of the Animal Control By-law.

Comments:

Although it is not a major municipal service when measured against other services in terms of budgets or number of staff, the care and control of animals is a "high profile" activity that results in considerable staff contact with pet owning and non-pet owning residents. Due to downsizing, budget reductions and restructuring over the past decade, some of the former municipalities have reduced staff levels by up to thirty percent. In 1998, a further 5.5 FTE's were cut to meet budget reduction targets. This has resulted in reduced hours of operation at the Toronto, Etobicoke and York district offices and restriction of after-hour calls to emergencies only. As well, Animal Services has become reactive to service requests in such areas as routine parks and school patrols, in order to reallocate resources to complaint investigations. It should be noted that, although the number of staff has been reduced, service demands have not and if anything are growing.

Program development and service delivery levels must be driven by the needs and/or concerns of residents. There is already a significant increase in parks complaints and, with some 1,500 parks and parkettes in Toronto, adequate enforcement presence cannot be provided, particularly during the high-use months of May to October. The public is reporting health and safety concerns particularly from children and senior citizens including: confrontations between incompatible dogs, resulting in dog bites; confrontations with pet owners who refuse to comply with leashing and stoop and scoop requirements; and, dogs in playground areas. Many park complaints have arisen to some extent because of recent media releases where large dogs have been involved in confrontations. Emergency after-hour service expectations are also changing, with many residents expecting Animal Services to be open 24 hours, 365 days a year.

Combined records show that field officers of the six district municipal animal service agencies respond to more than 34,000 service calls or complaint investigations annually. However, not all services have been delivered in all six municipal districts. Once a new harmonized animal care and control by-law has been enacted, the number of calls are expected to increase by approximately 15%. This additional workload could be handled by redeploying existing staff and by re-defining responsibilities in new job descriptions, however these measures which will be dependent on the time frame and outcome of collective bargaining as well as service rationalization with the Municipal Standards Division. However, any increase in enforcement levels beyond the current reactive mode would require reinstatement of the 5.5 FTE's deleted in 1998. Additional staff, vehicles and equipment would also be required if the external program review that will soon be underway recommends an extension of field services during summer months and after hours.

There is no universally accepted scientific methodology for determining the number of Animal Control Officers needed in a given jurisdiction. The National Animal Control Association Data Survey (1994) determined the ratio of Animal Services field staff to be one officer for every 16,000 - 18,000 people (a 1980's study by the Colorado Municipal League also recommended the ratio of Animal Services field staff to be one for every 18,000 people). This would require a city of 2.4 million to have 133 Animal Service Field Officers. The amalgamated City of Toronto has 33 Animal Service Field Officers, or a ratio of 1 field officer for every 73,000 people.

Conclusions:

Although animal care and control services traditionally incorporate a significant enforcement component, enforcement works most effectively when combined with education and community involvement. Animal Services is committed to continued promotion of responsible pet ownership through community outreach, one-on-one encounters with residents and the use of legal action only as a last resort.

Under current staffing levels, Animal Services can only engage in reactive or complaint-driven enforcement of the Animal Control By-law. Early enactment of new harmonized animal care and control legislation, re-instatement of the 5.5 positions lost as a result of budget cuts in 1998, and the ability to re-deploy existing staff are all essential to providing a proactive approach to by-law enforcement. Any new initiatives, particularly during high complaint summer months, would require additional staff.

Contact Name:

Fiona Venedam

Animal Services Manager, York Office

394-2660 (w)

658-8466 (f)

Dr. Sheela V. Basrur

Medical Officer of Health