Uniform Policy for Leashed and Unleashed Dogs in Parks

The Community and Neighbourhood Services Committee recommends:

(1)the adoption of the joint report dated June 30, 1998, from the Commissioner of Economic Development, Culture and Tourism and the Medical Officer of Health, subject to:

(a)amending Recommendation No. (4) by adding thereto the following:

"and further that all current off-leash areas in City Parks be confirmed until such time as the staff have conducted their review and reported on any amendments to Community Councils, and Council, accordingly;",

so that such Recommendation now reads as follows:

"(4)staff be directed to review all existing arrangements where off-leash areas currently exist and report back with suggested amendments in accordance with Recommendation No. (1); and further that all current off-leash areas in City Parks be confirmed until such time as the staff have conducted their review and reported on any amendments to Community Councils, and Council, accordingly;",

(b)amending Recommendation No. (5) by adding thereto the following:

"and on exploratory comments and/or arrangements for vacant industrial lands;",

so that such Recommendation now reads as follows:

"(5)the Commissioner of Corporate Services be requested to report on the feasibility of using vacant City lands for the development of "dog parks," and on exploratory comments and/or arrangements for vacant industrial lands;";

(c)amending Step 3 in Appendix 1 under "Community input" by adding thereto the following:

"and that this meeting will provide input on whether an off-leash area is desirable at the proposed location and, if so, what rules and restrictions should apply.";

(d)amending Appendix 1 to provide that, prior to recommendation and park designation of new off-leash areas, staff obtain the approval of both Ward Councillors;

(e)amending Item (1)(c) in Appendix 2 to read as follows:

"(1)(c)Environmentally sensitive areas which have been identified by the Parks and Recreation Division, such as ravine areas and naturalized planting areas."; and

(f)amending Appendix 2 to provide that staff of the Parks and Recreation Division review the ratio of park space to residents;

(2)that the Commissioner of Economic Development, Culture and Tourism be directed to provide improved signage for all off-leash areas in City parks;

(3)that a pamphlet regarding the responsibilities of dog ownership be widely circulated throughout the City;

(4)that the North York "Poop Patrol Program" be expanded to include all the amalgamated City parks; and

(5)that the Community Councils, when holding public hearings on possible amendments to the Animal Control By-law in October, 1998, be requested to hear deputations on the uniform policy for leashed and unleashed dogs in City parks; and that the outcome of such hearings on this issue be forwarded to the Board of Health and Economic Development Committee.

The Community and Neighbourhood Services Committee reports, for the information of Council, having requested the Commissioner of Economic Development, Culture and Tourism to:

(i)report directly to Council on July 29, 1998, on:

(a)the feasibility of increasing the number of dogs under the control of one person in the designated off-leash areas;

(b)the possibility of implementing dog off-leash and on-leash periods in City parks; and

(ii)report to the Economic Development Committee on:

(a)the potential off-leash areas which conform to the new off-leash guidelines in Toronto;

(b)the cost to properly fence off-leash areas; and

(c)an effective enforcement by-law with respect to illegal unleashed dogs in City parks and violations of stoop and scoop regulations.

The Community and Neighbourhood Services Committee submits the following joint report (June 30, 1998) from the Commissioner of Economic Development, Culture and Tourism and the Medical Officer of Health:

Purpose:

To submit for consideration various recommendations relating to dogs in parks in order to reduce conflict between park users and to harmonize different practices existing in the former municipalities.

Source of Funds:

Not applicable at this time.

Recommendations:

That the Community and Neighbourhood Services Committee adopt the following recommendations and refer them to City Council for approval:

(1)the process and guidelines for designating off-leash areas in City of Toronto parks, as outlined in Appendices 1 and 2, be adopted;

(2)the number of dogs allowed under the control of one person in a City of Toronto park be limited to three which is the maximum allowed to be owned by one household, and the City Solicitor be asked to draft appropriate legislation to give effect thereto;

(3)Animal Services be requested to report back on any additional resources required to increase their capacity to work with the community to encourage voluntary compliance with park by-laws. Further that Animal Services be authorized to approach potential corporate partners to solicit funding for educational programming;

(4)staff be directed to review all existing arrangements where off-leash areas currently exist and report back with suggested amendments in accordance with Recommendation No. (1);

(5)the Commissioner of Corporate Services be requested to report on the feasibility of using vacant City lands for the development of "dog parks";

(6)this report be sent to the Board of Health for comment to City Council; and

(7)the appropriate City officials be authorized to give effect thereto.

Background:

The Community and Neighbourhood Services Committee on March 26 and 27, 1998, had before it a communication (February 2, 1998) from the City Clerk advising that York Community Council on January 21, 1998, recommended to the Community and Neighbourhood Services Committee that the Medical Officer of Health be requested to report on the development of a City-wide uniform policy regarding leashed and unleashed dogs in City parks. Since this is a significant policy and operational issue for the Parks and Recreation Division of the Department of Economic Development, Culture and Tourism, staff are bringing forward a joint report for consideration. Further, the Board of Health at their July 6, 1998, meeting is considering a report on Municipal Animal Care and Control Legislation as a deputation item that is expected to proceed to the next City Council meeting.

Comments:

The Uniform Parks By-law that was consistent across all the former municipalities stipulates that no person having control of any dog shall allow it to run at large, except in a designated area. In the former City of Toronto, 21 parks have designated off-leash areas and are considered to be temporary "pilot project" locations subject to reporting back on impact. Several of these parks have restricted hours for off-leash dogs.

The former City of Etobicoke started a "pilot project" two years ago designating one park with dogs off-leash between certain hours from May to October and 24-hour dogs off-leash, between November and April in an area that is partially fenced.

The former City of North York has recently built a fenced dogs off-leash area in one large park.

The former Borough of East York, City of Scarborough, City of York and Municipality of Metropolitan Toronto have no dogs off-leash areas.

Permitting dogs to roam unleashed in City parks is a controversial issue given the challenge of satisfying the interests of all park patrons. While most dog owners obey all by-laws and keep their dogs under control, problems are on the rise in part because of the increase in the number of dogs, their natural behaviours and a minority of irresponsible dog owners. The Parks and Recreation Division and the Animal Services have been monitoring the dogs off-leash locations and report the following observations:

-City residents who own dogs benefit from their companionship, security, social and recreational activity.

-Dogs off-leash areas promote dog owners socializing in parks thereby creating a presence, enhancing the perception of public safety and deterring inappropriate or criminal activity in the area.

-Most dog owners comply and many participate in informal enforcement and public education activities with park users.

-Off-leash activity frequently expands beyond the designated areas and park boundaries into on-leash park areas, neighbourhood streets and private properties.

-"Stoop and Scoop" violations are on the increase in parks.

-The public is reporting health and safety concerns particularly for children and senior citizens including: confrontation 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. The recent media reports of dog bites and attacks on children have raised particular concerns.

-There have been a growing number of professional dog walkers arriving with many dogs at a time causing concern to park visitors and damage to parkland. Adherence to stoop and scoop by-laws is particularly problematic with multiple dog walking.

-Park damage is occurring throughout the year including holes being dug by dogs creating trip hazards to park patrons and sportsfield users. As well, the fragile nature of forest ecology of the ravines is being threatened by dogs who are a major contributor to erosion and damage to sensitive plant material.

-Designated park areas for dogs off-leash creates a situation of concentrated usage, resulting in park damage.

-There have been a number of staff complaints of dogs bothering or attacking them during their performance of park maintenance activities.

-Enforcement of the existing by-laws with current resources is seriously inadequate.

Conclusions:

There is an ever increasing demand for the provision of dogs off-leash areas in parks. Without a rational multi-faceted approach to the issue, complaints from other park users and park damage can be expected to continue. Other cities have experimented with fenced dogs off-leash areas in large tracts of parkland as well as on unused city land with some success. Enforcement alone without community participation and education is nearly impossible. The process and guidelines for approving new dogs off-leash areas is described in Appendix 1 and features:

(1)community consultation;

(2)annual reviews;

(3)dog owners assuming "dog watch" responsibilities; and

(4)a list of areas that would be rejected because of their unsuitability through safety, operational or environmental reasons.

Contact Names:

Jill CherryJames Bandow

Parks and Recreation DivisionAnimal Services

392-0360392-6767

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Appendix 1

Process for Leash-free Areas in City of Toronto Parks

Step

(1)Initial proposal request:Area residents who are interested in an off-leash area for their neighbourhood should contact the Parks and Recreation Division and Ward Councillor.

(2)Research of the proposal:Parks and Recreation will review each site against established guidelines (Appendix 2) in consultation with the Public Health Division - Animal Services. If the proposal does not meet the guidelines, the proponents will be advised of the deficiencies.

(3)Community input:Parks and Recreation will participate with Public Health - Animal Services and the Ward Councillor in a public meeting with members of the community such as Advisory Councils, sports groups, area schools, etc. to establish protocol, determine area and identify the dog watch community group.

(4)Report:Parks and Recreation will submit a report to Community Council with recommendations -deputations at Community Council may be required depending on neighbourhood circumstances.

(5)City Council approval.

(6)Evaluation as per procedures for review.

Provisions for review, implementation and enforcement are set out below:

-Implementation:Parks and Recreation will arrange for and install signage which would clearly indicate on and off-leash areas, hours of off-leash times and stoop and scoop regulations and fines.

-Annual Review:Parks and Recreation Division and Public Health Division - Animal Services, in consultation with the Ward Councillor and the community dog watch group, will undertake a review annually to determine if further action is required to improve or remove the dogs off-leash area resulting in a report to Community Council with:

(i) recommendation to continue, or

(ii)revisions to off-leash areas.

-EnforcementPublic Health Division - Animal Services and Toronto Police when contacted by the community dog watch group as required.

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Appendix 2

Off-Leash Guidelines

(1)All parks and vacant City of Toronto land should be considered for dogs off-leash areas. The following, in most cases, will be excepted:

(a)Parks that have passive and active uses, such as playgrounds, wading pools, permitted sportsfield activities; paths used for cycling, rollerblading and pedestrian links (boardwalks).

(b)Active play areas of parks such as toboggan areas, permitted locations and athletic running tracks.

(c)Environmentally sensitive areas such as ravine areas and naturalized planting areas.

(d)Parks adjacent to schoolyards.

(e)Natural and artificial rinks.

(f)Internal pedestrian park pathways that are used on a regular basis (neighbourhood connections).

(g)Sportsfields.

(h)Ornamental gardens.

(i)Parkettes under 0.5 ha in size.

(2)That fenced in dogs off-leash areas be considered for selected parks on a regional basis in parks larger than 10 ha, subject to the process and guidelines outlined in Recommendation No. (1).

(3)Before considering an application for a dogs off-leash area, dog owners using the park must form a group with a minimum of 15 members who agree to:

(a)Provide "Dog-Watch" eyes and ears on the park to identify and help educate irresponsible pet owners.

(b)Organize park clean-ups at a minimum of four times per year.

(c)Repair areas damaged from dogs/digging.

(d)Consult with Public Health - Animal Services for by-law enforcement when required.

(4)In consultation with the community and Ward Councillor, off-leash times be designated (except in fenced areas) to minimize potential conflict with other park users.

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The Community and Neighbourhood Services Committee reports, for the information of Council, having also had before it during consideration of the foregoing matter communications from the following:

-(May 7, 1998) from Councillor Chris Korwin-Kuczynski, High Park, forwarding a copy of Clause 31 of Report No. 12 of the Neighbourhoods Committee, entitled "Dogs Off-Leash in Designated Areas - City of Toronto", which was adopted, as amended, by the former City of Toronto Council on September 22 and 23, 1997;

-(May 22, 1998) from Councillor Chris Korwin-Kuczynski, High Park, submitting a communication (May 15, 1998) from Mr. and Mrs. D. Teixeira forwarding a petition of approximately 132 names requesting a designated "leash-free" area in Rennie Park near the ravine;

-(June 16, 1998) from Mrs. Joyce E. Ball requesting a leash free area at Bloordale Park, and attaching a petition of approximately 22 signatures in this regard;

-(July 14, 1998) from Ms. Paola Franceschetti in opposition to off-leash areas;

-(July 14, 1998) from Mr. Paul Hecht providing suggestions for leash-free areas in Sorauren Park;

-(July 16, 1998) from Mr. R. Burt expressing concern with respect to off-leash areas and suggesting that such areas be fenced-in areas only;

-(July 16, 1998) from Ms. Naseen Malik, Public Affairs Officer, Toronto Humane Society, advising that the Society was not consulted with respect to proposed changes governing leashed and unleashed dogs; and recommending that:

(1)the Toronto Humane Society be permitted to participate in ongoing discussions before there is any action taken to implement changes to the leashing policy;

(2)the Toronto Human Society be permitted to engage in public consultations with the Board of Health and the Department of Health, concerning the harmonization of animal control by-laws; and

(3)the process to determine a uniform policy for leashed and unleashed dogs be folded into the consultations undertaken with the Board of Health and the Department of Public Health, concerning the harmonization of animal control by-laws;

and from the following in opposition to limiting the number of dogs under one dog walker and in support of off-leash areas for dogs in City parks;

-(July 10, 1998) from Ms. Gabby Naylor;

-(July 13, 1998) from Ms. Shirley Gulliford;

-(July 13, 1998) from Ms. Julie Cohn;

-(July 13, 1998) from Ms. Marilyn Linton;

-(July 14, 1998) from Mr. Victor Tovey;

-(July 14, 1998) from Ms. Marce Riddell; and suggesting a limit of six dogs per dog walker;

-(July 14, 1998) from Ms. Stephanie S. Miller;

-(July 14, 1998) from Mr. Christopher Killey;

-(July 15, 1998) from Wendy and Jeff Herman;

-(July 15, 1998) from Mr. Mark J. Decker;

-(July 14, 1998) from Ms. Judy Righton, Pet Partners Inc.; and suggesting four to five dogs per person is a safe and reasonable limit for a bonafide professional dog walker;

-(July 14, 1998) from Dr. Shana Friedman-Midroni and Dr. Ran Midroni;

-(July 15, 1998) from Mr. Andrew L. Basek;

-(July 15, 1998) from Ms. Charlene Butler; and suggesting that a solution might be to license professional dog walkers;

-(July 15, 1998) from Ms. Vivianne Cowley;

-(July 15, 1998) from Ms. Sarie Jenkins;

-(July 15, 1998) from Ms. Jean Cockburn and Mr. Michael Cretzman;

-(July 15, 1998) from Ms. Caren McCracken;

-(July 15, 1998) from Mr. Richard Boraks;

-(July 15, 1998) from Ms. Linda Kilpatrick;

-(July 15, 1998) from Mr. W. Barrie Thomson;

-(July 15, 1998) from the Litowitz family;

-(July 16, 1998) from Mr. David Stickney and family;

-(July 15, 1998) from Mr. William L. Stanford, and providing suggestions on how to better enforce the current by-laws;

-(July 15, 1998) from Mr. Eric Pressman, owner and operator of Leader of the Pack;

-(July 16, 1998) from Ms. Elizabeth Woodmansey;

-(July 16, 1998) from M. Rogers; and

-(July 16, 1998) from Ms. Celia Johnstone.

The following persons appeared before the Community and Neighbourhood Services Committee in connection with the foregoing matter:

-Ms. Diane Eibner, on behalf of Ms. Martha Shea, Professional Dog Walkers Association; and submitted Ms. Shea's brief in regard thereto;

-Ms. Diane Eibner, and submitted a brief in regard thereto;

-Mr. Eric Pressman;

-Ms. Andrea Mann;

-Ms. Joyce Ball;

-Ms. Cynthia Prestula, and showed a video in regard to dogs running off-leash in a local park;

-Mr. Robert Ball;

-Mr. Patrick Williams, and submitted a brief in regard thereto;

-Ms. Jane Brooks;

-Ms. Nina Balodis;

-Ms. Wanda Juraskek;

-Ms. Terry Wade;

-Mr. Ross Waddell;

-Ms. Karen Ito;

-Ms. Grace Petrucci; and

-Mr. Jack Slibar, Chief Operating Officer, Toronto Humane Society.