March 10, 1999
To:Economic Development Committee
From:Joe Halstead, Commissioner of Economic Development, Culture and Tourism
Subject:Uniform Policy for Leashed and Unleashed Dogs in Parks.
Purpose:
The purpose of this report is to provide additional information as requested by City Council at their meeting of July 29, 30
and 31, 1998.
Source of Funds:
Not applicable at this time.
Recommendations:
It is recommended that:
1. all existing off-leash areas in the former City of Toronto, North York and Etobicoke, with the exception of Sherwood
Park, continue for the present time. In the former City of Toronto only 4 out of 23 existing sites meet the new guidelines. It
is therefore recommended that a site by site review be conducted during the next 12 months involving local residents and
Councillors, with a report back to Toronto Community Council.
2. keeping with the recommendation from North York Community Council, the existing off-leash area at Sherwood Park
be discontinued as a result of on-going concerns of neighbouring residents and park visitors.
3.potential new off-leash areas that conform to the new off-leash guidelines, the following sites be further considered in
association with the community and Councillors:
North York -- fenced in dog runs at Sunnybrook Park, Earl Bales Park and Downsview Dells Park
Etobicoke/York -- West Deane, Ravenscrest, Bloordale, Smythe, Cruikshank and Coronation Parks.
If there is support for these sites, a final decision would be made by the appropriate Community Council.
- the Medical Officer of Health be requested to report to the Board of Health and the Economic Development Committee,
at a future date, regarding a policy and costs for more effective enforcement of existing bylaws regarding stoop and
scoop and dogs off leash.
- at sites where problems with compliance to the bylaw are persistent, the Parks and Recreation Division be granted
authority to suspend the off-leash areas and submit a report to the appropriate Community Council for review.
- appropriate City staff be authorized to give effect thereto.
Background:
At its meeting on July 29, 1998, City Council adopted recommendation 1) of the Department report dated June 30, 1998 to
the July 16, 1998 meeting of the Community and Neighbourhood Services Committee which outlined a new process and
guidelines for designating off-leash areas in the City of Toronto. Pursuant to this report Council requested a report back to
Economic Development Committee on the following items:
a) review all existing arrangements where off-leash areas currently exist and report back with suggested amendments in
accordance with Recommendation No. (1) (Report to Community and Neighbourhood Services Committee);
b) the potential off-leash areas which conform to the new off-leash guidelines in Toronto;
c) the cost to properly fence off-leash areas; and
d) an effective enforcement by-law with respect to illegal unleashed dogs in City parks and violations of stoop and scoop
regulations.
Further, the Board of Health, at its meeting of December 16, 1998 referred recommendations of Community Councils with
respect to this policy to the Economic Development Committee for consideration. (Please see Appendix A)
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. Permitting dogs to roam unleashed in City parks is a
controversial issue given the challenge of satisfying the interests of all park patrons. 23 out of a total of 25 existing
off-leash areas are in the former City of Toronto and of these only 4 sites meet the new guidelines. The experience of the
former City of Toronto has been that damage to the parks has been a serious ongoing problem, the stoop and scoop bylaw
is frequently violated and dogs are often off leash beyond designated areas into on leash areas, neighbourhood streets and
private property. Further there is frequently a conflict between dogs off leash and other park patrons leading to intimidation
and discomfort that in some cases has included personal injury. On the other hand, dog owning city residents benefit from
dog companionship, security, social and recreational activity. Dogs off-leash areas promote dog owners socializing in parks
creating a presence that may enhance the perception of public safety and act as a deterrent to inappropriate or criminal
activities. Because of the potential for conflict between the interests of different park users, the Department recommends
that a site by site review of the existing sites in the former City of Toronto be conducted during the next 12 months
involving local residents and councillors with a report back to Toronto Community Council.
As a result of ongoing complaints and concerns from neighbours and non dog owning park users North York Community
Council has recommended the immediate suspension of the dogs off-leash area in Sherwood Park. The off-leash area is
located in the forested area of Sherwood Park and staff and the Sherwood Park Advisory Committee report damage to the
environmentally sensitive forest ecosystem. Sherwood Park is ostensibly entirely off-leash since the majority of dog
owners using this park allow their dogs to run unleashed in all areas of the park. This park is also a favourite location for
professional dog walkers who walk multiple dogs at one time.
Some Community Councils such as Etobicoke have declared an interest in the establishment of more off-leash areas in
parks where they would conform to the new off-leash guidelines. There has also been interest in fenced in dog runs
expressed by residents of North York. Fenced-in dog runs have been used with some success in other cities. There is
currently one fenced-in dog run in North York and one in the former Toronto. Where the park is large enough to
accommodate a fenced-in dog run without removing valuable park space from general use, this approach may be a good
one. However, lack of compliance with the stoop and scoop bylaw causes a concentration of dog faeces and having the
assistance of the local dog owners group is essential. Council requested that the Department provide information on the
cost of properly fencing off-leash areas. Installation costs vary from $45.00 to $90.00 per linear foot for fencing and
$250.00 and up for gates.
Council requested that the Department recommend an effective enforcement policy for dogs off-leash areas and the stoop
and scoop bylaw. Since enforcement of the bylaw rests with the Animal Service of the Division of Public Health
Department staff have consulted with the Medical Officer of Health with regards to this item. There are a number of ways
to approach enforcement, ranging from additional Animal Service Officers to increase the regularity of park visitation, the
production of educational brochures that can be handed out to the public to encourage their cooperation, to the involvement
of local community groups in public education. The Medical Officer of Health be requested to report to the Board of
Health and the Economic Development Committee, at a future date, regarding a policy and costs for more effective
enforcement of existing bylaws regarding stoop and scoop and dogs off leash.
Conclusions:
Dogs off-leash areas if appropriately located can provide a desirable public service. However, existing areas need further
review to determine their continuance and new areas should only be established where the site is in compliance with the
new guidelines and with the active support of local community groups who will participate in clean up, friendly policing
and education. Where space exists fenced-in dog runs may be the best answer. Effective enforcement may require further
resource allocation to the Animal Services of the Division of Public Health.
Contact Name:
John A. Macintyre
Director of Parks and Recreation
Central Services and the Waterfront
397-4451
Joe Halstead
Commissioner of Economic Development, Culture and Tourism
(Report dated December 16, 1998, addressed to the
Economic Development Committee from the City Clerk)
Recommendations:
The Board of Health at its meeting on December 1, 1998 referred the following recommendations of Community
Councils with respect to the Uniform Policy for Leashed and Unleashed Dogs in City Parks, the establishment of
leash-free zones in the City and the regulation of dog walkers, to the Economic Development Committee for
consideration:
From Toronto Community Council:
"(6)the following off leash hours be instituted in Jean Sibelius Park for a period of six months:
Weekdays : 7:00 a.m - 9:00 a.m. and 6:00 p.m. - 10:30 p.m.
Weekends:8:30 a.m. - 10:30 a.m. and 6:00 p.m. - 10:30 p.m.
(7)the Park Users' Committee of the Annex Residents' Association be recognized as the "dog watch community
group" for the Jean Sibelius Park, as requested by City policy on leash-free areas in City parks."
From Etobicoke Community Council:
"(2)strongly supported the introduction of leash-free areas in City Parks and endorsed the Uniform Policy for
Leashed and Unleashed Dogs in Parks;
(4)endorsed the Stoop and Scoop Provision of the proposed by-law and its appropriate enforcement."
From North York Community Council:
"1.WHEREAS our recreational parks are being overrun by irresponsible dog owners who are allowing their dogs
to run loose; and
WHEREAS the responsible dog owner has become increasingly fed up with the conduct of the irresponsible dog
owner; and
WHEREAS the irresponsible dog owner has put the City in a very difficult situation; and
WHEREAS it has contributed in the public having less faith is trusting loose dogs; and
WHEREAS the City's enforcement of the dog loose leash by-law should become heightened;
THEREFORE BE IT RESOLVED THAT the City's Health Department carry out aggressive enforcement of the
following by-laws as they relate to dogs and dog owners:
Dog loose leash, stoop and scoop, noise and biting.;
AND BE IT FURTHER RESOLVED THAT:
(1)should an offence be acknowledged by the City's Health Department, the dog owner be given written warning
on a first and second offence of the by-law; and
(2)should a third offence be acknowledged by the City's Health Department, that a fine be set for the dog owner
at a minimum fine of $1,000.00;
AND:
"5.Recommendation (4) embodied in the joint report (June 30, 1998) from the Commissioner of Economic
Development, Culture and Tourism and the Medical Officer of Health, as amended by Clause 1 of Report No. 7 of
the Community and Neighbourhood Services Committee, be amended to provide for the following:
'That the off-leash area in Sherwood Park be discontinued pending the fast track evaluation that is currently under
way.';
and that this amendment also be forwarded to the Economic Development Committee;"
The Board of Health reports, for the information of the Economic Development Committee, having:
(1)(a)Referred all material before the Board of Health with the exception of those matters referred to in the foregoing
Recommendation, to the Board of Health for its January 1999 meeting, and requested the Medical Officer of Health, in
consultation with the City Solicitor, to report thereon with a revised By-law taking into account the concerns and
suggestions of the deputants and people who had written in to the Board, and any other recommended amendments deemed
appropriate;
(b)requested that this revised by-law be circulated as early as possible in December to all deputants and other interested
persons;
(c)requested that deputations not be heard at the January 1999 meeting, but that written submissions would be welcomed;
(2)referred the following recommendations of the Animal Services Advisory Committee back to that Committee for
further consideration:
"m.(1)give consideration to the feasibility of establishing future by-laws:
(c)to licence/identify and regulate the keeping of and use of guard dogs, including such things as hours of work and
training; and
(e)to regulate the use of poisons and adhesives."
(3)requested the Medical Officer of Health to report to the Board of Health on:
(a)details on a public education campaign regarding spay/neuter clinics;
(b)a clarification of the provisions of the By-law with respect to attendant working dogs (eg: seeing-eye dogs);
(4)referred the following motions placed by Councillor Prue to the Medical Officer of Health for consideration of
including these into the revised By-law:
"(a)including in Section PART VII, Pigeons, a recommended number of pigeons that may be kept on the property of the
person keeping the pigeons;
(b)an appeal process which would consider exemptions, in certain situations, for animals included on Schedule A;
(c)that the exemption definition contained in the Birds order/family of Psittaciformes be revised to conform with the
federal legislation as set out in Appendix I of the Convention on International Trade in Endangered Species (CITES) or the
International Union for the Conservation of Nature (IUCN)."
Background:
The Board of Health at its meeting on December 1, 1998 had before it a report (October 29, 1998) from the City Solicitor
respecting the Revised Animal Control By-law, providing the Board of Health with a revised draft animal control by-law
which reflects the recommendations made by the Animal Services Advisory Subcommittee of the Board of Health; and
recommending that authority be granted to introduce the necessary Bill in Council in the form or substantially in the form
of the draft by-law attached to the foregoing report.
The Board also had before it the following reports/communications:
-(November 16, 1998) from Councillor Irene Jones, Chair, Animal Services Subcommittee of the Board of Health
-(September 16, 1998) from the Interim Contact, Board of Health for the City of Toronto Health Unit, addressed to all
Community Councils
-(October 21, 1998) from the City Clerk, Toronto Community Council
-(October 19, 1998) from the City Clerk, East York Community Council
-(October 16, 1998) from the City Clerk, Etobicoke Community Council
-(October 19, 1998) from the City Clerk, North York Community Council
-(October 20, 1998) from the City Clerk, York Community Council
-(November 17, 1998) from the City Clerk, Scarborough Community Council
-(October 11, 1998) from Joseph Frankovic and Janet Lawrence, Toronto
-.(November 5, 1998) from Louis McCann, Executive Director, PIJAC Canada (Pet Industry Joint Advisory Council)
-(November 6, 1998) from Margaret S. Both, Vice-President, OHS
-(October 26, 1998) from Dr. Wolfgang Zenker, Burloak Animal Clinic, Oakville
-(November 2, 1998) from C. M. McIntosh and Margaret Ratan, Don Mills
-(September 30, 1998) from Jack Warren, Toronto
-(October 6, 1998) from Vernon Nixon
-(October 12, 1998) from Rhea Plosker and Michael Carter, Toronto
-(October 12, 1998) from Holly Penfound and Lesli Bisgould, Directors, Zoocheck Canada Inc.
-(October 13, 1998) from Ian Clifford, Toronto
-(October 14, 1998) from Heather Speakman, Toronto
-(October 18, 1998) from Sheila Bacher, Toronto
-(November 15, 1998) from Thea Botsford, Toronto
-(November 17, 1998) from Heather Hogben, Toronto
-(November 18, 1998) from Lois Horst, Toronto
-(November 27, 1998) from the Medical Officer of Health
-(November 21, 1998) from Zennia Savaryn, Toronto
-(November 17, 1998) from Carol Lau, Etobicoke
-(November 23, 1998) from Helen Roman Barber, Toronto
-(November 24, 1998) from Elyse Tytel, Toronto
-(November 25, 1998) from Chris Whitelaw, obo Aquarium Services Warehouse Outlets
-(November 25, 1998) from Lori A. Welbourn, Cavan, Ontario
-(July 28, 1998) from Gloria Lindsay Luby, Toronto City Councillor, Kingsway Humber, forwarding a communication
(undated) from Veronika Hering
-(November 25, 1998) from Eileen Elmy, Toronto
-(November 20, 1998) from Penny Walker, Thornhill
-(November 27, 1998) from Janet M. Shea & Children, Newmarket
-(November 27, 1998) from Mary & Bob Long, Scarborough
-(Undated) from A. Teresa Kowalishin, Toronto
-(November 25, 1998) from Christopher Holoboff, The Avicultural Advancement Council of Canada, Toronto
-(November 18, 1998) from Jim Albani, East York, forwarded by Councillor Michael Prue
-(November 18, 1998) from B. Buckle, Toronto
-(November 30, 1998) from Anne Leon
-(November 29, 1998) from Veronica Pees
-(November 18, 1998) from Jennifer Polk, obo The Kindness Club
-(Undated) from Patricia Thiessen, Chairman, Putting People First, Canada
-(November 30, 1998) from Maria Kasstan
-(November 25, 1998) from Baxter H. Boyde
-(November 30, 1998) from the Toronto Humane Society
-(November 30, 1998) from Christopher Holoboff, Barrister and Solicitor
-(November 29, 1998) from Dr. Rick Axelson, The Links Rd. Animal & Bird Clinic
-(November 28, 1998) from H. Makarewicz
-(November 30, 1998) from Mary Ann Clifton
-(Various dates) Various communications submitted by Councillor Anne Johnston
-(November 30, 1998) from Dr. B. Mingram, P.V.M., Clarington Animal Hospital
-(November 30, 1998) from Grace Hall, Adopt-A-Dog/Save-A-Life
-(November 30, 1998) from Conrad Beaubien
-.(November 30, 1998) from Frances Rodenburg, Executive Director, Canadian Federation of Humane Societies
-(Undated) from Natalia Mayer and Derek Smith
-(Undated) from Ontario Herpetological Society
-Photo of corn snake at the North York Animal Shelter
-(December 1, 1998) from Brian Eddy, Founding President of the Parrot Association of Canada and Life Member of the
World Parrot Trust
-(December 1, 1998) from Christine Schramm, President, Rainforest Reptile Refuge Society
-(Undated) from Steve Marks
-(December 1, 1998) from Chris Holoboff, forwarding copy of Bird Talk, January 1999
-(December 1, 1998) from Rob Laidlaw and Holly Penfound, Directors, Zoocheck Canada Inc.
-(December 1, 1998) from Tom Mason, Toronto Zoo
-(Undated) from Jenny Pearce, Etobicoke
-(Undated) from Jeff Hathaway, Etobicoke
-(December 1, 1998) from Marlene Semple, Annex Animal Rescue, Toronto
-(November 30, 1998) from F. Everitt and F.F. Everitt
The following persons appeared before the Board of Health in connection with the foregoing matter:
-Eric Pressman, Toronto
-Heath Thomas, Scarborough
-.Josephine Polk, The Kindness Club, Toronto
-Michael Lockey, Toronto Parrot Club
-Anne Parker, Weston
-Victoria Earle, Chief Executive Officer, Ontario S.P.C.A.
-.Nathalie Karvonen, Toronto Wildlife Centre
-.Valerie Wyatt, Guelph
-Brian Eddy, Founding President of The Parrot Association of Canada, and Life Member of The World Parrot Trust,
Toronto
-.Margaret Both and Carol Both, Aurora
-Melissa Drake, Etobicoke
-Adelaide Bell, Toronto
-Mike Murphy, Toronto
-Chris Pritchard, Toronto
-Lois Horst, Toronto
-George Haeh, Toronto
-Zennia Savaryn, Toronto
-Gayle Murphy, Toronto
-Veronica Hering, Toronto
-Dr. Petra Burgmann, Animal Hospital of High Park
-Keith Burgess, Ontario Director, PIJAC Canada, and Pet Paradise
-Arlene Lannon, Toronto
-Jennifer Jones, Markham
-Grant Crossman, Ontario Exotic Pet Council, Port Credit
-Steve Marks, Barrie
-Valerie Scott,Toronto
-Rob Summers, Etobicoke
-Professor Sylvia Mittler, Scarborough
-Chris Holoboff, Toronto
-Steve Ellis, Toronto
-Diane Grell Thow, East York
-Linda Pitney
-Mark Hagan, Scarborough
-Dr. W. G. E. Zenker, Burloak Animal Clinic, Oakville
-Merlin Andrew, Toronto
-Holly Penfound, Zoocheck Canada Inc.,Toronto
-Chris Whitelaw, obo Aquarium Services Warehouse Outlets, Markham
-David Rosenfeld, Toronto
-Teresa Kowalishin, Toronto
-Louis McCann, Pet Industry Joint Advisory Council Canada (PIJAC), Pointe Claire, Quebec
-Ms. Paula Neilson, North York
-Rose Jackson, Toronto
-Alan Heisey, Kerzner, Papazian, MacDermid, Solicitor obo PJ's Pet Stores, Toronto
-Dr. Rick Axelson, The Links Road Animal & Bird Clinic, North York
-Mike Elioff, Ontario Turtle & Tortoise Society, Oakville
-Jacquie Blackburn, Scarborough
-Maris White, Toronto
-Dominic Clarke, Menagerie Petshop, Toronto
-Peter Mostert, c/o Christopher Holoboff, Barrister & Solicitor, Toronto
-Rick Parker, Canadian Wrangler Motion Picture Animals Ltd.
-Rose Kologie, Ajax
-Tom Mason, Acting Curator of Birds, and Curator of Invertebrates, Toronto Zoo
-Liz White, Director, Animal Alliance of Canada
-Mike Coward, Ontario Coalition Against Poverty, Toronto
-Sharon Boon, Scarborough
-Jenny Pearce, Etobicoke
-Jeff Hathaway, Etobicoke
-Mike Murphy, Toronto
-Christine Pellegrini, North York
-Marlene Semple, Annex Cat Rescue, Toronto
-Jim Martin, Toronto
-Rob Laidlaw, Director, Zoocheck
