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HomeMy WebLinkAboutCS 27-07 REPORT TO EXECUTIVE COMMITTEE Report Number: CS 27-07 Date: June 11, 2007 145 From: Gillis A. Paterson Director, Corporate Services & Treasurer Everett Buntsma Director, Operations & Emergency Services Subject: Leash Free Areas within the City of Pickering - File: S-3010 Recommendation: 1. That Report CS 27-07 of the Director, Corporate Services & Treasurer and the Director, Operations & Emergency Services, be received; 2. That the submission from the Pickering Dog Park Working Group, presented as Attachment #1 to this report, be acknowledged; 3. That a public meeting be held in fall 2007 for the purpose of obtaining comments on the possible establishment of a leash free dog area and regulations in Pickering. Executive Summary: On September 18, 2006, correspondence was received and a delegation was heard from representatives of the Pickering Dog Park Committee, submitting a formal request to engage the City of Pickering in the investigation for establishing designated off-leash areas for dogs within the City of Pickering. Council referred the matter to the Director, Operations & Emergency Services and City Clerk to report back on the matter. Financial Implications: Depending on the location chosen, there are financial implications and no 2007 operating funds were approved for this purpose. Upon approval of the concept and a designated leash free area, funds would be allocated in the 2008 operating budgets. Report CS 27-07 June 11, 2007 Subject: Leash Free Areas ..,~ Page 2 Sustainability Implications: The concerns and analysis presented as generated by staff address responsible pet ownership within the healthy society objectives. Background: At the September 18, 2006 meeting of Council, staff were requested to report back with respect to the investigation for establishing designated off-leash areas for dogs within the City of Pickering. Since that time, City staff and members of the Pickering Dog Park Committee have met on numerous occasions, culminating in a Preliminary Proposal from the Pickering Dog Park Working Group. Staff are supportive of the work completed by the Working Group, however due to budget implications, are suggesting preliminary approval of the concept through the holding of a public: meeting to solicit comments and an anticipated 2008 implementation in order to budget accordingly. Within the City of Pickering, dogs are only allowed to be leash free when on the owners property and are required to be under the owner's control at all times. The primary concern with leash free areas is that dogs may be more able to escape from the owner's control. Most municipalities rely on the Dog Owners Liability Act to make owners responsible and accountable for their pets, regardless of the location or circumstances. Citizens of Pickering are governed by the provisions of our new Responsible Pet Ownership by-law. At the present time, there are no leash free areas within the City of Pickering. There are several leash free areas in and near Toronto. The leash free areas that staff have been made aware of are Sherwood Park - Toronto, White Spruce Park - Brampton and Garnetwood Park - Mississauga. The Town of Ajax has two leash free areas, one located on the northwest corner of Greenwood Conservation Area, accessed from Church Street and the other on the property intersecting Westney Road South and Clements Road, access at the Lions Park/Anglers Parking Lot. Prior to approving these two leash free areas, the Town of Ajax held two well-attended public meetings, on May 10, 2001 and April 16, 2002. A further meeting was held on July 31, 2002, which was for the purpose of updating leash free area users about their role as good stewards. Staff at the Town of Ajax have indicated that the current leash free areas, selected at first on a trial basis, are operated, enforced and administered at a low cost within current levels of service. They note that response to leash free areas has been overwhelmingly positive. The user groups assist in maintaining areas by informing other users of rules, cleaning up garbage and waste, and by providing feedback to Town of Ajax staff and assist in reporting infractions or incidents of vicious dogs and vandalism. In considering the establishment of leash free areas and regulations for dogs, the following options were considered by staff: 1. Status Quo - Maintain present standards that dogs may be leash free only on the owners property. CORP0227-07/01 revised Report CS 27-07 June 11, 2007 Subject: Leash Free Areas Page 3 .147 At present, dogs must always be on a leash when off the owners property. This standard results in relatively difficult enforcement as dog owners are often in the habit of allowing their dogs to run leash free in many different parts of the City. Pickering Animal Services staff have the primary responsibility for enforcement of off leash dogs, and 180 warnings/infractions were noted in 2006. It should be further noted that responsible pet owners are frustrated that their pets do not have a designated area for being leash free, aside from their own property. 2. Desiqnate Specific Areas and Times for Leash Free Exercise Many municipalities allow pets to run leash free in designated areas at specific times. Areas may be identified that could be considered surplus to the general public. It is expected, however, that many park users will not be comfortable with unfamiliar dogs running loose and not on a leash or within a confined area. This approach would be more cost-effective as significant fencing could be avoided. As well, enforcement may be simpler within a confined area, if made available. 3. Establish a leash free facilitv This option would entail the establishment of a significant fenced area where pets could run leash free at any time. The general public will be more comfortable knowing that dogs would not be loose in other areas. Dog owners may also be more comfortable knowing that their pets are in a confined area where they can socialize freely with other pets without having to be concerned with disturbing the general public. Enforcement issues would likely decrease if owners were diligent in having their pets run free only in the designated area. Disadvantages are that owners may not like to travel to the one or two such facilities that the City may be able to establish. The significant cost of fencing a facility is also a major concern. There are many issues to be considered before making any recommendations on this matter. Such matters include safety of the general public, safety of the dogs, especially as it relates to various dog sizes, ages, temperaments and breeds, convenience for dog owners, ease and cost of enforcement, site suitability and location, liability, insurance, security of a designated area, maintenance, public education and public input. There has been a small group working with staff to determine a feasible leash free area, and present a proposal to staff and subsequently to Council. Included as Attachment #1 to this report, is the preliminary proposal as submitted by the Pickering Dog Park Working Group. There has been one site identified, which is primarily owned by the Toronto Region Conservation Authority (TRCA), along with bordering land managed through Hydro One and private landowners. The property is located on Valley Farm Road, just north of Finch Avenue and is noted on page 4 of the proposal from the Working Group. At this time, the private landowners have not approved the use of their property for this purpose. CORP0227-07/01 revised Report CS 27-07 June 11, 2007 Subject: Leash Free Areas ~4B Page 4 The site as proposed by the Working Group requires parking at the south end of the park area, immediately past the current gate entrance. However, this is the area privately owned and a further review of the site will be required by staff. Regardless of the proposed reconfigured site, the Working Group is requesting that the City provide a parking area, in the form of a compressed gravel base; along with fencing as deemed appropriate, signage and refuse containers. At this time, staff are pursuing Option 3 of establishing a leash free area, based on the request of the Working Group and additional public input, however, this is dependent upon 2008 funding.. Operations staff would need to investigate whether there are any suitable locations for establishing a secure leash free facility in Pickering; however, any available areas must be considered in the context of what is identified as desirable by dog owners. A secured (fenced) leash free area in Pickering may be preferable, rather than establishing leash free times in specific parks or areas. Although there may be cost savings in relation to the cost of fencing the area or providing a gravel parking lot, it is not deemed the best approach. A permanent leash free facility may require an area approximately one hectare in size and completely enclosed by a 1.5 m. high chain link fence with multiple gates. Adequate refuse containers and signs would also be required. This approach will not restrict the times that dogs may be off-leash in the designated area and also protects the ability of non dog owners to also enjoy town parks without fear of dogs running at large. Unfortunately, there is a significant cost associated with establishing a large fenced area where dogs can run leash free. Operating costs for a fenced area are unknown at this time. A public meeting to discuss the possible establishment of a leash free area(s) could be held this year, if Council feels more public input is required. Notice would be published in the Community Page and in other forms that may be helpful. The public meeting would involve a presentation by staff on options for leash free area(s) and associated costs, along with the involvement of the Working Group. Based on this information and the public comments received, Council may determine whether establishment of a leash free area will be included in the City's 2008 budget. Summary Leash free areas in urban areas are becoming more common. A public meeting will assist Council in determining whether it wishes to include a leash free area in the 2008 budget estimates. However, regardless of whether or not a public meeting is recommended to be held, staff would like to continue meeting with the Working Group in order to finalize a suitable designated leash-free area and establish applicable responsibilities of the 'stewardship' group to maintain and improve the leash free zone. The involvement and continued assistance of the Working Group is critical to the City's success of establishing designated leash-free areas. CORP0227-07/01 revised Report CS 27-07 June 11, 2007 Subject: Leash Free Areas Page 5 149 Attachments: 1. Preliminary Proposal from the Pickering Dog Park Working Group. Prepared By: Approved I Endorsed By: \ Debi A. Bentley City Clerk ~~~2 Gillis A. Paterson Director, Corporate Services & Treasurer c.. -~ sma perations & Emergency Services DB:lr Attachment Copy: Chief Administrative Officer Recommended for the consideration of Pickering City Q cil ~ CORP0227-07/01 revised hi 150 I ATTACHMENT" I TO REPORT" cs I ;;C 7 - 01 PRELIMINARY PROPOSAL TO THE CITY OF PICKERING to discuss the establishment of an OFF-LEASH DOG AREA Presented by the Pickering Dog Park Working Group April 9, 2007 PICKERING OFF-LEASH DOG PARK PROPOSAL APRIL 2007 151 TABLE OF CONTENTS I SSU E ............................................................................... "........ ................................................................................... 3 RE ME D Y ........................................... .......................................................................................................................... 3 RE Q UE ST .......................................................................................................................................................... .......... 3 EST ABLISHIN G THE OFF-LEASH PARK ........................................................................................................... 4 THE SITE....... ........ ................ ............................................... ...................................................................................... 4 ACCESS AND PARKING ....................... ............................ "....................... ....................................................................4 FENCING.. ..... ....... .... ...... .................. ..... ... ....................... ... ........ ............. ...... ...... ... ...... ..................... ........ ........ ..........4 SIGNAGE ..................................... ............. .................. ...."........................ ....................................................... ............4 REGULATIONS..... ........ ................ ........... ................................................. ............................... ............ ......... ............... 4 GARBAGE AND REFUSE ..................................................."................. ................................................................... ......5 INITIAL CLEAN UP............... ............... ..................... .......................... .............. ................. ................ ........ ..................5 MAINT AININ G THE PARK..................................................................................................................................... 5 NEXT STE PS.......................................................................................... ..................................................................... 5 PICKERING DOG PARK WORKING GROUP MEMBERS: .................................................................................................5 APPENDIX B: ALTERNATIVES CONSIDERED ................................................................................................. 7 Page 2 of7 PICKERING OFF-LEASH DOG PARK PROPOSAL APRIL 2007 152. On September 18, 2006 a group of community volunteers were given permission to engage city staff in the investigation of establishing an off-leash dog park within the City of Pickering. With a potential site identified, this document outlines what work may need to be completed in order to establish and maintain the dog park. The objective is to validate these assumptions, obtain price estimates, and identify possible sources of funding and next steps. Issue There are an estimated 5,000 dogs! within the municipality of Pickering and no designated off-leash areas to provide the necessary exercise and socialization required to maintain the health of the animals (see Appendix A). As a result, it has become common practice for pet owners to use community parks and green spaces to exercise and socialize their pet's off-leash, contributing to: . A higher incidence of encounters and complaints between dogs and non-dog owners, especially in popular park or hiking an:as. . Increased risk that the pet may escape from the owners control placing the dog and others in jeopardy (traffic hazards, for example). . Pollution in park areas from pet owners who do not pick up after their dogs. . Higher costs to enforce current bylaws. Remedy Establishing a leash-free area within Pickering will help alleviate these issues while also enhancing the value- proposition of the municipality as an attractive place to live by: . Reducing encounters between the dog and non-dog community . Reducing the risk of dogs-at-Iarge . Reducing pollution from dog feces in public parks This improves Pickering's competitive marketability as a desirable place for relocation, where the municipality offers services and facilities comparable to other cities in the GT A such as Ajax, Markham, Toronto, and Mississauga. Request A potential site has been identified which would be suitable for an off-leash area. The land is primarily owned by the Toronto Regional Conservation Authority (TRCA), but is also boarded by land managed through Hydro One. Both parties are open to negotiating the terms of use for this purpose. The site is located on the west side of Valley Farm Road, just north of Finch Avenue and is: . Mixed terrain and natural barriers . Accessibility by car or public transit . Single purpose use, removed from other park or community areas . Approximately 1.5 miles long by .5 miles wide 1 Estimate based on Stats Canada averages Page 3 of7 PICKERING OFF-LEASH DOG PARK PROPOSAL APRIL 2007 153 . Not located in an environmentaHy sensitive area The Working Group is requesting the Council support the establishment ofa designated off-leash area for dogs within the municipality by assisting with the initial set-up and ongoing maintenance. North is primarily grass lands West side (along Valley Farm Road) has a medium to high embankment which is wooded. There is a car rail along Valley Farm Road. East end is boarded by a Hydro corridor, comprised of grasslands South side has an entrance area including a gate which is currently in disrepair. Establishing the Off- Leash Park The Site Location: Roughly parallel to VaHey Farm Road, north of Finch Avenue is a green space (Section P068, city of Pickering Parks and Open Space Map, 2007). Size: Approximately 1.5 miles long by .5 miles wide. Terrain: Grass-lands and wooded areas with a wide path, boarded as foHows. . . . . .: lioIIAPo.VES"..~ o~~~w HOlly f/<'dge lJ, Mojo, oaks Ref tp ;. %~ <'(}...- J..;)/1. e-i':.;: '~rl'fJ -1'", D~4. 0/.... " g ~ .~ ~ P- C ~ 6}~-I' ~~(IJ . Or .~~\ ~20>07MapClLl<:",:IrU,l,1.~~'1{()? €>2007N'iWTEQ Access and Parking Parking can be located at the south end of the park, immediately past the current gate entrance. It is recommended to have a capacity for 10 - 12 vehicles. Overflow parking can be accommodated at the parking area currently located on the south side of Duffins Creek, which can fit approximately five vehicles. The parking area surface can be compressed gravel. Fencing The parking area, especially along Valley Farm Road, may need to have the current fence repaired or constructed. The existence of natural barriers may limit the need for additional fencing around the park itself. Signage A main sign at the park entrance will identify the park as an off-leash area and post the governing rules and regulations. Approximately 6 smaller signs positioned at the north end of the park and along the east side will notify users of park boundaries. Regulations AH owners and users of the park are subject to the Ontario Dog Owner's Liability Act, and in addition, it is recommended that the foHowing governing rules and regulations be posted: 1. Use at your own risk 2. Pick up after your dog Page 4 of7 PICKERING OFF-LEASH DOG PARK PROPOSAL ~ APRIL 2007 3. All dogs are the responsibility of their owners and must be under their control 4. 5. Garbage and Refuse A dispenser containing environmentally friendly (decomposing) plastic bags should be made available at the park entrance, similar to the one found at the entrance to Beachfront Park. Two garbage receptacles should be placed at the park entrance, one for disposing the fecal matter picked up in the decomposing-plastic bags and the other general waste. Initial Clean Up There is some debris and garbage which will have to be removed before the park can be used by pets and their owners. The working group will recruit volunteers to clean up the area and will request that the City provide transportation and disposal of the garbage collected. Maintaining the Park Garbage removal: per current municipal guidelines. Snow removal: as needed in the parking lot area and entrance to ensure year-round access. Biodegradable Bags: stocked on weekly basis (similar to Beachfront Park) Next Steps 1. Validate assumptions and outline above 2. Obtain any estimates which may be needed for establishing or maintaining the park 3. Identify sources offunding 4. Identify volunteer and city undertakings 5. Present to Council for approval 6. Establish the agreement with the TRCA, outlining the terms of use for the park 7. Proceed with any modifications or set up 8. Open the park Pickering Dog Park Working Group members: Nicole Scarlett, 905-421-0381 Mr. & Mrs. Gordon StokeH, 905-839-7084 Ms. Lisa Martin Page 5 of7 PICKERING OFF-LEASH DOG PARK PROPOSAL APRIL 2007 Appendix A: Off Leash Socialization By Mary Bird BSc from U ofT 155 Animal Behaviour Specialist Grade 3 Keeper, Toronto Zoo THE ROLE OF LEASH FREE PARKS IN SOCIALIZATION OF THE DOMESTIC DOG Leash free parks in municipal areas have been around for many years and have proven to be excellent venues for canine exercise and interaction. Just as it is important for humans to interact with members of their own species (in order avoid becoming delinquent), dogs must interact with their own species to become "normal" canines. Although on-leash exercise can socialize dogs to many things, off leash free play teaches dogs canine etiquette, most importantly, how to engage in a social encounter with a new dog without fear or aggression. Here, dogs can learn how to read canine body language from all manner of breeds. Different breeds look different and all dogs should be "educated" to recognize that they are indeed dogs, even though they look different, and that they are not prey or predator. For example, some dogs have bobtails and can't wag their tail to communicate ambivalence. All dogs should have exposure to this to learn that a wagging bum from a Rottweiler is as friendly a gesture as a wagging tail is from a Golden Retriever. Dog parks allow for this kind of free socialization. Socialization, as defined by evolutionary biologist and eminent dog trainer Jean Donaldson, is "a term which means habituation or getting used to environmental elements through exposure". In nature, wild dogs (and other animals) have periods of development where they are keenly sensitive and receptive to novel stimuli (new stuff). They learn what is scary (fight or flight) and what is harmless (tolerated or ignored). For dogs, this period is between 6 weeks and 4 months (depending on the breed). After this, dogs become increasingly suspicious of new situations. The more variety of things they are exposed to as youngsters (especially if the situation is rewarding), the more well adjusted they are as adults. But, socialization must continue throughout the dog's life or they will become fearful of things they are not exposed to regularly. Seeing a mixed group of dogs in a leash free situation continues the socialization process. The benefits of the off leash experience make for safer dogs in the community with reduced aggression. Not only does a well adjusted community of dogs know how to interact without ripping each other apart, the older dogs can teach proper canine manners to adolescent dogs and provide an invaluable socialization opportunity for puppies without injuring them. Dogs that are socialized throughout their lives are mentally and physically better adjusted than their deprived counterparts. They have better bite inhibition so they don't injure other dogs and are less fearful of dogs they don't know. This reduces full blown aggression. Many dogs are more aggressive on leash because they are fearful and have no flight distance. Ifany aggression does occur, it is quickly resolved with posturing and no real damage occurs. There is one caveat though. Dogs in free contact need space. Aggression increases when animals are confined and can't escape to their comfort zone. Not all dogs are going to like each other, just like all people don't like each other. The best scenario for a leash free park is where dogs can go on a walk, meet and greet. If they wish to play, so be it, but if they wish to move on, there should be provisions built in for this option. Park experiences should be positive for all participants. Page 6 of7 PICKERING OFF-LEASH DOG PARK PROPOSAL 15& APRIL 2007 Appendix B: Alternatives Considered Other options were investigated by the working group as follows: Do nothing. . No increased legal risk to Exacerbates all issues over time, including: the municipality. . Increasing encounters between dog and non-dog owners . Increasing risk of dogs-at-Iarge . Increasing fecal matter in public parks and green spaces . Increasing complaints . Increasing enforcement costs of current bylaws. Establish off-leash . Opportunity to establish . Close proximity to general purpose parks and non- sections in current many off-leash areas which dog community members parks/community could provide for greater . Limited park space means setting up off-leash spaces accessibility sections will reduce the area left for other uses . Provides an off-leash area and/or, for exercise and . Limits the potential size of the off-leash areas socialization Establish off-leash . Least-cost alternative . Diff1cult to enforce hours or seasons in . Constrains off-leash walking to certain hours current parks/ which may not be available to all pet-owners community spaces Use other, non- . A vailable green space is . There is a cost to using any land through Hydro municipally mostly controlled by other One, which is owned by the Provincial controlled green organizations such as TRCA Government and managed by the corporation spaces or parks or Hydro. including which may include: . Both organizations are . A small licensing fee willing to discuss terms of use for a dog park. . The municipality paying ~ of the annual property taxes on the designated property. Page 7 of7