Agenda Index City of Vancouver

ADMINISTRATIVE REPORT

TO:

Vancouver City Council

FROM:

Manager of Animal Control

SUBJECT:

Staffing Requirements for Animal Control Services

 

RECOMMENDATIONS

GENERAL MANAGER'S COMMENTS

CITY MANAGER'S COMMENTS

COUNCIL POLICY

Council has adopted the Animal Control By-law No. 7528 which provides for licensing, impounding and controlling the City's dog population.

PURPOSE AND SUMMARY

This report discusses the increased demand for dog control in the City, existing staff levels at Animal Control Services and proposed staff increases required to adequately address city-wide demand for dog-related services. The main reasons for the increased demand are:

Sources of revenue for the new positions are also proposed. The report serves as a companion to the Animal Control Services Information Report which describes the City's Animal Control operation and provides an update on recent service improvements and initiatives.

BACKGROUND

1. Canine Trends in the Greater Vancouver Region:

In October, 1999, the Greater Vancouver Regional District (GVRD) undertook an extensive survey of dog ownership patterns and trends throughout the GVRD.

The findings of the survey indicate that the number of dog owners is increasing throughout the GVRD. The number of parks and open spaces available has not kept pace with the expanding population. Management and enforcement of the Animal Control by-law are key factors for control. The GVRD report recognizes a general lack of respect for municipal dog by-laws. Public perception is that there are more dogs, more owners violating the rules and less enforcement with fewer penalties. Inevitably, this results in the occurrence of more dog-related incidents, ranging from minor disturbances such as barking, uncontrolled dogs and fecal contamination, to increase in dog bites and attacks. The findings of GVRD survey clearly demonstrate the need for increased enforcement of by-laws throughout the region.

2. Canine Trends in the City of Vancouver:

The population of the City of Vancouver has increased by 30% since 1980. Dog ownership has outpaced the increase in population growth. In 1997, a Vancouver Park Board survey conducted by Mark Trend Research indicated that over 42% of households in the City of Vancouver have one or more dogs. Animal Control estimates that there are currently 60,000 to 85,000 dogs in Vancouver. These numbers are expected to continue to grow with theCity's expanding population. However, only 15,000 dogs are actually licensed. In accordance with the GVRD findings, the number of dog complaints investigated by Animal Control Services from 1998 to 1999 has increased by 23%. An analysis of the complaints shows the following increases:

3. Areas of Increasing Service Responsibility:

Animal Control is presently required to perform a greater number of tasks with its resources and there is a greater demand for service.

As previously indicated, it is estimated that there are 60,000 to 85,000 dogs in Vancouver. With only 15,000 dogs licensed, too much time is spent picking up dogs with no identification resulting in an increase in the number of dogs handled. In high density areas, people are using public space to exercise their dogs. More people are retaining dogs for protection and the number of serious dog-related incidents is increasing.

Furthermore, the Vancouver Police department requires the services of Animal Control on a continual basis. Many incidents involving criminal activity include both dogs and people. Animal Control is required to take into custody any animals that are affected. In 1999, Animal Control Officers attended over 150 police incidents in which dogs were involved and taken into custody. In addition, court appearances account for a significant amount of lost time for enforcement. An estimate of annual time spent in court appearances related to by-law infractions and Section 8 Order of Destruction applications is 170 hours per year.

As dog ownership has increased in the City of Vancouver, there has been increased pressure on the use of parks, seawall and beaches. In response to the increasing public demand for opportunities to exercise their dogs, the Vancouver Park Board established a pilot off-leash park program for dogs in 1997. Four city parks were designated for limited off-leash dog use. Dog owners were permitted to exercise their dogs in four designated parks between 6am to 10am and 6pm to 10pm, seven days a week. The intent of the programwas to reduce dog-related concerns in parks by keeping off-leash dogs in controlled areas. A 1998 review of the off-leash dog park pilot prompted an expansion of the program to a total of twenty-nine (29) city parks. A primary concern was that off-leash parks were located a safe distance from playgrounds, thereby ensuring the safety and security of children also using the public space. Wildlife and environmental issues were also major considerations.

The Park Board has produced information brochures and signage which are both currently being refined and expanded. The Park Board's public education program is described in the report found in Appendix A. A Park Ranger program has been implemented by the Park Board for the summer of 2000. Eight (8) Park Rangers have been hired to patrol parks and provide information and assistance to the public related to park by-laws. A portion of their work will relate to dog management issues in the parks. Park Rangers do not have by-law enforcement powers but they will be able to identify problem areas more quickly. This will assist in more efficient handling of dog-related problems by Animal Control staff.

The off-leash program is fully supported by Animal Control Services as it fits well into the community model developed for the municipal operation. However, it is essential that municipal parks are regularly patrolled to minimize dog-related concerns. Staffing levels in Animal Control Services discussed in the following sections have substantially reduced the required park patrols. If general adherence to dog by-laws is to be expected, then there must be consequences for non-compliance. With increased resources proposed and cooperation between Park Board and Animal Control Services, enforcement of by-law infractions in city parks will be increased. Ticket issuance will also result in additional revenue generation.

DISCUSSION

1. Staffing Issues At Animal Control Services:

In 1982, the City of Vancouver had fifteen (15) staff including a supervisor, a clerk and thirteen (13) Animal Control Officers (ACO's), assigned to handle all city-wide dog-related incidents. Six (6) of these officers were specifically assigned to patrol municipal parks and beaches. In 1983, the number of Animal Control Officers was reduced from thirteen (13) to nine (9) due to budget cutbacks. This resulted in a decrease in the number of park patrols andreduced enforcement of the Animal Control By-law.

Current Staffing

A full description of the Animal Control Services' present staffing levels are detailed in Appendix B.

Additional Staffing Requirements

City-wide park patrols, license renewal follow-up and handling dog-related complaints have all suffered as a result of the heavy workload that is handled on a daily basis by Animal Control. To adequately address the increasing workloads and provide regular patrols and canvassing, staff recommend that the following positions be created within Animal Control Services:

The two (2) full-time Animal Control Officers will be added to the complement of staff and will assist in conducting regular patrols, investigating dog-related complaints, picking up stray dogs, preparing court applications, etc. They will also assist by following up on canvassers to ensure compliance with licensing regulations. These new positions will allow time for patrolling and ticketing to resume with shifts designed to target peak early morning, early evening and weekend times.

The existing Kennel/Clerk position will become a permanent position so that maintenance of the Pound facility and upkeep of the dogs can continue. This is more cost-effective than having the ACO's undertake these tasks.

The temporary staff budget will then be freed up to conduct door-to-door canvassing in search of unlicensed dogs. This has proven to be very effective in deriving additional revenue. The temporary staff will conduct a full city-wide canvas which has not been done since 1990. It is more cost-efficient for temporary canvassers to sell licenses than using ACO's. Temporary staff will also assist with other daily tasks undertaken by Animal Control.

Funding Proposals

Dog ownership will continue to increase in the future with the City's expanding population. A staff review indicates that additional full-time permanent employees are needed to meet Animal Control's current service requirements.

Staff recommend that the existing vacant Pound Supervisor position be eliminated at an annual saving of $58,300 (including benefits) and that two (2) full-time permanent Animal Control Officers and one full-time permanent Kennel/Clerk position be created at a cost of $120,000. The net budget increase of this proposal is $61,700 per year.

Staff believe an increase in licensing revenue of $50,000 will be generated. This is based on an increase of approximately 1,470 dog licenses, at $34.00 per license, made possible by an expanded canvassing program. There is also an estimated increase in revenue of $10,000 in services such as adoption, boarding, cremation and impounding due to increased staffing levels. The balance of the increased revenue will be generated through expanded ticketing.

Additional staff writing tickets are expected to generate $35,000. This is a conservative estimate based on the past experience in 1998. These funds are credited to general revenue and are not included in the revenue for Animal Control Services.

CONCLUSION

There has been a significant increase in demand for Animal Control Services due to the increase in the number of people and dogs in the City of Vancouver.

The staff review suggests that the increased volume and complexity of city-wide dog-related issues supports the need for three (3) additional full-time permanent Animal Control Services employees. Through this initiative, additional temporary staff will also be made available for generating additional revenue and animal management duties.

Animal Control Services is becoming recognized as a valued contributor to the community with programs supporting responsible dog ownership, licensing and animal welfare. Additional support is required for effective service delivery.

- - - - -

APPENDIX A

TO: Board Members - Parks and Recreation
FROM: General Manager - Parks and Recreation
SUBJECT: Dogs Off-Leash Program

RECOMMENDATION

BACKGROUND

In response to the growing demand for dog off-leash areas in l997, the Park Board approved a pilot project that would allow dogs off-leash at Nelson, Balaclava, Hillcrest and Killarney Parks during morning and evening hours.

After reviewing the pilot on December 7, 1998, the Park Board added twenty-five (25) new sites to its list of dog off-leash locations. The sites selected by the Board allow most Vancouver residents access to a dog off-leash area within a 4-6 block walking distance of their home and in locations where impact on wildlife and sport group activities are minimal. The pilot projects also identified the problems created by dogs digging holes on sports fields and with owners not picking up after their dog, and as a result the Board withdrew off-leash privileges at Hillcrest and Balaclava Parks. After hearing from the public on April 26, 1999, the Board subsequently approved an off-leash site south of Nat Bailey Stadium as compensation for the loss of Hillcrest Park; approved a one-year off-leash trail for Balaclava Park; and changed the off-leash approval from Burrardview Park to Dusty Greenwell Park.

Appendix A is the April 26/99 list of approved off-leash locations.

DISCUSSION

The long-term goal of the Park Board and City is to work with the GVRD and stakeholders to find the best ways of managing the demand for dog off-leash locations. The Park Board and City arepresently working with other jurisdictions to develop dog management strategies that are consistent within the lower Mainland region.

Over the past year staff have worked with the City Pound to inform the public on the rules related to the off-leash program. Signage, brochures, and one-on-one discussions with individuals with questions or concerns have helped to make the program a success. The primary role of the Park Board will be education while the City Pound will focus on enforcement.

Involving the public in ongoing dog management issues is critical. Over the next year staff will work with Community Association Boards and develop recommendations for how the dog off-leash program should evolve within their catchment area.

Park Board and City staff have resolved the confusion related to by-law enforcement. The City has agreed to pursue enforcement on park land given the existing by-law language. The Animal Control By-Law amendment is presently being drafted to reflect the Dogs Off-Leash program. As part of this process, the Park By-law will also be changed to ensure maximum effectiveness. We expect that a report recommending these changes will be available in June.

Now that the signage and educational components of the program are in place, increased enforcement is recommended to deal with problem locations during the peak season. As the weather warms and the activities within parks increase so the number of complaints related to off-leash dogs. Over the last few years it appears that more and more people are allowing their dogs off leash in areas requiring that dogs be on leash. To respect park users who do not want to deal with off-leash dogs increased enforcement will help to ensure the Park Board satisfies the needs of all park users.

While the twenty-nine (29) approved off-leash locations are generally working well, the Vanier and Balaclava sites need modification.

Given the number of complaints with the off-leash location at Vanier Park, an alternate location within that Park is being recommended. During the past year we have received numerous phone calls and letters requesting that the off-leash area at Vanier Park be moved because of dogs interfering with people using the beach area for sunbathing and swimming. After discussing alternate sites with members of the general public, it is generally agreed that the site north of the boat launch is the best location for off-leash dogs in Vanier Park. (See Appendix B - a map showing the existing location and the proposed new location.) By moving the dog off-leash location to a non-swimming area, most park users are expected to be satisfied.

Balaclava Park was approved as an off-leash location in April, 1999 for a one-year trial. The reason for the trial was to allow people to demonstrate that dog droppings and holes dug by dogs would not be a problem for the sports groups. While the group wanting off-leash privileges for this park have worked hard at resolving the problems related to off-leash dogs, it appears there may be a few people who are ruining it for the majority. After reviewing the trial period, it is recommended that Balaclava Park receive ongoing approval as an off-leash location from 7:00 a.m. to 10:00 a.m. and 5:00 p.m. -10:00 p.m. on the condition that no dogs be permitted on designated sports fields during the months of April, May and June. Signage to inform the public of the seasonal nature of this off-leash privilegewould be installed. An evaluation of this approach will help the users of Balaclava Park determine the recommendation that is best suited for this park.

SUMMARY

Encouraging community involvement, directing enforcement at problem areas and conducting annual reviews of the Dog Off-Leash Program will help to ensure Vancouver parks are clean, safe and enjoyed by all park users.

Prepared by:

Queen Elizabeth District
Board of Parks & Recreation
Vancouver, B.C.

BM/rml

APPENDIX B

Animal Control Services
Staffing Levels

Current Staffing Level

Manager

1 Assistant Supervisor (ACO)

8 Permanent Animal Control Officers (ACO's)

1 Office Clerk

1 Temporary ACO

1 Temporary Clerk/Kennel Staff

1 Enforcement Officer - Summer Only

1 ACO - Summer Only

3 Canvassers - Summer Only

1 Pound Supervisor (Vacant)

* * * * *

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