1 Report to the Raleigh Parks, Recreation and Greenway Advisory Board: Off-leash Dog Areas Report by Ad Hoc Committee: Jan Kirschbaum, Wayne Marshall, Gail Till, Bill Hornsby (P.U.P) January 20, 2005 Background Designated areas within public parks for people to play and exercise with their unleashed dogs have become popular features nationwide. These unleashed dog areas can have multiple benefits to a city park program, and to the area s citizens. The dog park provides an opportunity for people of all ages to socialize with each other while their dogs exercise. These areas encourage persons who otherwise might not participate in park programs to use parks regularly. The addition of a dog area to a park can bring in vitality and positive activity at a low cost. 1 People who do not own dogs may be attracted to the area to watch the dogs frolic. Unlike many programmed park areas, where use is mostly confined to after school hours, visitors can be expected throughout each day. The areas can also serve to help prevent illegal off leash use, and to help address the problem of dogs running at large in areas where it is inappropriate and conflicts with legitimate uses. Off-leash dog areas have been evolving as a program and facility offering in Raleigh since a dog area was included in the Buffaloe Road Athletic Park Master Plan, adopted in November 2000. In January 2001 City Council referred a citizen request to provide an off-leash dog area in Lake Johnson Metro Park to City Administration. In the summer of 2001 the Parks, Recreation and Greenway Advisory Board (PRGAB) was charged by City Council to consider and report on the possibility of an off-leash dog park (area) at Millbrook Exchange Park. The Millbrook Master Plan was amended, the project approved and funded, and the formal dedication was held in November 2003. The Millbrook Dog Park has enjoyed great success, and demonstrates the growing popularity of this viable, cost effective and appropriate recreation facility. Not only is there a regular local clientele, but inquiries and support from out-of-state via the Friends of Millbrook Dog Park web site (http://www.millbrook-dog-park.com/) show this is a desirable amenity when choosing to relocate here. In developing the program for the Millbrook Dog Park considerable input was utilized, including the following: 1 Low cost is a relative term; see end of report Notes for further discussion.
2 Research via Internet and personal contact with pet owners, veterinarians, animal control personnel, the American Kennel Club, National Recreation and Park Association, and management agencies nationwide with experience in off-leash dog areas; Involvement by local interested citizens and People for Unleashed Parks (PUP) in specific park master plans, detailed discussions with City staff, public meetings and presentations with the Parks, Recreation and Greenway Advisory Board (PRGAB) and the recent update of the Parks and Recreation section of the Raleigh Comprehensive Plan (the Park Plan). After the dedication of Millbrook Exchange Dog Park Mayor Charles Meeker instructed the PRGAB to consider whether the City should provide additional off-leash dog areas and, if so, where they should be located. Because this is a new recreation attribute this report is offered for information and as a guide for planning and designating future offleash areas in the City of Raleigh park system. Program Statement Based on the City of Raleigh having researched, planned, implemented and operated a successful off-leash dog area in Millbrook Exchange Community Park, the Parks, Recreation and Greenway Advisory Board 2 recognizes that these areas are beneficial to the human and canine population of the City and an excellent and efficient use of city resources. Experience gained in the establishment and first-year operation of Millbrook Exchange Dog Park has provided insight for planning future off-leash areas. Guiding principles for the expansion of the program should include the following: Raleigh should develop a system of multiple off-leash areas with consideration to appropriate geographic distribution. Well-planned distribution will allow citizens to regularly use facilities, which are located close to their homes. Easy access to a dog area should help prevent prohibited off leash use in areas such as ball fields. Too few dog areas can however result in overcrowding of dogs and people, and eventual site degradation. In order to achieve good distribution, dog areas will need to be considered for established parks, city managed open space, as well as planned into new parks. In the absence of an adopted Master Plan for an existing and developed 3 park the master plan amendment process should be followed. Suggestions to add an offleash area to an existing park should take into account the physical properties of the site, compatibility with current and expected uses, and the overall character of the individual park. The requirements recommended below are meant to be applied both to dog areas added to established parks, and planned and developed as part of master plans for new parks. 2 Research by staff and PUP; this report by Committee of the PRGAB. 3 As opposed to an unplanned or undeveloped park
3 Site Selection Requirements To be considered appropriate for an off-leash dog area, the site should meet the following minimum site requirements: Appropriate topography, in order to avoid the necessity for extensive grading, major supplemental drainage, erosion control, surface maintenance or storm water improvements. Capable of being fenced, with an adequate buffer from adjacent users, both within the Park and adjoining properties. Access for maintenance vehicles to the site and into the site. Parking for 4 vehicles 4 per half-acre should be considered, including ADAcompliant access. A planning guideline of approximately 2 acres. Size should suit site requirements. There should be an appropriate separation from a children s play area. Basic Design Elements To be developed as an off-leash dog area, the following minimum site improvements are necessary: Fully fenced, five (5) feet in height, with at least a double-gate pedestrian entrance and a maintenance gate; fencing less than four (4) feet high 5 can be considered if site conditions (vegetation, topography, for instance) can be determined to provide effective control for ingress and egress of the area. Fully functional waste collection and removal system; Rules, regulations, emergency and educational information plainly posted; Low maintenance surface material; turf grass will not be considered without adequate soils, drainage, site preparation and irrigation prior to installation of the material. Shade, either natural or artificial, 6 will provide safety and comfort. Supplemental Design Considerations To be developed as an off-leash dog area, the following additional site improvements can be considered: Water for dogs, either directly (preferred 7 ) or indirectly by pet owners. If water will be brought to the site, adequate disposal of containers (including recycling) should be provided. Tables, benches, and access to restrooms Small dog area, separate from the main off-leash area for introducing new visitors and isolating smaller, older or recuperating dogs. 4 Zoning code most applicable requires 3.5 spaces/acre for camps and open space activities. 5 See end of report Notes for further discussion of fencing. 6 Artificial shade structure will increase capital and operating costs. 7 Water is recommended by staff for sanitation (cleaning trash cans, etc.) and drinking as a basic element
4 Lighting to extend the evening hours, particularly in winter. The lighting should be sufficient to provide an adequate sense of security and help with waste collection. Optional design features may be considered on a site-by-site basis to serve as visitor attractions and provide a sense of identity, such as agility course equipment or opportunities for dogs to swim. 8 Experience has shown that active volunteer citizen involvement in establishing dog areas and self-policing visitor behavior ( peer pressure ) creates the most successful dog areas. Financial and/or volunteer participation ( sweat equity ) in both construction and maintenance, particularly in daily cleaning of dog facilities should be encouraged to help make the programs successful. The Millbrook facility is partially supported by a Memorandum of Agreement between the City and PUP. This model should be considered with other recommended off-leash areas so that the areas of responsibility are clear. Recommendations While the geographic distribution may suggest that off-leash areas be dispersed across the City of Raleigh, ultimately the priority for provision of these areas should follow a pattern of citizen interest. The areas to be developed can be partially determined by citizen contact through community centers, citizen advisory councils, elected officials and city administration, facility development schedules and funding, community support groups, and the level of compliance with leash laws in an area. In already intensely developed areas of the city where opportunities are limited, sites may have to be determined by available park space. After approval of this Report by the Department of Parks and Recreation, the PRGAB and acceptance by City Council, a program of off-leash areas, with specific locations and their priorities, should be provided for public comment. As with any public process, citizens should have the opportunity to verbally comment at a public meeting or comment in writing about specific sites, and have opportunities for their concerns to be addressed. The Comprehensive plan for Raleigh Parks suggested a size range of 4-8 acres for a Pet Exercise Area. Millbrook Dog Park is a total 2 acres, and includes a smaller, separate area for less active dogs or new visitors. Experience at Millbrook suggests that this size works well for the Raleigh City Park system, and therefore this program statement for further dog area development continues the same model. As the program develops, and the park system expands, there may be opportunities to include larger areas that allow for further programming, such as dog shows, field trials, or agility courses. Unfenced areas may be possible in the future. 9 Smaller areas than recommended in this report may also be useful in the future, if they are provided in sufficient numbers and distribution to prevent a facility from being overcrowded. 8 Subject to review and approval of appropriate agencies for buffers, water quality and shoreline conditions. 9 See end of report Notes for further discussion of fencing.
5 The City of Raleigh, located in the center of rapidly urbanizing Wake County, is in a prime location to offer this program for its citizens. Anecdotal experience at Millbrook Dog Park has proved that users come from all over Wake County and beyond. For this reason, the City should encourage and assist other units of government at the municipal and county level in their facilitation efforts to provide additional off-leash areas. Opportunities to partner with private or non-profit entities should also be considered. Adequate funding 10 should be available prior to undertaking additional development of off-leash dog areas. Community participation, partnerships, and other forms of support are desirable within City policies but should reflect a long-term commitment. Operation and areas of responsibility should follow the Millbrook Memorandum of Agreement model, attached to this report as an Appendix. This includes the methods, means and materials necessary for the effective collection of waste to insure that the facility is clean and free of health, safety and aesthetic concerns. Notes: Low cost is used as a relative term as compared to some traditional park attributes (buildings, courts and fields). While a flat-land plan for a 2 acre dog area in an existing park may cost approximately $20,000, the addition of a surface material, water, shade structure and lights could increase the cost to $31,000 79,000. Parking construction may be an additional cost, not included here. Fencing is expected to be a requirement for any designated off-leash dog area per the current City ordinances. Any deviation would be a City Council decision. Height of the fence was discussed at length prior to the Millbrook project. Staff recommends maintaining a five foot height recommendation. Any deviation would be a sitespecific consideration subject to further review. Process should be discussed by the PRGAB, and would include review by staff and Board of specific site recommendations, public input, and final recommendations for inclusion into the annual CIP. 10 See end of report Notes for discussion of cost; Funding will be a component of the annual Capital Improvement Program process.