Theme 7 - Dogs in Parks

Theme 7 - Dogs in Parks The Dog Theme of the Boise City Parks & Recreation Comprehensive Plan Update has been developed to address green parks. Foothills trails objectives regarding dog use will be addressed through the Foothills, Open Space and Trails Theme of this document. Background The request for dog off-leash area(s) (DOLAs) was first brought before the Board of Parks & Recreation Commissioners in December 1997 when a proposal was made to create a DOLA in the area east of the tennis courts in Camel s Back Park and north to the pond. The request was denied, but the Board of Parks & Recreation Commissioners encouraged staff to work with Ada County Parks to develop a DOLA at a county site on Highway 55 and to evaluate other possible undeveloped park sites where dogs could be off-leash. In 1999, the Boise Parks & Recreation Department began researching DOLAs and staff and a commission member traveled to Seattle, Washington to visit Seattle s off-leash sites. Subsequently, BPR held a public meeting to create a task force and invited Rick Johnson from the Marin County Humane Society to speak to the group regarding offleash areas. Johnson, who helped develop dog off-leash areas around the country shared valuable information with the public and helped give an understanding of the process and time needed to successfully develop off-leash areas. The department created a temporary off-leash area in the East Military Reserve Flood Basin in 1999. In subsequent years, a dog off-leash task force was created and met regularly. They conducted two public meetings regarding the task force proposed sites, conducted surveys and presented the proposal to the Commission. Overall comments were positive for both the Military Reserve and Bowler site. Final recommendation was made for the minimum development (as defined below) of three off-leash sites: Military Reserve Flood Basin; Bowler; and Murgoitio. To date, none of the recommended sites have been fully developed. Based on input through the master planning process, an off-leash area was included in the design of Morris Hill Park. The park, developed in 2007, includes an off-leash area which meets the approved 2001 minimum requirements with the exception of it being less than the recommended 2 acres. The city has several locations in which dogs are restricted seasonally or completely based on park use and natural area values. In addition, Boise Parks & Recreation Department has developed training and agility sites which can be scheduled for off-leash use. Education & Enforcement Education rather than enforcement was supported by the Dog Off-Leash Area Task Force and recommended in their 2001 Report. BPR developed several marketing campaigns which have run over the years: 1 of 10

Movie Theater Advertisements 2-3 Television/Radio Ads Poster Dog o Contest and Selection Publicity o Events (Jeb the poster dog making appearances) o Posters o TV/Radio Spots Various Radio and Newspaper Campaigns Signage o Consolidated Signs o Stencils on the Boise River Greenbelt o Mutt Mitt Dispensers and Signs o Rules & Regulations In 2008, 2 FTE were hired through the Idaho Humane Society and funded by BPR to enforce off-leash activities in the foothills and green space areas. Statistics regarding citations and warnings from the past year are available upon request. Current Issues General comments and suggestions regarding dogs off-leash and dog off-leash use continue to come into the department. The input varied vastly from no leash requirements in parks, to no dogs in parks. Many residents continued to suggest the development of additional dog off-leash areas. Also, comments were received suggesting that certain hours be set aside for dogs to be off-leash. In 2009 the neighbors of Winstead Park presented a proposal to the Commission requesting off-leash use of the park during specific morning and evening hours. The proposal was presented in March 2009 to the Commission who requested that a preliminarily list of park sites be developed by staff for potential DOLAs. These recommendations were presented to the Parks, Trails and Open Space Sub-Committee in May 2009. The Sub-Committee suggested no seasonal off-leash locations due to confusion to park users, staff and for enforcement. In addition, the Sub-Committee asked staff to review and provide further information on such sites while considering the following criteria. Evaluation Criteria Existing uses o Scheduled activities o Drop-in use Site access Parking Site layout, including o Opportunities for division of use based on natural barriers such as berms, trees, fencing, etc. o Placement of off-leash facility as to minimize impact to adjacent neighbors (noise, smell, etc.) Maintenance 2 of 10

Geographic diversity Financial impact Limited impact to wildlife/natural areas The Sub-Committee also asked that the Minimum Site Requirements approved in 2001 by the Board of Park & Recreation Commissioners be considered when reviewing potential off-leash opportunities. These minimum requirements are listed below: Minimum Site Requirements Undeveloped Land One off-leash area in each quadrant of town. Two acres Fencing (preferred: Six (6) foot fence, rounded corners, separate puppy/small dog area) Shade Restrooms Rules and Regulation Signage Site Access (parking, walking paths, roadways, etc.) Parking (including ADA) Mutt Mitt Dispensers Seating (benches/picnic tables, etc.) Garbage receptacles The Commission took public comments based on Parks, Trails and Open Space Sub- Committee and staff recommendations. After public comment the Commission recommended the following: Develop master plans for Sterling and Meikle undeveloped properties to include a dog off-leash area. Public input will be gathered per the standard master plan process for the Sterling and Meikle sites which will include public and neighborhood meetings. If the neighborhood and Commission support a dog off-leash area as a component of the park master plan then it is recommended to permit off-leash use (in full or in part) at the Sterling and Meikle sites until the park is developed. Staff will review potential sites for dog off-leash use through the comprehensive planning process. This will include surveys, on site visits, user group and neighborhood input, etc. It will also include reviewing best practices, rules and regulations, design standards, etc. from around the country. Staff will explore opportunities for public/private partnerships for development of dog off-leash areas. The Commission also provided comment about how to fund off-leash areas, off-leash hour implementation costs and other off-leash uses. The public was asked to comment or make suggestions for funding. Several people indicated that as tax payers they would like this amenity to be provided to their user group free of charge. The Commission indicated that many groups, such as soccer, youth football, bocce ball, little league, etc. partnered with the City and paid for development of specific improvements on city owned and operated parks and facilities. The Commission stated that the current economic climate and the impact to the city and department s budget didn t allow for funding of 3 of 10

development of off-leash areas with minimum improvements at this time. They encouraged staff and the public to work together to find funding solutions. Staff researched funding of other community off-leash areas and many developed off-leash areas are funding in all or in part with private vs. tax dollars (see Sources section for related articles and examples). Several funding suggestions are included in the Recommendations section below. In addition, the public raised concern with enforcement of off-leash regulations when limited violations are occurring. The Commission pointed out that based on degradation of resources and concerns received by other park users, a contract was established between Boise Parks & Recreation and the Idaho Humane Society to educate and enforce dog on leash requirements in Boise parks. The Commission discussed the possibility of escalating penalties for repeat offenders and those not following the rules in parks with off-leash facilities (see recommendations below). In response to Commission direction regarding the Sterling and Miekle properties, public input was gathered during the public master planning process on the desirability of a DOLA located within these future parks. Both neighborhoods were supportive of including dog off-leash areas. As a result, DOLAs were incorporated into the master plans which the Commission approved. Dog Waste Dog waste is an ongoing concern among park users with 81% of comprehensive plan survey respondents indicating people not cleaning up after their dogs as a challenge. Dog waste is unsightly, can smell and can create conflict between user groups, particularly in high use areas such as sports complexes. Not only does dog waste hold an ick factor, it can also pose an environmental challenge. In 2002, Boise was cited in a Health and Science article in the USA Today titled Dog Waste Poses Threat to Water. It states, dogs generate disease-causing bacteria that can make people sick. The article also indicates that several studies found that approximately 40% of Americans don t pick up after their dogs and that the Boise River suffers from high bacteria levels that make it unsuitable for swimming... dogs were a leading culprit. Johanna Bell with Boise Public Works recalls the article and said it was based on the Bacteria Source Study which can be found on the Lower Boise Watershed Council s website. The City of Boise continues to do additional sampling at 5 storm water sewer monitoring sites which show no significant increases or decreases observed in the fecal coliform or e coli concentrations. Johanna suggested that if the Department wants to determine progress with dog waste as source pollution that they use the BMP implementation assessment. This process can be found in the Executive Summary of the Tools to Measure Source Control Program Effectiveness by the Water Environment Research Foundation. It is important to recognize that dog waste challenges and on/off-leash are separate issues. 4 of 10

Discussion Survey results show that 60% of respondents owned dogs and 88% of all respondents indicated that dogs should be allowed in parks. When asked specifically Should dogs be allowed in parks off-leash? only 28% of all respondent answered yes. However, when asked if they would be willing to have designated dog on leash and dog off leash times in their neighborhood park 67% responded favorably. This supports the recommendation that off-leash times should be considered for incorporation into the existing park planning and use structure. Respondents indicated that the challenges with dogs are people not cleaning up after their pets (81%) and not controlling their dogs (60%). When asked to pick the five most important park and recreation facilities needed in Boise (out of 22 listed options), respondents ranked DOLAs as fourth at 35%. During public meetings staff heard from neighborhood associations with regards to evaluating and scheduling use within parks (parks that appear over used, under used or used primarily by specific user groups). Winstead neighbors addressed their desire for off-leash hours, while concerns were heard about the potential of using Jullion Park for off-leash use. This information will be helpful to staff and the Commission in evaluating specific site locations for off-leash use. Other general comments received with regard to dog use were split between those that are supportive and those that are not supportive. When looking at the approved minimum requirements for a DOLA facility, the survey supported the minimum requirements of mutt mitt dispensers and open fields for dogs to run. 60% also indicated that water stations should be an included feature. Several questions asked what people use the parks for and what would help increase individual physical activity levels. 35% indicated they currently exercise with dog(s) and 30% stated the ability to exercise with dog(s) would get them more active. This was supported more in the North River Planning Area, which includes the Military Reserve Flood Basin DOLA. However this DOLA only includes the minimum site requirements of Mutt Mitt Dispenser(s), picnic table, rules and regulations sign, porta toilet, shade in the north-east corner and is in excess of two (2) acres in size. When respondents were asked how many times in a given 30-day period during the past year did they visit a DOLA, 15% of North River respondents indicated they had visited 1-5 times, and 10% stated they visited a DOLA 21 or more times. The Military Reserve Flood Basin Dog Off-Leash Area and foothills trails are located in this planning area. 14% of West Bench respondents indicated they made 1-5 visits to DOLAs in a 30-day period. Two sites, Sterling and Meikle properties are located in the West Bench planning area and master plans that include DOLAs have been approved by the Boise Parks & Recreation Commission. Survey respondents were asked how satisfied they are with existing DOLAs. 54% indicate they are very or somewhat satisfied with 14% being dissatisfied. 5 of 10

Recommendations 1. Develop dog off-leash areas with minimum site recommendations (as defined above or determined by the Design and Development Unit based on site specific attributes) at the Miekle site prior to full site development, as supported by the public during master plan public meetings. Funding to develop site with minimum site requirements will come from partnerships and/or donations. 2. Develop dog off-leash areas with minimum site recommendations (as defined above or determined by the Design and Development Unit based on site specific attributes) at the Sterling site prior to full site development, as supported by the public during master plan public meetings. Funding to develop site with minimum site requirements will come from partnerships and/or donations. 3. The Commission shall designate 2-4 pilot sites for off-leash use during designated and posted off-leash hours, including the following: a. Develop length of pilot program, with specific start and end dates of program. b. Sites will be selected by using evaluation criteria as outlined in the Current Issues section. c. Neighborhood Association support through neighborhood association meetings and comments. d. Off-leash hour site improvements shall include bag dispensers for picking up after your dog, trash cans and signage. e. Sites will be evaluated for success based on an approved Evaluation Plan, which will include follow up meetings with neighborhood associations. f. Timeline for assessment of each pilot site will be created prior to determine success of each site. g. Increased enforcement at pilot sites outside designated times. 4. Review existing department lighted facilities, such as Fort Boise Park to determine feasibility for evening off-leash pilot opportunities during winter seasons. Cost of lighting facility will need to be incurred by users. 5. Increase dog licensing fees with the increased fee going to support the development/maintenance of off-leash areas. Boise City Animal Licensing Fees. 6. Develop an option (check box) on the Dog Licensing Renewal Form (in coordination with the City Clerk s Office) to allow dog owners to donate to dog off-leash area development/maintenance. 7. Explore the potential for donation boxes or station with donation envelopes at dog off-leash facilities. 8. Review the fee structure within ordinance to determine ability to have escalating penalties or differentiated costs for repeat offenders. 6 of 10

9. Explore the possibility for the City to increase the level of fines for off-leash use in a park with a designated and approved off-leash area. 10. Explore the possibility for the City to increase the fine for use of a dog off-leash area with an unlicensed dog. 11. Develop and approve consistent rules and regulations at sports complexes to provide for consistency and ease of education and enforcement. 12. Review the existing minimum DOLA requirements and adjust as needed based on public comment, research and the Comprehensive Plan Survey data. Determine if more than one set of requirements is needed based on location and type of off-leash use. 13. Review and evaluate the existing Evaluation Criteria and adjust as needed including Existing Uses: Reservable Sites; Neighborhood Volunteer Support. 14. Develop an educational media campaign about responsible dog ownership, including: a. Importance of picking up after your dog, including limited bacteria/scientific explanation and impact to other users. b. Importance of licensing your dog. c. Leashing your dog. d. Appropriate on/off-leash areas, hours, etc. e. Partner with Boise School District to educate children about responsible dog ownership. 15. Staff should identify potential partners and encourage the community to help fund off-leash areas. 16. Re-evaluate all Boise Parks & Recreation properties with wildlife/natural values with regards to dog use. 17. Work with Boise City Public Works and/or develop partnerships to conduct water testing in parks with changes to off leash use, i.e. Hyatt Hidden Lakes Reserve, Boise River Greenbelt, Reserves, Marianne Williams Park, etc. 18. Design and Development Unit staff will research (other cities, existing BPR offleash use, NRPA standards, etc.) parking standards for parks with dog off-leash areas to see if parking standards need to be adjusted based on this park amenity. 7 of 10

Sources (Copies of full articles and resources available upon request.) Funding Gaddo, Randy. 2005. Rough Rough. Parks&Rec Business (August): 12-15. It is best to organize the committee so that the funds expended are all private funds, and none public, if possible. (based on tax payer money argument that not everyone owns and dog and should fund a special use park). The land and administrative support is what the local government can provide... Krohe, James Jr. 2005. Who let the dogs out? American Planning Association (February): 24-27.... involvement of a committed user group is perhaps the crucial ingredient in the successful dog park. Contributions toward basic construction costs are not uncommon. The Chicago Park Districted asked the South Loop Dog Park Action Co-op to contribute $75,000 of the $150,000 it is expected to cost... consistent with the district s new dog park funding policy.... local dog owners covering all construction (including fencing) and maintenance costs. Leschin-Hoar, Clare. 2006. From Animal Advocates to Allies. Parks & Recreation (January): 57-59.... a new two-acre off-leash park... cost more than $700,000, which was raised through state and federal park bonds and private funds. City officials made it clear that a dog park would be welcomed, but that tax dollars were not to be used, rather, it should be funded privately. 8 of 10

Hours Krohe, James Jr. 2005. Who let the dogs out? American Planning Association (February): 24-27. In smaller neighborhood parks, where permanently fenced dog run would preclude other uses, segregation is achieved by schedules rather than fences. Leschin-Hoar, Clare. 2006. From Animal Advocates to Allies. Parks & Recreation (January): 57-59. Dog Waste In densely populated Cambridge, Mass., user groups and city officials have come up with a shared space solution... off-leash areas during designated hours typically early morning and evening in already existing parks. CH2MHill. 2003. Lower Boise River Coliform Bacteria DNA Testing. Lower Boise River Water Quality Plan. (October). http://www.lowerboisewatershedcouncil.org/05_waterquality/sed-bacteria/dna-fingerprint.html Elzufon, Betsy (Water Environment Research Foundation). 2000. Tools to Measure Source Control Program Effectiveness. Project 98-WSM-2: ES-1 ES-4. Watson, Traci. 2002. Dog waste poses treat to water. USA Today. (June 7). Consistency Nowlin, Terrence. 2006. How to Teach an Old Dog Park New Tricks. Parks & Recreation (July): 52-55. White (Tim White with the Fairfax County park Authority located in the Virginia Suburbs of Washington, D.C.) says that the consistency in the county s dog park operations and rule enforcement due to these support networks make for a more comfortable pet recreation atmosphere. 2008 (June). Salt Lake County Off-Leash Dog Park Master Plan. http://www.recreation.slco.org/planning/pdfdocs/slco_dog_park_master.pdf A number of stakeholder and public comments expressed concern with the uniformity of standards for off-leash dog parks from park to park, and with a perceived lack of consistency in compliance with and enforcement of the standards. It is recommended that SL County adopt standards of behavior that apply to all off-leash dog park facilities in the County. Uniform standards support higher levels of compliance because dog park 9 of 10

users know what is expected of them and their dogs wherever they go to exercise and recreation. Uniform standards also support better enforcement, because all enforcement officers and other personnel know what the standards are for all off-leash facilities. General Information Harnick, Peter; Bridges, Cerise. 2005. Creating dog parks - without rancor. The Christian Science Monitor (June 22): http://www.csmonitor.com/2005/0622/p09s01- coop.html 2008 (June). Salt Lake County Off-Leash Dog Park Master Plan. http://www.recreation.slco.org/planning/pdfdocs/slco_dog_park_master.pdf 10 of 10