Presentation and Vibrancy - Reports

3.

Ordinary Meeting - 20 July 2016

PRESENTATION AND VIBRANCY

3.1

DOMESTIC ANIMAL MANAGEMENT PLAN 2016 - 2021

Document Information
Author

Anthony Schofield, Coordinator Animal Services

Responsible
Director

Prue Mansfield, Director Planning and Development

Summary/Purpose
This report considers the submissions received in response to the draft Domestic Animal
Management Plan and recommends that Council adopts the amended Domestic Animal
Management Plan 2016-2021 (DAMP).
Policy Context
City of Greater Bendigo Council Plan 2013-2017 (2015-2016 Update):
Theme 3.

Presentation & Vibrancy

Strategy:

3.5

People are supported to learn about and make decisions that

enable them to be safe and the healthiest they can be

Action

3.5.2

Adopt the updated Domestic Animal Management Plan (20162021) and implement the first-year actions.

Integrated Transport and Land Use Strategy (ITLUS)

Dog Parks: Harcourt Park, Strathdale is a park to exercise your dog off their leash. The
park has a bitumen walking track, four small dams, a creek complete with steel bridges
and good shade trees. Dog parks open the opportunity for both dogs and their owners to
exercise in a nice park setting.
Domestic Animals Act 1994
The DAMP has been developed in accordance with the legislative requirements of this
Act.
Background Information
At its meeting of 25 November 2015, Council considered the draft DAMP and resolved to
approve the release of the draft plan for the purpose of seeking public comment. The
public comment period closed on Wednesday 23 December, 2015.
The DAMP is a review of the previous Plan adopted by Council in 2013.

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Councils are required to submit a DAMP to the Secretary of the Department of Economic
Development, Jobs, Transport and Resources (DEDJTR) every 4 years. The next
submission of DAMP was due to the Secretary on 3 November 2016. However, as this
date coincides with Council elections, the Secretary has agreed to accept submissions of
new DAMPs by 3 November 2017.
As some Councils, including City of Greater Bendigo have almost completed the next
DAMP, DEDJTR have advised that these plans can still be submitted prior to 3
November 2016 and although required to be reviewed annually, will not need to be
renewed until 3 November 2021.
Report
The draft DAMP was forwarded to all respondents who registered their interest.
Public notice was given in local newspapers seeking comment and submissions on the
draft plan. It was also made available on the internet and social media.
In addition to the issues and initiatives Council has already reviewed, which were
received as part of developing the draft DAMP, a total of 48 submissions have been
received on the draft DAMP. Some of these contain several topics/issues (9). The topic
of cat curfew received the most responses (44). No person asked to be heard.
A petition with 365 signatures was presented to Council requesting the opening of 2 dog
parks in Bendigo. This is addressed further in the body of the report.
The 2 issues that received the most comment are the creation of 2 extra dog parks (off
leash exercise areas) and whether or not to extend the current cat curfew.
A summary of the submissions are included in the following table
Submitters Topic / Issue

Number of
Officer Comments
Responses

Dogs in Public Places (Creation of additional dog parks)

Support for additional dog parks.

Off lead areas with secure fencing for 3

dogs to interact / mingle and associate
with other dogs off-lead.
Off-lead dog park allows a place for 2
owners and dogs to exercise /
exercise promotes health benefits for
both owners and dogs.

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Agree. Addressed in body of

report.

Presentation and Vibrancy - Reports

Submitters Topic / Issue

Ordinary Meeting - 20 July 2016

Number of
Officer Comments
Responses

Support for one or two additional dog 4

parks in one of the following suburbs
to allow people a considerable
distance from the current dog park a
place to exercise their dogs:
Epsom (2)
Huntly (1)
Eaglehawk (2)
Maiden Gully (1).
Education / Compliance
We need a more proactive presence 1
from the Animal Management Team in
the (Harcourt) dog park to help with
education of dog owners as to the
responsibilities as a dog owner,
especially with understanding what is
unacceptable behaviour by both the
owner and/or their dog.

Agree. Officers already carry

out proactive patrols when
existing resources allow.

Desexing of dogs and cats should be 1

expanded. Propose that on return of
an impounded cat/dog to their owner
if not desexed, issue a voucher on the
understanding that this will be done.

Disagree. This would provide

a disincentive for owners to
reclaim their pet, leading to
the pound needing to find new
homes for an increased
number of cats and dogs. The
City
already
provides
discounted
desexing
vouchers for owners to desex
their pets.

Maybe
offer
much
cheaper 1
registration for desexed cats and
dogs. Ideally desexing should be
compulsory for all cats and dogs
unless a registered breeder.

Agree. Owners of desexed

cats and dogs already receive
discounted fees to register
their pet.
Disagree.
Compulsory
desexing would provide a
disincentive for owners to
register their pet.

24/7 cat curfew

Against - reasons

29

A 24 hour cat curfew would be too

difficult to Police / enforce / waste of
Council resources.

Agree. This is addressed

further in the body of the
report.

More cats will be abandoned /

dumped or surrendered for euthanasia
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Submitters Topic / Issue

Ordinary Meeting - 20 July 2016

Number of
Officer Comments
Responses

by owners against the curfew.

There would be less adoptions of cats.
Affordability
issues
/
financial
implications / prohibitive costs of cat
enclosures that would be required if
the curfew was implemented.
It is difficult / impossible to keep cats
within property boundaries.
Issues with adaptation / adjustment of
cats to the curfew. This would impact
on the animals health being confined
24/7.
It is cruel.
Instead of introducing a 24/7 curfew,
more effort should be made by
Council to educate cat owners who do
not supervise their animals.
More thought needs to go into how the
24/7 curfew would impact on the
deprivation of cats freedom / ability to
exercise / welfare / mental wellbeing.
Council should police / monitor
Facebook / social media where cats /
kittens are advertised. Too many are
advertised free to good home. This
contributes to higher numbers of cats
that are at fault for a 24/7 curfew
being considered.
The community will not accept the
24/7 cat curfew proposal and will not
assist with its enforcement.
The curfew will cause a decrease in
cat microchipping and registration.
Disagree with 24/7 curfew, but agree
with night time curfew.
There should be a compulsory /
mandatory requirement for bells on

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Submitters Topic / Issue

Ordinary Meeting - 20 July 2016

Number of
Officer Comments
Responses

cats.
A 24/7 curfew would not allow
effective rodent / vermin capture at
properties and there would be a rise in
vermin / rodent populations.
It is only an initiative so that Council
can raise more revenue.
For - reasons

14

It will reduce cats stalking / hunting /

killing native flora and fauna.

Disagree. This is addressed

further in the body of the
report.

It will reduce overnight instances of

cats fighting / howling / wandering and
setting the neighbourhood dogs in
motion.
Residents are tired of cleaning up of
cat faeces / cat spraying / mating
instances on other properties.
It will provide a reduction in
euthanasia rates because cats will be
required to be contained, wont be
caught in traps / wandering so wont
be impounded and unclaimed.
Cats should be kept on their own
property.
Wandering cats are rife in Bendigo
despite being a City in a Forest with
important
environmental
assets
throughout both rural and urban
areas.
The current curfew does not meet the
needs of the community.
The regulations have a grey zone in
which cats must be confined between
dusk and dawn, but may be allowed
outside
during
daylight
hours,
however they are supposedly not to
trespass on neighbours properties.

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Submitters Topic / Issue

Ordinary Meeting - 20 July 2016

Number of
Officer Comments
Responses

The onus is placed upon neighbours

to monitor, record details of wandering
and trespassing cats, to communicate
with the relevant cat owner before
proceeding with action (which should
be un-necessary) and indeed facing
possible belligerent and aggressive
behaviour from said cat owners.
Yarra Ranges and the Mornington
Shires are to commended for
introducing total cat confinement 24/7.
It should be a priority for the City of
Greater Bendigo.
If the public were informed during the
development of the current DAMP,
that cats are the only domestic animal
that are allowed to roam during the
day, they are often maimed or killed in
road accidents, fight with other cats
and end up ill or diseased, kill other
peoples pets or domestic animals as
well as an enormous threat to wildlife,
urinate on peoples doors, fight and
wail during the night causing dogs to
bark and in any case wake everyone
up, then the support for the current
controls might have been very
different.
No opinion

1
The
Citys
Animal
Management Officers would
be responsible. Would require
further
resources
from
Council if 24/7 curfew was
introduced.

If a 24 hour cat curfew was

introduced, who is responsible for
checking that cats are confined?
Will the neighbours be expected to
report any wandering felines?
Responsible Pet Ownership Program
This should be extended past schools, 1
children and community groups.

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Agree.
Officers
already
distribute information packs
on responsible pet ownership
to all owners registering their
dog for the first time and also
visit popular dog walking
locations
to
hand
out
information packs.

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Ordinary Meeting - 20 July 2016

Number of
Officer Comments
Responses

Submitters Topic / Issue

Restricted Breed Dogs

Penalties for Restricted Breed Dogs 1

should include penalties if they kill or
injure another dog.

Agree. The Domestic Animals

Act has penalties that may
include
a
term
of
imprisonment not exceeding 6
months or a fine not
exceeding up to $18,500.

Euthanasing of dangerous dogs

Query made if person in the role of 1
Manager Parking & Animals Services
has
knowledge,
experience,
judgement
to
declare
a
dog
dangerous / menacing and deem it
necessary for it to be euthanised.
Suggest that a vet or animal
behaviourist should be involved in this
decision making process. Is there an
appeals process before action is
taken?

The Manager Parking &

Animal Services and the
Director
Planning
&
Development have delegated
authority under the Domestic
Animals
Act
to
order
destruction of a dog under
certain
circumstances.
Council
has
statutory
responsibilities
concerning
public safety and a procedure
has been developed to
provide guidance for this
decision making.
Owners can appeal these
decisions through the County
Court or VCAT.

General comments
There are many good features of the 1
plan including:
Encouragement of microchipping;
Encouragement of
paying /
castration;
Eschewing the requirement for
dogs to always be on leash.

Agree.

There are a couple of issues that the 1

plan fails to address satisfactorily:
Compulsory Cat Registration (with
microchipping). It is nigh on
impossible to distinguish between
feral cats and domestic animals,
so effective control programs are
impracticable.
Compulsory
registration would enable effective
feral cat programs.

It is a requirement that all cats

and dogs are registered and
microchips.

Reduced

The Domestic Animals Act

registration

for

rural
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Submitters Topic / Issue

Ordinary Meeting - 20 July 2016

Number of
Officer Comments
Responses

dogs. Most of Councils domestic

animal-related
services
are
focused strongly on urban pets. All
registrants pay for these services
even though they make scant use
of them. Rural dog owners are
paying for many services they
neither use nor need.

allows
for
discounted
registration for working dogs.

Dogs should really be on a lead

when in public. Its a safety issue.

Until such time as there is

sufficient dedicated areas/dog
parks for owners to exercise
their dogs it is not proposed to
introduce a blanket on-leash
requirement.

Allow dogs to be walked on a lead

in parks and other open spaces.
Specifically, Crusoe Reserve park
which is no animals. It should be
dogs on lead. There are no other
available facilities in the Lockwood
South / Bendigo area.

Dogs are prohibited to enter

Crusoe Reserve due to
conflict with Conservation
Principles.
Additional areas to exercise
dogs is addressed in body of
the report.

The Council seems to be going about 1

animal management in a very
responsible way.

Agree

I feel that the 2016-2020 Plan is much 1

improved - it is more constructive,
inclusive
and
provides
advice/information and guidelines.

Noted

There is a need for signage at the 1

current dog park in form of sandwich
boards at entrances with changing
reminders such as picking up after
your dog or what is unacceptable dog
owner behaviour. Council contact
information needs to be displayed
within the park at various locations,
e.g. at the bridge entrances.

Agree - requires
investigation.

Issues that will require a Council decision are discussed below.

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further

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Dog exercise areas (dog parks)

Council may remember being advised at the Councillor Forum presentation of the draft
DAMP on 17 November 2015, that officers had identified 1 site in Kangaroo Flat and 1
site in California Gully to further investigate the establishment of 2 dog parks (off leash
exercise areas). This was positively received by Councillors at the Forum.
The current use of Harcourt Park, Crook Street, as an off leash dog exercise area has
proven to be very popular with dog owners and minimum disruption to local residents
reported. Harcourt Park is within the Eppalock Ward (approximately 6,000 registered
dogs).
The 2 sites identified for Councils consideration are Allingham Street, Kangaroo Flat
(Lockwood Ward, approximately 7,000 dogs registered) and Turner Street, California
Gully (Whipstick Ward approximately 7,000 dogs registered). Maps and further
information provided below.
The sites listed below have been identified through internal discussions with City staff
and suggestions submitted by community members. All sites have been considered in
context of the recently scoped Greater Bendigo Public Space Plan, where the community
will be given the opportunity to express their views on a broad range of open space use.
One or both of the suggested sites could be used as a pilot project to inform the Public
Space Plan.
Both sites would need to be fenced and have close proximity to access water.

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Lockwood Ward - Allingham Street, Kangaroo Flat

This site has been chosen due to:

Land is already used by local residents as parkland and to walk their dogs.
Adequate parking.
Low impact on residents.

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Established shade trees. Noise and visual buffer for residents.

Easy access to water.
Total land area of 26,000 square meters.
Borders the railway line.
Provides a low maintenance, natural environment for dog play.

Other sites in this ward that have been considered include:

Location
Wolstencroft Reserve,
Flora Hill
Ken Wust Reserve,
Quarry Hill

Crusoe Reserve
Kangaroo Flat

Negatives
No infrastructure
Expensive to provide water to site
No trees
No fencing
Close proximity to sporting field
Limited parking during sporting events
(weekends)
Flood retention area
Limited fencing
No trees
The oval has been developed as a sporting
field

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Whipstick Ward Turner St, California Gully

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This site has been chosen due to:

The land is within the Eaglehawk Structure Plan 500m buffer zone, associated with
the landfill site.
Land is already used by local residents as parkland and to walk their dogs.
Adequate parking.
Road separates the land from residences.
Low impact on residents.
Established shade trees.
Total land area of 21,000 square metres.
Provides a low maintenance, natural environment for dog play.
Water close by.
Other sites in this ward that have been considered include:
Location
Albert Roy Reserve, Eaglehawk

Negatives
Impact on other user groups
No shade
No infrastructure
High costs to fence
Scout Hall Reserve, Eaglehawk Impact on residents - residents on 2 sides
Small area
Limited parking
Lake Tom Thumb, Eaglehawk
Gets very wet in winter
(Golf course end of lake)
Contamination of lake (if not fully fenced)
Is a Natural Reserve and will conflict with
Conservation Principles
Difficult to fence
Rough ground
No infrastructure
Prouses Road to Finn Street, Impact on residents and nursing home
Holdsworth Road
No infrastructure
(This area may be considered should CoGB
consider further on leash controls in the future)
Havilah Road / Dillon Street, Impact on residents - residents on 2 sides
Long Gully
Limited parking during the week
McGowan Street, Long Gully
Impact on residents - residents on 3 sides
Lack of parking
Limited infrastructure
Costs
Turner Street site:
Capital costs for installing fencing, gates and signage approximately $27,000
Capital costs for reticulated water and drinking fountain for dog and owner
approximately - $5,000
Recurrent maintenance costs approximately $6,500 per annum

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Allingham Street site:

Capital costs for installing fencing, gates and signage approximately $32,000
Capital costs for reticulated water and drinking fountain for dog and owner - $10,000
Recurrent maintenance costs - $6,500 per annum
Comments
Establishment of additional dog parks and shared use arrangements will be well
received by dog owners and will provide for suitable dog exercise areas should the City
move towards a default on-leash requirement in all public areas within City of Greater
Bendigo or restrict the use of sporting fields as dog exercise areas.
Council collects approximately $1,2M income from dog and cat registration fees and
fines each year. The animal services program is full cost recovery with an annual
surplus in the order of $100,000. The creation of additional dog exercise areas is a
positive initiative which will be well received by the public and demonstrates that Council
is investing income from registration fees back into community facilities.
With Bendigo predominantly being an off leash city, no legal mechanism, consultation or
Council resolution is required as all public areas (other than those declared by Council to
be on leash), are off leash by default. Therefore residents who are aware of the sites
can and are using the area for dog exercise already.
Residents in the vicinity of both Turner Street, California Gully and Allingham Street,
Kangaroo Flat have been consulted in relation to the proposed dog exercise areas. A
summary of feedback obtained includes:
2 responses were received for the Turner Street site. Both responses were negative,
sighting extra traffic and parking, dog faeces, dogs off leash, disruption to the area,
close proximity to the playground and the cost to transform the area into a dog park,
as issues.
3 responses were received in relation to the Allingham Street site. All were positive
and believe the area would be suitable for use as a dog park.
A petition was received by Council with 365 signatures requesting the opening of two (2)
off lead dog parks in Bendigo, as outlined below:
"Bendigo Council has indicated two new fenced off-lead dog parks may be
provided in Kangaroo Flat & Eaglehawk. There are positive exercise and
socialisation benefits for dogs and owners alike.
We, the undersigned fully support this initiative and would like to see the new
off lead dog parks opened."
The Bendigo Advertiser conducted an online survey following the council meeting to
adopt the draft DAMP, asking the question; Does Greater Bendigo need more off-lead
dog parks?
There were no numbers provided for the amount of people who responded, however
83% voted yes and 17% voted no.

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The provision of additional dedicated fenced dog exercise areas is a positive initiative
and will reduce the use of active sporting fields by owners for exercising dogs.
The recommendation is to approve the creation of 2 additional dog exercise areas,
Turner Street, California Gully and Allingham Street, Kangaroo Flat and that these
sites are considered for future funding bids.
Cat curfew
The City has an existing curfew which requires cats to be confined between sunset and
sunrise. This curfew has been reviewed further following submissions received in
response to the draft DAMP. Extending the curfew to require cats to be confined at all
times was considered. The review found:
Disadvantages:
There would be significant resourcing costs to enforce cats wandering at large during
the day time. (additional staff would be required to meet the community expectation).
It is much more difficult and costly to confine a cat which may make it prohibitive for
some people to own a cat.
It is very difficult to catch a cat which does not wish to be caught.
Additional controls may provide a disincentive to register and or microchip, resulting
in more cats not being reclaimed and euthanized.
55% of respondents to the original survey and 69% of respondents to the draft plan
did not support extending the curfew to 24/7.
There are welfare considerations with 24/7 confinement as many residents would
need to lock their cat indoors.
Difficult to introduce and enforce at the local level.
Advantages:
It could reduce nuisance issues between neighbours.
Reduction in impact on native fauna.
Positive welfare consideration in relation to reduction in fighting and disease transfer.
Would be less spraying and faecal matter left in public areas and neighbouring
properties.
Cat kept in a safe house often live longer.
Cats who roam are at risk of injury from cars, human cruelty, poison baits, attacks
from other animals and unwanted pregnancies.
The Department of Economic Development, Jobs, Transport and Resources have
advised that 13 councils have cat curfews. Of these 7 have 24-hour curfews and 6
(including Bendigo), have night time curfews. No neighbouring municipalities have cat
curfews. Comments from councils with a 24 hour curfew:
o No one was able to provide statistics or other information on whether the 24-hour
curfew was effective, in reducing the impact on wildlife.
o One utilises resources to identify and educate owners of cats wandering or
trespassing, prior to attempting to trap the cats. Reluctant to trap cats as 80% of
impounded cats are not reclaimed. (88% not reclaimed in CoGB 14/15).
o One proactively traps cats in environmentally sensitive areas, (Dandenong Ranges).

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o One doesnt resource or actively enforce 24-hour curfew. Advised they would need to
increase staff resources to police 24-hour curfew.
o Councils proactively enforcing the 24-hour curfews have greater staffing resources
than CoGB, in comparison to the number of cats and dogs registered and area
covered:
Council 1- 2,500 square kms 3,927 registered cats and dogs per Animal
Management Officer.
Council 2 - 700 square kms 2,666 registered cats and dogs per Animal
Management Officer.
CoGB -3,000 square kms
Management Officer.

5,189 registered cats and dogs per Animal

The Bendigo Advertiser conducted an online survey following the Council meeting to
release the draft DAMP for public comment, asking the question: Should cats be allowed
to roam the streets of Bendigo?
There were 2,255 responses.
17% responded Yes, all the time
39% responded Yes, but only during the day'
43% responded No
1% responded Other
The recommendation is to not extend the curfew during the life of the 2016 2021
plan.
Risk Analysis:
Council must have its Plan in place by November 2017 or risk not being in compliance
with the Act.
There is significant risk if Council does not have rigorous management processes to deal
with dog attack and other nuisance issues, with relevant delegations in place. This has
been an area of focus over the past 4 years.
There is also significant risk if Council does not have competent and trained enforcement
staff dealing with dog attack issues.
Consultation/Communication
Consultation with the community and relevant stakeholders is the key to the successful
implementation of any plan. The following consultation took place in the development of
the DAMP:

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Internal
Consultation has occurred with staff from Units including Parks and Natural Environment,
Community Partnerships, Building and Property, Strategy, Open Space Planning and
Active and Healthy Communities.
External
Initial consultation occurred with relevant stakeholders as part of the Local Law and
Domestic Animal Management Plan review. This consultation has included:
February July 2015
Community survey / questionnaire Completed by 643 persons. The information
gathered has helped validate the data and inform the actions within the Plan.
Media releases and paid advertisements in the Local media to advise the community
of the development of the new plan.
Information in the Greater Bendigo News and on social media
Information made available at the Customer Service Centers and on the City of
Greater Bendigo Web.
Mail out to relevant community contacts and interest groups.
Information at District Engagement and Ward Meetings.
Listening posts at several locations.
November December 2015
Promotion of the draft DAMP and comments were sought through the CoGB, social
media sites.
Copies of the draft DAMP were made available at Councils Customer Service Centre
and sent to people who registered their interest. It was also made available on the
internet.
Public notice was given in local newspapers.
Consultation has been ongoing and will continue with community members, stakeholder
and staff from other City departments throughout the implementation and life of the plan.
Amendments to the Plan
The following amendment has been incorporated into the draft plan:
Incorporate advice from the Secretary of the Department of Economic
Development, Jobs, Transport and Resources extending the life of this DAMP
until 2021.

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Where to from here?

The next step is to submit the adopted DAMP to the Secretary of the Department of
Economic Development, Jobs, Transport and Resources and begin implementing actions
stated in the plan.
An update on the plans progress will be included as part of Councils Annual Report.
Resource Implications
There have been no additional costs incurred in the development of the plan as the
Parking & Animal Services Management Team developed the plan in-house utilising
exiting resources.
The majority of objectives within the Plan fall within the animal management operating
budget.
The following aspects of the Plan would require funding through the budget process in
future years:
Provision of additional dog parks;
Ongoing training and developing of staff
Undertaking a pet expo;
Continuing with the Be Safe Around Dogs and Responsible Pet Ownership Programs;
Continuing with dog and cat desexing vouchers and subsidised microchipping.
Conclusion
The Plan will ensure that Council meets its obligations under the Domestic Animals Act
and will use a mix of educational and regulatory approaches to promote the notion of
responsible pet ownership and gain compliance with the Act.
Much of the Plan will be business as usual. The Act is quite prescriptive in the strategic
areas of animal management that Council must address; hence the Plan has been
structured in a way to capture these requirements.
The Plan recognises the need to address one of the key liability indicators (reducing
obesity) by providing open space for dogs to exercise which in turn provides incentive for
residents to exercise themselves.
The Plan will make a valuable contribution towards the City's vision of Greater Bendigo
being the best place to live, work and visit through minimising the nuisance and possible
danger created by some dogs and cats.
Attachments
Domestic Animal Management Plan.

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RECOMMENDATION
That the Greater Bendigo City Council resolve to:
1. Adopt the Domestic Animal Management Plan for the period 2016 2021
2. Maintain the sunset to sunrise cat curfew during the life of the 2016 2021 Plan.
3. Approve the creation of 2 additional dog exercise areas, Turner Street, California
Gully and Allingham Street, Kangaroo Flat and that these sites are considered for
future funding bids within the life of the 2016 - 2021 Plan.

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