Animal control at UBC and in the UNA is not a total free-for-all, even if it might seem that way to some observers. It is loosely regulated throughout campus with a range of rules of differing enforceability. The complexities of UBC’s unique administrative rule is reflected in the different ways animal control is treated in campus buildings, campus open areas, and within the UNA public realm.
Disclosure: I am a free range wildlife supporter and advocate, a domestic pet owner, and a park user who has been bitten by an on-leash dog who was poorly tended. I am also a campus resident and an elected member of UBC’s Board of Governors. Nothing I say here in anyway represents an official (or informal) UBC position.
During my tenure on the University Neighbourhoods Association Board of Directors (2012-2016) we attempted to introduce an animal control bylaw. We made no progress. In 2012 noise and enforcement bylaws were approved by the UBC Board of Governors. It took four years to have those two relatively uncontroversial bylaws developed and approved. The current UNA Board of Directors is working on a dog bylaw (read their reports).
In April 2024, the UNA approved a $20,000 expenditure for an off-leash dog park. As of yet they have no specified location nor have they granted formal approval to actually build such a park that they say will cost more than the $20,000 they have allocated.
Community dog owners have expressed concern that following the establishment of an off-leash park, the UNA will restrict the mobility of dogs and their walkers. This would result in a more tightly constrained space for dogs and their humans in our neighbourhoods.
Last fall former UNA Chief Administrative Officer (CAO) Sundance Topham said:
The UNA does not have any official policies/bylaws/rules for pets in open spaces/parks. We have signage up to note that dogs are not allowed in playground areas, and to clean up after your pets. There is work currently going on regarding enacting rules (which have to go through UBC BOG), but we do not have anything official in place at this time.
None of the rules Topham mentioned actually have any enforceability (though most people follow them just the same). To be enforceable these rules need a UBC Board of Governors approved UNA bylaw. Posted UNA signs might be better thought of as requests, not requirements. Readers should recall that the UNA is not in fact a municipal government with regulatory authority, but a society that manages under contract certain of UBC’s services for residents in the non-institutional portion of UBC’s lands.
How would the UNA create an animal control bylaw?
I asked Campus and Community Planning to explain how the UNA might create an animal control bylaw.
Carole Jolly, Director of Community Development and Engagement, summarized the process:
“In the neighbourhoods, animal control rules could be considered by the UNA, and in accordance with the Neighbours Agreement, would fall under the function of the UNA’s role in acting as an advisory board for UBC. This includes recommending rules to the UBC Board with respect to open space management and the development and implementation of rules relating to noise, nuisance, parking, traffic and other regulatory matters within the Neighbourhood Housing Areas (which can include animal control).
The Neighbours Agreement also sets out a process for how the UNA can draft such rules for recommendation and approval by UBC’s Board of Governors. This process has been used to develop two UNA regulatory bylaws currently in place (since 2012), including the enforcement and dispute bylaw and the noise bylaw.
Once the development of the proposed rule has gone through UNA-led community consultation and has been supported by the UNA Board, it goes to UBC’s Board of governors for approval and pending approval, is then delegated back to the UNA to implement and enforce as a regulatory bylaw.
The specific mechanism under which the UNA was delegated authority by UBC’s Board of Governors to create bylaws can be found in the Neighbours Agreement 2020 (NA). The NA is available on the UNA website. It sets forth the matters for which the UNA Board of Directors acts as an advisory board to the UBC Board of Governors. In particular Section 4.4 of the NA 2020 states:
The Board of Governors has appointed the Board of Directors as an advisory board pursuant to section 34 of the University Act, … the matters for which the Board of Directors is an advisory board include:
(d) open space management; …
(h) the development and implementation of rules relating to noise, nuisance, parking, traffic and other regulatory matters within the Neighbourhood Housing Areas; …
With respect to the control and management of parking, traffic, noise, nuisance, and similar matters over which the Board of Governors has authority, the parties acknowledge that the Board of Governors has appointed the Board of Directors of the UNA as an advisory board to the Board of Governors pursuant to Section 34 of the University Act with the terms of reference set out in Schedule “G”. The parties further acknowledge that, under these terms of reference, the advisory board will recommend rules to the Board of Governors for approval. … Once a rule has been approved, the administration and enforcement of the rule shall be the responsibility of the UNA, subject to such terms and conditions as may be specified in the rule or otherwise in writing by UBC.
Paul Thorkelsson, current UNA CAO, said:
In terms of regulation of pets in the neighbourhoods (notably dogs in this context) this is, as noted, a much more complicated process that the UNA has not undertaken.
Considering regulation, such as introducing leash requirements in the neighbourhoods, … would only be undertaken by the UNA following clear direction from the UNA Board and would include engagement and participation from residents before any consideration of regulation.
At the present time, the UNA focus has been on establishing the opportunity for dog park(s) as an amenity.
What are the rules in the institutional portion of UBC?
Carole Jolly, Director of Community Development and Engagement, said:
“There is currently no UBC policy or rule specific to animal control in outdoor spaces on UBC’s Vancouver campus, however, there is a general prohibition on pets in student residences (with the exception of guide dogs and service dogs) and guidance for pets and animals in the workplace on UBC Vancouver’s academic lands (Pets/Animals in the Workplace). In addition, if issues were to arise around safety or security, campus security and/or the RCMP would be contacted.”
“Any animal control rules that might be considered in the academic land open space would need to be pursued through the UBC process of developing a Board policy to regulate this, in addition to establishing an enforcement regime (similar to what we have for traffic and parking on campus).”
I asked campus security how they would manage animals in the open spaces. Glen MacNeil, Operations Manger, reiterated Jolly’s point that UBC has “no overarching UBCV Policy regarding pets on campus.” MacNeil said “there is no published policy on animals in the public realm at UBCV and in broad terms the University’s position is that no animals are allowed inside University buildings except [working dogs and service dogs].”
MacNeil also pointed me to the Safety and Risk Services guidelines for pets/animals in the workplace: “The University of British Columbia recognizes the important role that animals/pets play in the lives of many faculty, staff and students. Bringing an animal/pet to work is a privilege and a responsibility.” The webpage goes on to outline the rules for pets in the workplace.
I asked MacNeil how Campus Security would respond to problem animals and he said:
“Campus Security will attend and try and speak to the pet owner, and, depending on the circumstances of the report, maybe try and obtain identification. Although there’s no requirement for a person to provide ID. If there’s a more serious concern, ie; aggressive dog, potentially RCMP and/or BC Conservation could be called.”
“For a problematic wild animal, security reports those to the BC Conservation. Any decision on euthanizing would be made by them. It’s up to them to determine if the wild animal is displaying aggressive or dangerous behavior, based on reports. As you can imagine that can be difficult sometimes, for example, if people are feeding the animals.”
Thus, the only clear UBC/UNA policies regarding pets and animals focuses on animals in buildings in the institutional core of campus. As the land owner, UBC has discretion over what happens on its land (which includes the UNA zones). Nonetheless, neither UBC nor the UNA have explicit animal control policies for the open areas of campus. So far there appears no need for more elaborate rules.
Do we need an animal control bylaw?
Social media is filled with heated debates over pet behaviour. The rare serious events most typically occur in the dog’s home (about 2/3 of such incidents).
“Injuries occurred most often in the summer, 37.7%, and most frequently between the hours of 4 and 8 p.m., (32.7%). Most injuries occurred at the victim's own home, 34.2% or other home, 30.3%.” (Canadian Hospitals’ Injury Reporting, 1996).
I have personally experienced being bitten by a poorly tended dog while running in Pacific Spirit Park (over a decade ago). The dog was on a leash and it’s walker had head phones on. Both were walking away from me. I slowed to a walk and circled to avoid - all to no avail. A leash rule would not have prevented this incident as the dog was leashed; a more attentive owner might have made a difference. I continue to run through Pacific Spirit Park. All but one of the dogs and walkers I have met over the years are polite and considerate. This is from more than 20 years walking and running through Pacific Spirit Park.
As a dog owner I walk our family dog on leash and off leash throughout UBC and Pacific Spirit Park. I meet many other dog walkers doing the same. The vast majority of dog walkers are polite, considerate, and attend to their pets in ways that make them (and their dogs) wonderful neighbours who add colour and character to our community.
I am more concerned about the human-wildlife conflict arising depicted to very rapid increase in coyote sightings and close approaches across campus, particularly south campus. Rampant overbuilding is to blame here, which is putting humans as well as coyotes at risk.