Health and Safety Committee Meeting Summary - January 7, 2026

This meeting of the Denver City Council Health and Safety Committee featured two briefings: one from the Denver Department of Public Health and Environment on animal bite enforcement and community programs, and another from the Fresh Low Market Initiative (formerly Denver Table Consortium) on a nonprofit grocery model to address food insecurity. The Office of the Municipal Public Defender also presented concerns about strict liability in animal ordinances. No votes were taken; the meeting was informational with requests for follow-up data and future collaboration.

Discussion Items

Denver Animal Protection (DAP) Briefing on Animal Bites and Attacks

• DAP Director Melanie Sobel, Lieutenant Josh Rolfe, and City Attorney Marlee Bordovsky presented on how the department handles animal bites using a tiered enforcement approach based on the Dr. Ian Dunbar Bite Scale (Levels 1-6). Level 4+ bites are considered serious; Level 5 and 6 often lead to euthanasia recommendations. DAP emphasized a community-based, proactive, and equitable enforcement philosophy aimed at maintaining the human-animal bond.
• National statistics: approximately 4.5 million reported bites annually in the U.S., half involving children, with 30-40 fatalities per year. In Denver (Oct 2024-Oct 2025), most reported bites occurred in adults aged 21-40. Many bites go unreported.
• DAP uses two codified designations: "potentially dangerous animal" (less serious injury) requiring a permit and management conditions, and "dangerous animal" (serious bodily injury or death) which is illegal in Denver. A non-codified "animal of concern" category allows proactive intervention for concerning behavior.
• Enforcement focuses on education and behavior change; the City Attorney's Office collaborates weekly with DAP to decide charges. Jail time is rarely sought—none imposed in 2025 for dog bite cases. Most cases result in deferred judgments or dismissals.
• DAP provides free or low-cost services: spay/neuter, vaccines, microchips, a pet food pantry, temporary pet housing for crises, and soon free training. They report a 63% return-to-owner rate for dogs (national avg. 16%) and a 44% increase in animal intake since pre-COVID.
• The top five reported biting breeds in Denver (known) are Labrador Retriever, American Pit Bull Terrier, German Shepherd, American Bulldog, and Chihuahua. DAP noted breed identification is often inaccurate and that behavior-based laws (rather than breed-specific) are more effective.

Statement by Office of the Municipal Public Defender (OMPD)

• A representative (Colette) requested that the City Council review Chapter 8 animal violations, noting that many offenses (including strict liability animal bites) expose owners to up to 300 days in jail and a $999 fine, even when the owner had no knowledge or negligence (e.g., out of town when a dog sitter caused a bite). OMPD suggested that minor violations be made civil infractions and that criminal violations require a "knowing" element (mens rea) for culpable owners.

Council Member Questions

• Councilmember Parady expressed concern about the mismatch between the 300-day maximum penalty and actual practice (no jail sentences in 2025). She asked Marlee Bordovsky to provide data on sentences sought and imposed over the past 3-5 years. Bordovsky agreed to provide statistics.
• Councilmember Sawyer raised issues about enforcement across jurisdictional borders (e.g., Aurora/Denver border) and the role of Parks and Rec in leash law enforcement. She requested stronger collaboration with surrounding counties and cities. Chair Watson offered to connect with metro county commissioners.
• Councilmember Gonzalez-Gutierrez asked about including the Public Defender in systemic conversations about enforcement and prosecution, and requested additional data on how penalties are negotiated. Marlee Bordovsky confirmed that conversations already occur in court but that broader collaboration is welcome.

Fresh Low Market Initiative Briefing

• Donna Garnia (CEO of fellow organizing committee and president of Fresh Low Market governing board) presented alongside Willie Shepard (Flow Development), Annie Hancock (Denver Housing Authority), and Lane Zabowski (community member). The initiative aims to create a nonprofit grocery model with a hub-and-spoke structure to serve food-insecure "inverted L" communities in Denver.
• The model will offer 15-35% discounts on healthy food, accept SNAP/WIC and Double Up Food Bucks, create local jobs, and be data-driven with community benefits agreements. Four stores are slated to open by summer 2026: Montbello, Mariposa, Sun Valley (operated by DHA), and Clayton. A central warehouse and storage (with help from We Don't Waste) will provide buying power.
• Denver Housing Authority's Annie Hancock noted that DHA's existing stores (Decatur Fresh, Osage Mercado) have 43% of sales from SNAP/Double Up Food Bucks, and employ neighborhood residents. They see this partnership as a way to sustain and scale these operations.
• The initiative seeks $1 million to launch the nonprofit entity; a city contribution of $426,000 was requested via a budget amendment (introduced by Councilmember Lewis). Additional philanthropic support is being pursued from foundations.
• Councilmember Torres questioned the data underlying a map of food insecurity (noting gaps in West Denver) and asked about city department engagement (DDPHE, DOF). She noted the council has long advocated for a Food Justice Fund, and that the Fresh Low model needs sustainable funding beyond one-time grants. Council President Sandoval clarified that council does not approve contracts under $500,000 and that the presentation was informational. Councilmember Lewis stated that meetings with agencies and a competitive bidding process would follow.

Key Outcomes

• No formal votes were taken. The meeting was informational.
• DAP and City Attorney's Office will provide statistics on sentences and penalties in animal bite cases over the past 3-5 years to Councilmember Parady.
• Chair Watson committed to reaching out to metro county commissioners to improve cross-jurisdictional coordination on animal enforcement, as requested by Councilmember Sawyer.
• Councilmember Gonzalez-Gutierrez requested additional data from the Municipal Public Defender's Office on how penalties are negotiated.
• The Fresh Low Market Initiative will continue discussions with city agencies (DDPHE, DOF) regarding potential funding and programmatic support. Councilmembers stressed the need for transparent, competitive processes.