HomeMy Public PortalAbout20120427 - Agenda Packet - Board of Directors (BOD) - 12-13 Midpeninsula Regional
' Open Space District
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Meeting 12-13
SPECIAL MEETING
BOARD OF DIRECTORS
MIDPENINSULA REGIONAL OPEN SPACE DISTRICT
Los Altos Community Center
97 Hillview Avenue—Room 17
Los Altos, CA 94022
Friday, April 27, 2012
AGENDA
9:00 A.M. SPECIAL MEETING OF THE BOARD OF DIRECTORS OF THE MIDPENINSULA REGIONAL OPEN SPACE DISTRICT—
PUBLIC SESSION
ROLL CALL
ADOPTION OF AGENDA
9:05 A.M. BOARD BUSINESS
1. Board Discussion of the District's Strategic Plan,Consideration of Actions to Implement that Plan,and the
Role of Board Committees—Board and Board Appointees
2:00 P.M. ADJOURNMENT
*Times are estimated and items may PP subject appear earlier or later than listed. Agenda is suject to change o g �' f order.
TO ADDRESS THE BOARD: The Chair will invite public comment on agenda items at the time each item is
considered by the Board of Directors. Each speaker will ordinarily be limited to three minutes.Alternately,you
may comment to the Board by a written communication, which the Board appreciates.
In compliance with the Americans with Disabilities Act,if you need assistance to participate in this meeting,please contact the District Clerk at(650)691-1200.
Notification 48 hours prior to the meeting will enable the District to make reasonable arrangements to ensure accessibility to this meeting.
Written materials relating to an item on this Agenda that are considered to be a public record and are distributed to Board members less than 72 hours prior to the
meeting,will be available for public inspection at the District's Administrative Office located at 330 Distel Circle,Los Altos,California 94022.
CERTIFICATION OF POSTING OF AGENDA
1,Michelle Radcliffe,District Clerk for the Midpeninsula Regional Open Space District(MROSD),declare that the foregoing amended agenda for the Special
Meeting of the MROSD Board of Directors was posted and available for review on April 20,2012,at the Administrative Offices of MROSD,330 Distel Circle,Los
Altos California,94022. The agenda is also available on the District's web site at hUp://www.operLspace.org.
Signed this 20th day of April,at Los Altos,California.
District Clerk April 20,2012
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Midpeninsula Regional Open Space District
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MISSION
To acquire and preserve a regional greenbelt of open space land in perpetuity;protect
and restore the natural environment;and provide opportunities for ecologically sensitive
public enjoyment and education.
INTRODUCTION
The Midpeninsula Regional Open Space District(District)was created in 1972 when voters
passed an initiative to preserve open space funded through property tax assessments. The
District's purpose is to purchase, permanently protect, and restore lands forming a regional open
space greenbelt, preserve unspoiled wilderness, wildlife habitat, watershed, viewshed, and fragile
ecosystems, and provide opportunities for low-intensity recreation and environmental education.
The District works to form a continuous greenbelt of permanentlyPreserved open s ace by
linking its lands with other public parklands. The District also participates in cooperative efforts
such as the Bay Trail, Bay Area Ridge Trail, and Skyline-to-the-Sea Trail, which are regional
trail systems in the Bay Area that include District lands.
The District has permanently reserved over 60 000 acres of mountainous foothill and ba land
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space, creating 26 open space preserves(24 of which are open to the public). The District
covers an area of 550 square miles and includes 17 cities(Atherton, Cupertino, East Palo Alto,
Half Moon Bay, Los Altos, Los Altos Hills, Los Gatos, Menlo Park, Monte Sereno, Mountain
View, Palo Alto, Portola Valley, Redwood City, San Carlos, Saratoga, Sunnyvale, and
Woodside)over San Mateo, Santa Clara, and a portion of Santa Cruz Counties.
Funding is provided by a small share of the annual total property tax revenues collected within
District boundaries. This amounts to about 1.70 per$100 of assessed property value,which
currently provides approximately$28.xx million in tax revenue (2011-12 fiscal year). Other
revenue sources may include federal and state grants, interest and rental income, donations, and
note issues.
THE FIRST 39 YEARS: A LEGACY
Land Preservation Legacy
The District strives to preserve open space in perpetuity. Together with partners, the District
preserves the rural heritage and scenic beauty of the Santa Cruz Mountains, San Francisco
Bayfront and San Mateo Coast.
When the District was established almost 40 years ago, its emphasis was on land purchases
because there were few other organizations focusing exclusively on land preservation on the
peninsula. Additionally, this strategy leveraged the opportunity to front-load conservation land
purchase costs before property became too expensive. The District has been successful in
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implementing this vision for the last 40 years, having protected over 60,000 acres of open space
in three counties.
The District's Basic Policy was developed in 1999 to guide the District's activities and states that
the highest priority is to acquire land to complete the greenbelt and protect natural resources.
According to this Policy, public access will be provided gradually to ensure that the higher
priorities of acquisition and resource protection are maintained. Further, to maintain a long
range perspective with emphasis on the preservation, protection and careful recreational
development of open space, the District produced a Master Plan in 1992 and Regional Open
Space Study in 1998. As such,the focus has been on securing large undeveloped or sparsely
developed parcels of land and gradually linking existing preserved lands as additional land
becomes available. To more effectively accomplish its mission, the District coordinates and
collaborates with regional preservation partners including other public agencies, nonprofit
organizations, and even private parties. The use of public-private conservation partnerships has
been critical to leverage public funds for land purchase and preservation.
Conservation highlights include:
• Protection of 34%of the San Gregorio Creek watershed, an important watershed for coho
salmon and steelhead trout, including the 3,681 acre POST(Driscoll Ranch)property at
La Honda Creek Open Space Preserve.
• Protection of the corridor west of Purisima Creek Redwoods Open Space Preserve
consisting of over 1,300 acres of working lands, wildlife habitat and watershed, including
the preservation of over 50% of the Lobitos Creek watershed.
• Preservation of the Peninsula's and South Bay's iconic ridgelines and mountaintops,
including Mt. Umunhum and Black Mountain.
• Connecting public lands for people and wildlife with protected corridors between
District, county and state parks, including the POST(Madonna Creek Ranch) addition to
Miramontes Ridge Open Space Preserve connecting to Burleigh Murray State Park, and
the POST(Loma Prieta Ranch) addition to Sierra Azul Open Space Preserve connecting
to Soquel Demonstration Forest and Forest of Nisene Marks State Parks.
• Preservation of the stunning 1,047-acre POST(Mindego Ranch) at Russian Ridge Open
Space Preserve as habitat for the fully-protected San Francisco Garter Snake and as a
working cattle ranch.
To date, the District has expended approximately$243,069,000 of public property tax dollars to
preserve 60,795 acres of open space valued at over$393,778,000. District taxpayer funds have
been leveraged by land purchase grants totaling over$43,160,000, and gifts of land valued at
over$62,508,000.
In order to ensure adequate funds are available for land preservation efforts, the Districts Board
of Directors(Board) established guidelines to govern budgetary spending and preserve a
significant portion of the budget to fund land purchases. The guidelines limit the amount of tax
revenue that can be spent on operating and capital expenses. For Fiscal Year(FY)2011-12 these
limits are 5 1% and 10.5%of annual property tax revenue, respectively.
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The District has also utilized debt financing extensively to supplement tax revenue for land
purchases to take advantage of opportunities to acquire large and significant properties. Over
time, as the District has issued more debt, its debt service obligations have required an increasing
proportion of the District's annual property tax revenue. For FY2011-12,debt service payments
total approximately$9.7 million, or 35%of projected property tax revenue.
In addition to the District preserving over 60,000 acres of land during this time, many other land
conservation organizations have been established or become more active in the area including
Peninsula Open Space Trust(POST), Sempervirens Fund, and Save the Redwoods League, as
well as public agencies and others. As a result of the combined efforts of these various
organizations, over 200,000 acres of land have been preserved or saved from development within
the Santa Cruz Mountains.
When the District acquires new land, it also acquires the responsibility of managing that land.
Land management responsibilities include a wide range of actions from building and
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maintaining trails for public recreation to stewarding the natural resources found within the
preserves. These topics are discussed in more detail below.
Natural Resource StewardshipLegacy
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Stewardshipof natural resources on District lands is guided b the District's mission statement
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that identifiesboth
bo the need to protect the resources and to sustain them in perpetuity. The
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Resource Management
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Mission Statement states that The District will protect and restore the
diversity and integrity of its resources and ecological processes for the value to the environment
and to people, and will provide for the use of the preserves consistent with resource protection."
Management of the complex and constantly changing ecosystems of District preserves: forest
management and fire management; grassland management and conservation grazing; vegetation
management; rare species management and recovery; water quality protection; and cultural
resource management. A collection of Resource Management Policies has been developed and
adopted by the District's Board of Directors to address the types of management actions the
District uses and to guide staff in allocating resources to competing land management needs.
Through land preservation efforts, the District now manages 6 ranch properties encompassing
over 5,000 acres that are grazed with cattle to manage the grassland resources, over 25 miles of
streams identified as critical habitat for threatened steelhead trout, and over 60 lakes and ponds,
many of which provide habitat for threatened California red-legged frog. Additionally, District
lands encompass more than 40,000 acres of forested lands, including approximately 12,000 acres
of redwood and mixed conifer forest and over 20,000 acres of oak woodlands.
Public Access and Education Legacy
The District provides public access to open space land for the community to enjoy, limited to
what is appropriate to the nature of the land, consistent with ecological values and public safety.
The open space preserves are generally kept in a natural condition in order to best protect the
environment and wildlife habitat, and are developed with only the amenities needed to provide
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public access for low-intensity recreation. Improvements may include gravel parking areas,
restrooms, and signed trails for hiking,bicycling, and equestrian use.
The District offers 220 miles of hiking trails,ranging from easy to challenging terrain. Many
trails are open to bicycles and horses. Leashed dogs are allowed
some preserves, including
one off-leash area at Pul as Ridge Open Space Preserve. The District al
so has a numb
er of trails
that are suitable for people with varying degrees of physical ability. These "easy access"trails
are appropriate for visitors with wheelchairs, strollers, children, or for anyone desiring a less-
strenuous open space experience.
The District's volunteer programs provide an opportunity for individuals to contribute their time
and energy to preserving and protecting open space lands by participating in a variety of ways
such as educating and inspiring visitors, constructing and maintaining trails, and removing
invasive, non-native vegetation.
The David C. Daniels Nature Center features ve ima inati displays that both children and adults
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can enjoy and the District's Spaces and Species program for children is an award-winning,
innovative environmental science education program offered at Skyline Ridge Open Space
Preserve. Additionally, the District operates Deer Hollow Farm which is an educational center
where visitors, school classes, and community groups can observe and in a working
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farm.
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58/o of the District's land
dis open to public recreational use. Patrol staff monitors
both the open and closed areas of the preserves, responds to emergencies, educates preserve
visitors, and performs basic maintenance activities.
CHANGING LANDSCAPE
As the District approaches its 40 anniversary, the environment in which it r
p operates ates has changed
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dramatically from its founding in 1972. While the District already can be proud of its wonderful
legacy, the challenge for the future is to keep moving forward over the next 40 years with a
shared vision of preservation, stewardship, access, and engagement that:
• Preserves and interconnects the Peninsula and South Bay's valuable natural resources.
• Helps communities protect places that are special, highlights their history, and retains or
rebuilds their environmental sustainability.
• Adapts to the changing needs of visitors, communities, and partners. I
• Extends the benefits of conservation across physical, social,political, and jurisdictional
boundaries.
Land Preservation Challenges
The Peninsula and South Bay have changed dramatically since 1972. Most significantly, while
the threat of large-scale urban development in the Santa Cruz Mountains has greatly decreased
with more stringent zoning regulations from cities and county jurisdictions, the division of land
into "mini-ranches" is still occurring,putting a strain on water resources,jeopardizing
agriculture, diminishing scenic character and fragmenting natural habitats.
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The central question facing land conservationists today is how to scale up efforts to
protect entire landscapes and whole natural systems. Places like El Corte de Madera and Mt.
Umunhum stand out, but like any part of a network, open space is healthier when interconnected.
The challenge is to close gaps in the system of protected natural areas, interconnect regional trail
systems so that it is easy for people to reach natural areas, and preserve essential wildlife habitat
Farmers and ranchers talk of the need to sustain a continuous network of working lands—a
critical mass of agricultural activity—or risk losing the supporting businesses and community
cooperation they require to survive. Fire fighters say that keeping remote lands undeveloped
reduces the hazards and costs of firefighting for local communities. Biodiversity suffers when
scattered rural development fragments habitat. Conservation biologists have long suggested that
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protecting bigger places will sustain more species, and conversely, that fragmentation of habitat
into smaller islands is the leadingcause of species decline and loss. Finally, a rapidly changing
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climate reinforces the need to protect large, connected ecosystems to be resilient over the long
term.
Stewardship Challenges
The District has always maintained a focus on stewardship of the lands that have been purchased
for public open space even though land preservation has been the principle focus. Thus, during
the purchase process, new lands are assessed to determine immediate management priorities to
protect the environment and human health and safety. However, the District's ability to
implement all of the essential land management projects that are identified is limited by available
staffing and financial resources, resulting in a land stewardship capacity that has not kept pace
with its acquisitions. Likewise,the District's ability to open more lands to public access is
limited for the same reasons.
As the District's land management responsibilities have increased,the District's staffing and
financial resources to manage the lands and ensure public safety have been spread across a larger
and larger area. Illegal marijuana cultivation has emerged as a critical threat to public land, for
the District and other local, state, and federal partners.
This resultant strain on the District's land management capacity is compounded by the condition
j of purchased lands that often require significant remediation. Consequently, the District's
backlog of deferred maintenance projects has grown substantially. Increasingly stringent
environmental regulations have also contributed to the growing backlog as regulatory
compliance projects necessarily take priority. Staff recently conducted a rough inventory of
deferred maintenance and identified an estimated cost in excess of$50 million.
Public Access and Education Challenges
One of the central challenges for public access to open space is equity: distributing open space
fairly to all members of the public. Because people work and live primarily in urban areas,
transportation to preserved lands becomes a limiting factor for some. Further,people are finding
it difficult to reconnect with nature in a virtual age, and open space suffers from lack of
relevancy. The author of Last Child in the Woods, Richard Louv, has sparked a national debate
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about reconnecting kids and nature. However, when asked,people express a strong desire for
places to participate in healthy recreation in open space, and build a sense of community engaged
with open space.
The District relies on its city and county partners to provide local physical connections via
pedestrian and bicycle networks to our open space preserves. At the District's more remote
preserves, terrain and physical characteristics preclude public access. Even where compatible
with adjoining land uses, public staging and trail facilities are often expensive to develop.
Financial Challenges
The District has benefitted from a stable and plentiful revenue stream from a dedicated share of
property tax assessments. These revenues have historically risen over time; in fact, the District
has enjoyed above average growth in property tax revenues due to its location within one of the
highest growing housing markets in the county. However, after almost a decade of annual
increases averaging 7%, FY 2009-10 tax revenues were flat from the prior year as a result of the
economic downturn and projections for the next few years predict flat or minimal growth. This
reduction in tax revenue increases and a projected continued lack of growth in these revenues
presents a significant issue to the District's financial model. Traditionally, growth in the
District's staffing and funds to cover land stewardship and public access projects was realized
through the increases in tax revenues. Without increases in tax revenues, the District's ability to
add staff and funds for new land management and to address deferred management projects
cannot meet the demand.
At the same time, operating(largely staffing) and capital costs continue to rise as a result of
increasing retirement and insurance costs,project costs, and regulatory requirements. In
addition, the District's ability to continue to purchase land through bond financing will be
severely constrained starting in the next 4-6 years, and will continue for 20 years, as the District
approaches its debt capacity.
These two factors have significant implications for the District. First, as discussed above,
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current debt service totals 35/o of District roe tax revenue operating expenses are 51/o and
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capital expenses are 8% for a combined total of 94%. As identified above, additional revenues
traditionally were available through annual increases in property tax revenue. However, without
these increases, only 6%, or approximately$1.7 million, is available for increases in
discretionary expenses such as staffing, stewardship, or capital projects. This amount of money
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is inadequate to address the District's projected land management needs. j
Second, once the District reaches its debt capacity it will no longer be able to borrow additional
funds to finance property acquisition. Without the ability to use debt financing,the District's
land purchases would be limited to no more than 200 acres annually which, over 20 years, would
total only 4,000 acres of new property.
If the District is to continue to purchase land for open space preservation, increase its land
stewardship activities, and open more land for public access, it will need to increase and/or
diversify its revenues.
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STRATEGIC PLANNING PROCESS
Given the significant changes in the regional land conservation participants and their efforts,
combined with the projected reduced ability to purchase land and adequately address its resource
management needs, in 2010 the District embarked on developing a Strategic Plan to address
these challenges.
As the District explored development of a strategic plan, it was looking for a process that would
not be overt cumbersome and time-consuming and would allow for flexibility and
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customization to the District's culture and goals. After researching several options, the District
decided t utilize the methodology D vi P' r It
o u eoutlined b David La Tana in the book The Nonprofit
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Strategy Revolution: Real-Time Strategic Planning for a Rapid Response World. This method
was a good fit for the District,providing tools to understand who the District is and what it does,
yet provided the flexibility to adapt the process to best fit the organizational culture and needs.
What follows is a description of those tools,processes, and outcomes.
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As a first step,the District established the Strategic Plan Ad Hoc Committee, made up of three
Board Directors, and the Strategic Plan Working Group, which was comprised of 10 employees
from all departments and different levels in the organization, as well as the department managers.
The strategic planning process was employee-driven, through the Working Group, and
information and recommendations were presented first to the Ad Hoc Committee and then to the
full Board.
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In July 2010, the District kicked off the strategic planning process at a Board workshop where
staff presented an overview of the proposed process,the suggested format of the Strategic Plan,
and the deliverables from the process. In October, the Board met again to develop the District's
Identity Statement, Strategy Screen, and Big Questions, which are described below. After the
Board's initial input at the October Workshop, staff and the Strategic Plan Ad Hoc Committee
were tasked with compiling and finalizing all of the information, which was completed in April
2011. These documents are included as Attachments to this document.
STRATEGIC PLANNING TOOLS
Identity Statement
The Identity Statement(Attachment 1) captures the essence of who the District is through the
following seven components:
1. Mission—succinct statement of the District's mission, its reason for existence.
2. Impact—what the District is aiming to accomplish in fulfillment of the mission.
3. By Serving—who the District considers to be its "customers."
4. In—the geographic area in which District services are provided.
5. Through—what"services"are provided by the District.
6. Differentiating Strengths—what attributes the District possesses that set it apart from
other similar organizations.
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7. Revenue Sources—the financial revenue and in-kind contributions that sustain the
District and enable it to fulfill its mission.
Strategy Screen
The Strategy Screen(Attachment 2) is essentially a discussion guide comprised of a list of
criteria that will assist with consistent decision-making priority-setting andbased on what is
most important to the District. The proposed District Strategy Screen frames the evaluation of
strategic options around the following contexts:
I. Best way to achieve Mission
2. Are we the best-suited organization?
3. Opportunity cost and consequences of no action
4. Capacity and sustainability
5. Benefits, impacts, and tradeoffs
6. Differentiating Strengths
Big Questions
"A Big Question is an opportunity or threat to which the organization must respond. Usually, it
is beyond the scope of the organization's strategies,thus requiring a new strategy." (La Piana,
2008) Big Questions(Attachment 3) generally fall into one of three categories:
1. An opportunity to do something new or expand an existing program or service.
2. It may be a threat or barrier negatively impacting the organization's current activities.
3. It may be a business model challenge that affects the entire industry.
Partner Outreach
A critical part of the District's strategic planning process was sharing its draft Identity Statement
with District staff and selected partner agencies: Peninsula Open Space Trust POST), San Mateo
County Parks, Santa Clara County Parks, California State Parks, and the City of Mountain View.
The Identity Statement presents how the District sees itself and, through the partner outreach,the
District received feedback on how others see it. With partner and staff input,the District's
Identity Statement was refined to provide more clarity, Y accuracy, and conciseness.
VISION
ING NG AND STRATEGY DEVELOPMENT R WO KSHOPS
During April, May, and June 2011, a series of Board Workshops was held to determine what the
District's vision and long-term goals are and then to develop stra
tegies ies to accomplish those
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goals. The culmination of those efforts was a full-day Board and staff Workshop on June 10,
2011 with two objectives: first,to reach agreement that the outcomes and quality standards
discussed in the workshop will best fulfill the District's mission; and, second, to develop
roadmaps to move forward on the strategies recommended by staff at the May 25 Board meeting.
The June 10 session ended with a unanimous Board decision that was based on staff s
recommendation:
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"We will continue to purchase land but we will elevate the other two key parts of our mission-
protecting and restoring our lands and providing public access and education-to provide a
better balance in our implementation of the District's overall mission. "
The rest of this document presents the goals and strategies the District will pursue in order to
recommit to the outstanding stewardship and public enjoyment of a network of interconnected
preserved lands, in a more balanced approach.
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STRATEGIC PLANNING PROCESS OUTCOMES
Re-Affirm Mission
To acquire and preserve a regional greenbelt of open space land in perpetuity;protect and
restore the natural environment; and provide opportunities for ecologically sensitive public
enjoyment and education.
Long-Term Vision and Desired Outcomes
The current effects of rural land development in the Santa Cruz Mountains and the tension
between the need for further land conservation, stewardship and engagement work compared to
the funding shortfall clearly demonstrate that the Midpeninsula Regional Open Space District
needs a new approach to conservation that is good for nature and for people. That is, a region-
wide approach that promotes systematic thinking about the planning and protection of an
integrated green space network including natural resources,public recreation, working
landscapes, and other private open spaces. These new strategies need to meet the challenges and
effectively take advantage of the opportunities to close the gaps in the preserved conservation
network within District boundaries, and address the threats to natural open space resources,
agriculture, and rural character at the landscape-scale.
Consequently, the District developed an overall desired outcome for accomplishing the Mission
as follows:
Implement the entire mission well, ensuring balance between its three components:
regional open space greenbelt preservation,protect and restore the natural environment,
and public access and education.
The mission-related outcomes and quality standards below are what it looks like when the
District implements its mission well.
Regional Open Space Greenbelt Preservation
1. The protected lands network is expanded, enhancing biodiversity, climate change
resilience and scenic, rural character.
2. Priority watersheds are protected and carefully stewarded, whether in public or private
ownership.
3. Preserved lands are linked for habitat and people: more land is conserved and linked
together across ownerships and political boundaries.
4. Conservation efforts support working farms and ranches, whether in public or private
ownership, and protection complements pre-existing land-based livelihoods.
Protect and Restore the Natural Environment
1. Focused water quality management efforts are underway for all priority watersheds.
2. Sensitive species and their habitats benefit from our management efforts.
3. Wildfire is managed to become a more natural component of the ecosystem, and
minimizes negative effects on the community and environment.
4. The preserved lands network connects habitats and supports a diverse array of native
plants and animals.
5. Cultural resources are protected.
Public Access and Education
1. Public access to preserved land is increased, and is balanced region-wide.
2. Preserve trails are linked to other regional trails, and ultimately to the places where
people live and work.
3. Preserve visitors are educated about natural and cultural resources, and the benefits of
open space.
4. Preserves are safe, clean, and inviting for healthy exercise and enjoyment.
5. Communities are involved and engaged in conservation outcomes.
Goals / Strategies
These strategies are not intended to cover the full breadth and scope of the work the District and
its partners accomplish. Rather, we must continue the great work happening every day across
the organization while transforming the organization to meet the changing needs of our
stakeholders. The heart of this strategic plan includes three broad themes supported by specific
goals to move us towards these outcomes and quality standards. It is important to note that these
goals are interrelated and must be implemented concurrently in order to be successful.
1. Increase collaboration with other land conservation organizations and work toward
a common conservation vision
Coordinate our activities with other regional conservation organizations to leverage
resources; provide a unified, consistent approach; and maximize our effectiveness on the
peninsula.
2. Evaluate and garner public support for regional conservation vision
Increase outreach to our constituents to ensure that they support the creation of a regional
vision of land conservation and develop a more comprehensive program to communicate
with the public.
3. Increase District financial and staffing resources to fund the whole mission and
increase natural resource management and public access
Increase our revenues, diversify our funding sources, and increase staffing in order to be
successful in creating greater balance between the three parts of our mission.
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GOAL #1: Enhance Regional Collaboration—Coordinate our activities with other regional
conservation organizations to leverage resources; provide a unified, consistent approach; and
maximize our effectiveness on the peninsula.
Goals Implementation Outputs `' 'u bfr 1S
#1A: Lead partners Hire a consultant Enhanced
in regional
collaboration
conservation
between partners
Goal#1: Research existing
#iB: Determine studies Integrated Partners'
Enhance _� District's regional role —� approach to activities are
Regional conservatio ,
Collaboration \ n on
the peninsula hacPri nn
\\,l #1C: Define goals: Research other
land,resource suCcesse Region
management,and Conservation
public access R
� Vision
The District's mission centers on the vision of a network of preserved natural open space lands
for the San Francisco Peninsula and South Bay. Together, the District and its public and private
partners have preserved an extensive network of regional trails, wildlife connectivity, and have
established an edge to outward urban expansion along the Santa Cruz Mountains and San
Francisco Bay front. Nonetheless, further conservation and stewardship work is still needed to
improve the network of conserved lands, trails, and habitat to meet biodiversity goals, create
better habitat connectivity, build climate change resiliency, and better connect open space to the
places that people live.
Regional conservation and stewardship efforts are inherently collaborative. Numerous
organizations are working with the same broad goals and focusing on the same geographic area;
as such, they should work together to interconnect regional trails and create a network of
connected lands. These broad conservation goals need to be looked at as a whole rather that as
isolated pieces that individual agencies independently accomplish.
The regional "ecology" of conservation organizations in the San Francisco Bay Area is
extremely robust, with numerous governmental agencies and non-profit organizations covering a
wide spectrum of regulatory, advocacy, and stewardship roles. Private non-profit land trusts and
foundations have recognized the value of combining forces on region-wide conservation
initiatives that leverage the strengths of each and accomplish more than any one organization
could accomplish alone.
Goal#1 is comprised of two important and distinct components which would need to occur
concurrently: enhancing collaboration and synergy with other land conservation organizations,
and developing a regional open space vision.
Enhancing Collaboration
Although the District has historically partnered with other park/conservation agencies and
organizations, there is an increased need, and benefit, to focus and expand these regional
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collaboration efforts. Every organization has unique strengths and core competencies that make
them successful. By working together, with each organization focusing on its core
competencies, duplication of efforts can be avoided and conservation can be achieved most
efficiently and effectively through leveraging the strengths of each organization.
Developing a regional vision
Creating a regional open space vision in collaboration with partners would help define priority
conservation, stewardship, and recreation goals for the region. Clearly defining these goals and
collaborating regionally to achieve them will increase the beneficial impact that conservation
organizations, including the District, have on the Peninsula and South Bay. This strategy entails
preparing an Open Space Vision Plan(Plan)that would address the need for integrated
conservation programs,policies and projects, and the need to move beyond jurisdictional
boundaries to better coordinate regulatory,policy, and protection efforts. Development of this
Plan would need to be accomplished within the timeframe of one year and would likely entail
significant consultant support to collect existing studies, facilitate the various partner
organizations in identifying regional priorities and goals, and produce a document reflecting
these goals.
The Open Space Vision Plan would:
• Be a science- and community-informed document that recommends strategies and
priorities for land conservation, resource stewardship, and recreational access on the San
Francisco Peninsula and South Bay.
• Serve as a strategic tool and resource for the District and its conservation partners to
make informed conservation choices and investments; enhance cooperation and
coordination; accelerate the pace and effectiveness of conservation and stewardship; and
better position the region for federal, state, local, and private funding for land protection,
resource stewardship, and recreational access.
• Be an adaptive document that would be updated over time as conditions and needs
change.
• Address District obligations under the LAFCO Conditions of Approval for the Coastside
Service Plan by informing the update to the District's Regional Open Space Study and
Master Plan.
• Form the backbone of a potential funding measure b identifying the shared priorities of
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regional significance that the District its partners, and the local communities wish to see
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implemented.
Making the open space vision and goals a reality can better be accomplished by a collaboration
of organizations rather than a single organization working alone. Collaboration—among
conservation partners, local government, non-profit organizations, landowners, community
members and other District-wide stakeholders—is integral to the success and sustainability of
long-term land conservation on the Peninsula.
Funding for the regional vision effort would likely be drawn from multiple sources, so that one
organization is not overburdened. Direct costs to the District and staffing needs have not yet
been estimated.
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No single approach or activity will fully accomplish this goal, rather,multiple strategies need to
be employed that, at a minimum, will include:
A. Engaging and leading partner organizations in regionally coordinated approach.
B. Determining the District's role in the regional context, and integrating these efforts with
partner organizations.
C. Working with partners to define regional land conservation, resource management and public
access needs, vision and goals.
The District would perform specific activities to implement these strategies, including:
1. Hire a consultant to assist with the development of an Open Space Vision Plan and help
coordinate its associated activities.
2. Research examples of similar regional conservation efforts that have been successful and
identify what has already been completed in order to utilize lessons learned from similar
efforts and estimate potential District costs and staffing needs
3. Identify partners, including traditional partners(Park agencies, non-profit conservation
organizations), but also including non-traditional partners(sustainable communities,
transportation,health care)and consider partnerships with entities that operate outside
District boundaries to support long-term sustainability of conservation efforts within our
boundary to avoid being an"island". Organize initial meetings with partners to
determine current activities and establish an understanding of existing conservation
visions/plans. This may include hosting a Partner Symposium and encouraging other
conservation organizations to share their plans and vision to clarify shared goals
4. Prepare a collaborative, community-informed Open Space Vision Plan which defines the
scale and desired outcome of the effort; defines the region that the public access and
conservation vision covers;uses a science-based GIS approach as a decision support tool;
and includes input from the public and partners to identify regional goals. Using this
information, conservation, stewardship and recreational access needs will be evaluated
and prioritized.
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Goal#2: Build Public Support—Increase outreach to our constituents to build their support for
a regional vision of land conservation and develop a more comprehensive program to
communicate with the public.
Goals Implementation Outputs utcomes,`
#2A: II` " C nsider an Community u Ilc more..
involvement in visory Committee ► leaders& involved with
settina vision&ao advocates for District activities
Goal#2:
#2B: Increased
Build Public Public supports
--0 District interaction Increase pu `Public supports funding measure
Support with constituents engagement Regional
Conservation
#2C: Promote j
vicinn Voters approve
Community-base
WOO t support of Funding
Measure
Starting with the District's establishment in 1972,the District has historically emphasized
purchasing priority open space lands identified by the organization, with a secondary focus on
land stewardship and operating the core system of open space preserves and trails. This focus on
real estate transactions has been extremely successful; to date, the District has preserved almost
60,000 acres of critical open space land since the early 1970s, about 35,000 of which are now
open to the public for low-intensity recreation. Overall, these and other preserved lands have
established an edge to outward urban expansion along the Santa Cruz Mountains and San
Francisco Bay front,contributing greatly to the region's quality of life. This greenbelt comprises
a critical habitat corridor as well as a recreational trail system.
As discussed under Goal#1,private land trusts, organizations, and foundations have recognized
the need to combine forces on region-wide conservation initiatives. Stimulating community
participation and identifying public conservation, stewardship, and recreational access priorities
could benefit the District, as well as its conservation partners,by building support for land
conservation in the community.
Goal#2 is comprised of two important and distinct components: developing a regional vision,
and developing public support for this vision.
Developing a regional vision
Developing a regional conservation vision will provide a focus to engage District constituents
and partners alike through the shared identification of conservation priorities both regionally(the
greater San Francisco Peninsula and South Bay) and within the more narrowly defined District
boundaries. This Open Space Vision Plan will be supported by scientific data on biodiversity,
landscape connectivity, and other regional analyses and will be developed with public input.
Additional discussion of the Open Space Vision Plan can be found under Goal#1.
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Public outreach
The District has a specific focused mandate to protect and restore the natural environment and
provide low-intensity public recreation opportunities across a multi-county jurisdiction that
includes a large portion of the San Francisco Peninsula and South Bay. As a public agency
formed by the voters, the District has a responsibility to engage and develop support for
conservation within the region, and particularly within its boundaries. Therefore, the District is
uniquely qualified to lead public engagement efforts within the San Francisco Peninsula and
South Bay areas.
The basic concept for public outreach is to obtain broad-based public input and begin a dialogue
that will highlight the specific need for protecting local natural resources. Additional discussion
of the District's strategies to respond to financial challenges can be found in Goal #3.
The intent is to develop the conservation vision with public input and achieve a broad consensus
among those who live in, work in, or visit the area, that the vision and its goals represent the path
to a more prosperous and healthy future, and that implementing the vision is a worthy joint effort
which the whole community can support, i.e. a common vision for a common future.
Increasingpublic participation in the conservation efforts of the District and partners will require e u e
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an approach that has a broad appeal across all socio-economic sectors of the surrounding
communities. No single roach or activity
g pp t rty will fully accomplish this goal; rather,multiple
strategies need to be employed that, at a minimum, will include:
A. Active public involvement in visioning and goal setting, including polls and public
workshops to assess public sentiment and support, and enhanced communication with the
public.
B. Increasing Board and staff interaction with constituents and the public to enhance District
visibility.
C. Promoting community-based leadership (e.g. Adopt-A Park, Friends of the District,
grassroots supporters, etc.).
In order to achieve
e e this goal, the District wil
l i11 need to defer nonessential ro'ects and significantly
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reduce the number of major competing projects. Involvement by all Departments in public
outreach and communication will be essential to its success.
The District would perform specific activities to implement these strategies, including:
1. Consider forming a diverse advisory committee comprised of representatives from the
District,partner organizations,resource agencies, landowners, and community members
to advise the team during the open space vision preparation.
Page _--------
2. Increase public engagement through District interactions with the public to initiate
dialogue regarding the future of open space conservation and stewardship; reinforce and
increase public awareness of importance of local open space to quality of life.
3. Work with opinion leaders such as academics, elected and appointed public officials, and
the business community to build their support for local open space preservation.
4. Conduct stakeholder and community workshops which might include community-
focused forums so that local opinions are heard and engaging the Peninsula and South
Bay communities,to hear what they value the most about open space. Periodic polls
would also be conducted to determine public sentiment around land conservation issues,
core parts of the conservation vision and to measure the public's awareness and support
of the District and its programs.
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18
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Goal #3: Enhance Financial and Staffing Resources—Increase our revenues, diversify our
funding sources, and increase staffing in order to be successful in creating greater balance
between the three parts of our mission.
Goals Implementation Outputs t5utaome'
Voters approve
Funding
Measure
#3A: Evaluat„ Identify resources - ► Funding campaign
pursuing a fundirt and timeline for -'_-'�'�-
measure funding campaign Increased
Sustafriable pfan grants and
Goal#3: #36: Evaluate -- --► for diversifying other revenues
Enhance alternative financial revenues
Financial and —� models Explore other Alternative Financial&
Staffing potential revenues
9
Staffing Plans business model
#3C: Increase optimized to
philanthropy,grants, —► achieve
and other revenues --► Alternative
Re-evaluate financial models balanced
Historically, the District has placed a primary emphasis on land acquisition, both through debt
financing and direct cash outlays from reserves. Over time, as the District has issued more debt,
the debt service obligations have required an increasing proportion of the District's annual
property tax revenue. For FY2011-12, debt service payments total approximately$9.7 million,
or 35% of projected property tax revenue.
As debt service has increased, combined with the operating and capital expenditure guidelines
adopted by the Board, the proportion of usable funds available for operating expenses and
resource management projects has declined. At the same time, resource management needs have
increased substantially 'a as has the public's demand for increased access to our reserves.
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Responding to these challenges requires significant increases in staffing resources as well as
increased funding for capital projects.
To date, the District's funding model has relied on steadily increasing property tax revenue to
support District growth. The current economic downturn, which has slowed the growth of this
revenue source, combined with the District's increased debt service obligations, has limited the
funds available to address resource management and public access needs. In addition, the
District's ability to buy land will be severely reduced starting in the next four to six years. Based
on current assumptions contained in the District's financial model,the District will have just
under$1 million annually in un-earmarked tax revenue available for discretionary expenses,
whether it is land purchases, resource management projects, or operating expenses. Overall,
District expenses continue to rise at a faster rate than tax revenues and, as such, the District is at
or nearing its limit of land stewardship capacity under the current financial model.
In order to continue to fund its mission and create balance between the three parts of the mission,
the District has determined it needs to increase its revenues, diversify its funding sources, and
increase staffing. No single approach or activity will fully accomplish this goal,rather, multiple
strategies need to be employed that, at a minimum, will include:
A. Evaluating pursuing a tax or funding measure
B. Re-evaluating the District's current funding model and carefully considering whether or not
to issue new debt
C. Evaluating increasing revenues from philanthropy(e.g., donations, estate planning, etc.),
grants, and other potential revenue sources
The District would perform specific activities to implement these strategies, including:
1. Identify the financial and staff resources required to conduct a funding measure and
clearly identify District projects that would be funded should a funding measure pass and
the communities that would benefit.
2. Staff will explore other potential revenue sources such as additional grants, engaging
non-profits in partnering on philanthropic initiatives, fees, corporate sponsors, higher
yield investment
Yl accounts, etc. Additionally, when receiving gifts or purchasing land,
determine whether ongoing maintenance costs can be covered by others
3. Based on the District's resource management and public access goals, evaluate the
District's current business model to develop a staffing plan to achieve the goals and
identify the infrastructure(e.g., staff facilities)needed to implement staffing plan.
4. Staff will work with the District Controller to evaluate alternative financing models and
evaluate adjusting the Operating and Capital Budget Guidelines.
NEXT STEPS: HOW ARE WE GOING TO USE THE STRATEGIC PLAN?
To be completed after Board discussion.
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Vision Plan Draft Schedule Revised 04/19/12
2012 2013
APR MAY JUNE JULY AUG SEPT OCT NOV DEC JAN FEB MAR APR MAY JUN JUL AUG SEPT OCT NOV DEC
Project Initiation
Consultant Selection B
Form Advisory Committee
Develop Communications and Outreach Plan A
Data Collection
Communications and Outreach Plan Implementation B B
Data Analysis and Findings
Priority Sites and Selection Criteria
Sub-regions and Prioritized Project List A ------ --------
�t
Implementation Plan(with costs and schedule)
Vision Plan Preparation
A: A:Community Advisory Committee Meeting
B: B:Board of Directors Meeting
Ll: Release Vision Plan document
N:Board Meeting Preparation
Major Holiday Week,Reduced Work Capacity
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Last Revised 4/19/2012 1:32 PM
ESTABLISHING A STATE OF READINESS for the Open Space Vision
Implementation Plan
Several major preconditions need to be present in an environment where the District is ready to
proceed successfully with an Open Space Vision Plan effort. This"District-Wide State of Readiness" is
essential to ensure that the necessary resources,engagement,time,focus, internal coordination, and
critical thinking are available to be directed towards this time sensitive, high priority, high profile effort.
These major preconditions include:
• Staff readiness
• General Manager readiness
• Board readiness
• Partner/stakeholder readiness
Specific actions and activities have been identified that need to first be accomplished to prepare each
participant to undertake the Open Space Vision Plan process. These preplanning actions and activities
are listed below. Through further discussions,additional preplanning actions and activities may be
identified.
Elements of staff readiness:
• WORKLOAD: Revamp Department Action Plans to reduce workload and set aside sufficient staff
support to (1)support the Vision Planning process and (2) support the reallocation of roles and
responsibilities, (e.g. Department Managers will need to shift some of their responsibilities to
senior staff to allocate their time to prepare and/or review materials, attend meetings, and
answer questions).
o Clarify changes to staff roles and responsibilities within each Department.
o Avoid initiating new projects or forwarding new initiatives,which counteract efforts to
maintain sufficient staffing resources for the vision planning effort.
• MORALE: Raise and maintain high staff morale.
o Focus on wrapping up critical staff-related projects.
o Take steps to foster staff buy-in to the process.
• VACATION PLANNING: Schedule Project Team vacations around key project dates.
1 Y
Elements of General Manager readiness:
• ASSISTANT GM: Quickly fill the Assistant General Manager position,to allow delegation of
routine responsibilities,thereby freeing up time to engage and serve as leader of the effort and
an important conduit with local agencies and organizations.
• VACATION PLANNING: Schedule vacations around key project dates
Elements of Board readiness:
• ESTABLISH ROLES: Establish Board assignments
Page 1 of 2
Last Revised 4/19/2012 1:32 PM
o Set clear roles and expectations
o Foster connections and coordinate with local elected officials and influential individuals
within each Ward.
• MEDIA TRAINING: Provide media training and talking points
• INTERNSHIP PROGRAM: Consider assigning an intern/aide to assist Board members with
organization, scheduling,and information transmittal
• VACATION PLANNING: Schedule vacations around key project dates
Elements of Partner/stakeholder readiness:
• IDENTIFICATION: Identify partners and stakeholders,and assign Board,GM,and staff
communication roles and responsibilities.
• OPEN LINES OF COMMUNICATION/ESTABLISH WILLINGNESS AND GROUND RULES: Initiate
early communication to begin dialogue and establish commitment to participate.
Page 2 of 2
` IDENTITY STATEMENT
We advance our mission of:
To acquire and reserve a regional greenbelt of open s ace land in perpetuity; protect and
q P 9 9 P P P tY,
restore the natural environment; and provide opportunities for
ecologically sensitive public enjoyment and education.
And seek to: Definition of 01 en Space:
• Form continuous systems of permanently preserved open (Adapted from the District's
space by linking with other public parklands and other Basic Policy)
natural lands;
• Protect places for sensitive, rare, threatened, and • Land area that is allowed to
endangered species, enhance habitats, and preserve and remain in or return to its natural,
connect key land and water corridors for wildlife wild state.Open space lands may
movement and survival; include compatible agricultural
• Increase public accessibility to and knowledge of the uses•
interconnected regional preserve systems and their
value, and appropriately balance public use with resource • Protects areas of scenic beauty
protection. and rural character.
By serving: • Preserves natural habitats
necessaryto sustain plant and
Everyone who lives or works within the District's boundaries, or
animal life,especially native and
visits the District's lands.
endangered species.
Within: • Offers opportunities to the public
ri legal boundaries n h n Francisco Peninsula
for education,recreation,and
The District's s ega bou da es o the 5a
renewal of spirit.
from south of Pacifica to Los Gatos, and from the Pacific Ocean P
to the San Francisco Bay. • Enhances public safety b
P Y Y
Through: preventing P
reventin development of areas
prone to landslides,earthquake
• Regional open space preservation; damage,flooding,and wildland
• Biodiversity preservation, stewardship, and connectivity; fires.
Low-intensity public access;
• Community environmental education and involvement; • Establishes boundaries for urban
• ace Open s conservation advoca • growth,and provides a respite
p P advocacy;
• Compatible agricultural uses of open ace. from.urban living.
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•
And emphasizing our differentiating strengths by: Improves the environmental
health of the region and the health
1. A special purpose district created by the voters to actively of its people through the
conserve additional open space using the following essential protection of air quality,water
tools: quality,and physical exercise.
• Dedicated funding from the voters that allows the
District to exercise consistent, patient leadership to
DRAFT District Strategic Plan
August 2011
pursue an interconnected regional open space system, accomplished with public
and private partners.
Essential, efficient and economical land stewardship including intensive and
focused restoration to critical locations.
• Stable property tax funding coupled with skillful, sustainable leveraging of
District financial resources.
2. Owning and managing a unique asset—the Preserves and the benefits provided by them for
species and people.
• Low-intensity public access where appropriate and cost effective for an enjoyable
wildland experience.
We are sustained by:
Primarily Property Tax Revenue ($17 per $100,000 of assessed real property value).
Also by:
• Grants
• Gifts
• Interest income
• Investment income
• Rental income
• Partnerships
• Volunteer services
• Excellent credit rating
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DRAFT District Strategic Plan
August 2011
STRATEGY SCREEN j DISCUSSION GUIDE
Best way to achieve Mission
• Are the actions and the expected outcomes consistent with our mission and our identity?
• Is it consistent with long-term success?
Are we the best-suited organization?
• Can others do this better? j
• Is there a role for partner agencies?
• Are we the only one who can or will do this?
Consequences of action / no action
• Are we required to act by law, policy or other imperative or is action discretionary?
• What is the time sensitivity?
• If we wait to decide or act, what will be the consequences? i.e. will an opportunity be lost or
a resource damaged if we fail to act?
• Will our action preserve future options to the extent possible?
• Do the long-term impacts outweigh the effort/action required?
Capacity and sustainability
• Is staff and management capacity adequate to absorb those impacts?
• Can we sustain the effort required?
• Can it be accommodated within the constraints of our long-term financial model?
• What is the most effective way to leverage our resources?
Benefits, impacts and tradeoffs
• Do the benefits outweigh the impacts (to public, organization)?
• What are the strengths/weaknesses?
• Do we need to consider tradeoffs; are we willing to make tradeoffs?
• Will this provide the District with the opportunity to develop new skills and capacities?
Differentiating strengths
• Does it build on and reinforce our differentiating strengths?
• Does it make best use of and conserve our tools? (Independence, vision, economical land
stewardship, stable tax funding, creative leveraging of funds)
• Does the action increase public knowledge and awareness of the District (branding)?
DRAFT District Strategic Plan
August 2011
GOAL
Implement the whole mission well:
0 To acquire and preserve a regional greenbelt of open space land in perpetuity (land
acquisition and preservation);
0 Protect and restore the natural environment (resource management); and
0 Provide opportunities for ecologically sensitive public enjoyment and education (public
access and education).
MISSION-RELATED DESIRED OUTCOMES AND QUALM STANDARDS
Regional Open Space Greenbelt Preservation
1. The protected lands network is expanded, enhancing biodiversity, climate change
resilience and scenic, rural character.
2. Priority watersheds are protected and carefully stewarded, whether in public or private
ownership.
3. Preserved lands are linked for habitat and people: more land is conserved and linked
together across ownerships and political boundaries.
4. Conservation efforts support working farms and ranches, whether in public or private
ownership, and protection complements pre-existing land-based livelihoods.
Protect and Restore the Natural Environment
1. Focused water quality management efforts are underway for all priority watersheds.
2. Sensitive species and their habitats benefit from our management efforts.
3. Wildfire is managed to become a more natural component of the ecosystem, and
minimizes negative effects on the community and environment.
4. The preserved lands network connects habitats and supports a diverse array of native
plants and animals.
5. Cultural resources are protected.
DRAFT District Strategic Plan
August 2011
Public Access and Education
1. Public access to preserved land is increased, and is balanced region-wide.
2. Preserve trails are linked to other regional trails, and ultimately to the places where
people live and work.
3. Preserve visitors are educated about natural and cultural resources, and the benefits of
open space.
4. Preserves are safe, clean, and inviting for healthy exercise and enjoyment.
5. Communities are involved and engaged in conservation outcomes.
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DRAFT District Strategic Plan
August 2011
BIG QUESTIONS
These proposed Big Questions are interrelated and cannot be considered independently from
each other. However, Big Question #1 needs to be considered first as it directly impacts how
the District can best continue to fulfill its mission and thus influences the responses to Big
Questions #2, 3, and 4.
1. The District has preserved approximately 59,000 acres of open space in the Santa Cruz
Mountains, however our financial ability to carry out the mission with the primary emphasis
on land acquisition is projected to substantially change within the next 3-6 years with
current funding. How will we respond?
2. How do we allocate resources among programs to achieve the goal and desired outcomes?
3. Together with our partners, how can we most effectively take advantage of the
opportunities to close the gaps in the preserved conservation network within District
boundaries, and address the threats to natural open space resources, agriculture, and rural
character?
4. How can the District diversify and increase its revenue stream, in the short and long term,
to ensure funds are available to continue to sustainably fulfill our mission?
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