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HomeMy Public PortalAbout19910601 - Agenda Packet - Board of Directors (BOD) - 91-16 Open Space MIDPENINSULA REGIONAL OPEN SPACE DISTRICT Meeting 91-16 WORKSHOP SPECIAL MEETING BOARD OF DIRECTORS AGENDA 9:00 A.M. 201 San Antonio Circle Saturday Building C-135 June 1 , 1991 Mountain View, CA (9 :00) ROLL CALL WORKSHOP Strategic Planning for the Nineties Copies of the General Manager ' s Strategic Planning for the Nineties report were included in the material for the May 22 Board meeting. Copies of the report are available at the District office. (3 :00) ADJOURNMENT 201 San Antonio Circle,Suite C-1 35 • Mountain View,California 94040 • Phone:(415)949-5500 FAX:(415)949-5679 General Manager:Herbert Grench Board of Directors:Katherine Duffy,Robert McKibbin,Teena Henshaw,Ginny Babbitt,Nonette Hanko,Betsy Crowder,Richard Bishop (31ppen Space MIDPENINSULA REGIONAL OPEN SPACE DISTRICT 7'111s A'Ep0e7- LvAs us-ro Abe julviE wokCYHOP R-91-66 (Meeting 91-13 May 22, 1991) REPORT May 14, 1991 TO: Board of Directors FROM: H. Grench, General Manager SUBJECT: Strategic Planning for the Nineties CONTRIBUTORS: C. Britton, Land Acquisition Manager; D. Hansen, Land Manager; M. Hale, Communications Coordinator; J. Fiddes , Administrative Services Manager; and J. Escobar, Operations Supervisor Recommended Actions: 1) Adopt the process recommended herein for developing a Strategic Plan for the Nineties . 2) Schedule a workshop in-depth discussion of a Strategic Plan for the Nineties. Preamble: "Strategic planning . . . attempts to bring into the planning process both rational-quantitative methods and partisan- political approaches. Strategic planning is a "hands on" participative process which is committed to producing action oriented results . " (David Gray and Ellen Edwards , "Creating Destiny: Strategic Planning in the Park and Recreation Movement" , Leisure Watch, Vol . 2, No. 1 , Spring 1989) "Strategic thinking means recognizing the relationship between cause and effect in all activities , anticipating consequences of actions, and positioning for the desired outcome. " (Patrick Tormay Miller and Larry R. Mutter, "The Language of Strategic Planning, " Journal of Parks and Recreation Administration, Vol . 6, No. 3, Fall 1988) Introduction: I have proposed a Strategic Plan for the Nineties as an overall plan of action to implement the Basic Policy of the District between now and the year 2000. The adopted Strategic Plan for the Nineties will be a guide to the formulation of annual Action Plans to achieve the goals of the District. The implementation elements of the Strategic Plan will identify and recommend the staffing, facilities, and equipment necessary to an effective program. The need for this plan is based upon my conviction that the next 10 years will be absolutely critical to completion of a greenbelt in the midpeninsula area and that increased funding is necessary to achieve this goal . The present report is not the plan itself . Rather, it is a discussion paper of various issues the Board should address and programs or projects the Board should prioritize for the development of a plan. Report 91-66 Page 2 Background: The District ' s Basic Policy, adopted in 1974, technically revised in 1980, and reaffirmed in 1988 , is the formal Board policy expression of the District ' s purpose as advocated by the citizens who were instrumental in the District ' s formation. The Basic Policy has stood the test of time and re- evaluation (for example, it was discussed as recently as your meeting of February 13, 1991) . Foremost among the five objectives of the Basic Policy is number one: The District will purchase or otherwise acquire interest in the maximum feasible amount of strategic open space land within the District including baylands and foothills. Sections of the Basic Policy on interagency cooperation (e.g. nos. 2c and 2d) , land management (e.g. nos . 3c and 3d) , public communications (e.g. no. 4a) , and general administration (e.g. no. 5a) policies reinforce this first objective. This primary objective inspired the preparation and publication of the following major policy documents: 0 Master Plan 0 Open Space Acquisition Policies as Lands Relate to Sphere of Influence and Annexation Policies 0 Policies Regarding Use of Eminent Domain 0 Land Acquisition Policies and Procedures (booklet) Furthermore, Board policy has been implemented and reinforced by the the District ' s open space acquisition approach wherein most land has been acquired on an opportunity basis and nearly all available tools for structuring and funding acquisition of rights in land have been employed while the land was still available. In this way the District has acquired nearly 34,000 acres of land at a total cost of approximately $116 , 000 , 000 ($3 , 500 per acre average) and has a current outstanding debt in excess of $48 , 000 , 000, which is within 90% of the District ' s statutory debt capacity. Over the years since its founding in 1972 , however, the District has expanded its program from an almost exclusive focus on acquisition to one that includes a substantial and growing commitment to development of public access, patrol , maintenance, and public services. After the passage of Proposition 13 in 1976, the Board entered into a process which led to the adoption of Site Emphasis Policies. These policies were adopted to guide development of District land on a geographically balanced basis and to foster levels of development that do not duplicate park and recreation functions provided by other agencies, such as the state, county, cities, and recreation districts. The Board recognized, through the Basic Policy, that some level of public access to the open space preserves was also important. As public pressure for construction of additional facilities has increased, Report 91-66 Page 3 the Board has broadened its interest in development of District sites to the point where I feel it is necessary for the Board to consider slowing the present pace of developing additional facilities beyond the very basics and to refocus on the critical need to preserve minimally disturbed habitats and natural lands . I recommend, therefore, that the Board reaffirm, through a Strategic Plan for the Nineties, that completion of the greenbelt of open space following the ridges and baylands along the midpeninsula remains at the heart of the District ' s mission. Recommended Process for Developing the Strategic Plan for the Nineties• 1 . This initial presentation of this strategic planning report for stimulation of a discussion of the process for developing a Strategic Plan for the Nineties. 2. Scheduling of a Board workshop for in-depth discussion of strategic planning through the nineties. The objective will be to secure Board approval for strategic plan priorities as suggested in this report to enable staff to prepare follow-up reports for further Board review. 3. Direction to the General Manager to return with implementation plans and cost estimates for Board-approved priorities as decided at the workshop. 4 . Presentation of specific implementation plans , including estimated cost and staffing requirements , as well as implementation timetables , depending on priorities as established by the Board during the workshop. 5. Board adoption of a Strategic Plan for the Nineties and direction to the General Manager to implement the fiscal 1991- 1992 phase. The Strategic Plan for the Nineties will be the District 's initial comprehensive management direction toward the year 2000 and will be subject to change and refinement as conditions change. The five major sections that follow herein are arranged according to the five objectives of the Basic Policy. Each of these sections includes a discussion of where we are now, critical issues, recommended options to consider and staffing implications . Note that there is considerable overlap among the sections. In the end, you will have to choose and prioritize those options from a long list that will best accomplish the goals of the District. Since not everything can be implemented at once -- it is , after all , a ten year program -- the timing element will be Report 91-66 Page 4 an important part of your decisions. Report 91-66 Page 5 STRATEGIC PLANNING FOR THE NINETIES 1. BASIC POLICY OBJECTIVE: The District will purchase or otherwise acquire interest in the maximum feasible amount of strategic open space land within the District, including baylands and foothills. 1.1 Where We Are Now 1 .2 Critical Issues 1.3 Recommended Options to Consider 1 . 4 Staffing Implications Report 91-66 Page 6 1 . 1 WHERE WE ARE NOW The District has acquired rights in about 34 , 000 acres of the approximately 90, 000 acres of land that in 1972 was undeveloped, privately held land within the foothills and baylands planning area of the District 's present sphere of influence. Over the years few opportunities have been lost to acquire important land before it was developed. We find ourselves now in a situation where land values have escalated, considerable land is available for purchase, pressure is building for residential development of that land, and District funding is limited. The prospect is that currently available funds , including grants and use of borrowed monies , will be substantially insufficient over the next ten years to meet District goals . In spite of these pressures, over the next 10 years the District will have had to all but complete acquisition of the greenbelt. It is currently estimated that an additional 55,000 acres might be publically or privately preserved, and the District share of the cost of that land would be about $165, 000 ,000 in 1991 dollars. If it were possible to acquire all the necessary land rights in the next 10 years, the net present value of the next 10 years of District income that could be allocated to acquisition totals approximately $60, 000, 000, leaving a funding shortfall of approximately $105, 000, 000 in today' s dollars. Of course, funding and acquisition would not be instantaneous, and if land continued to increase in value faster than growth in District revenue, future funding gaps might occur. 1 .2 CRITICAL ISSUES Development Threats: A pressure point continues to be the impending threat of private development of lands the District would like to preserve. According to Greenbelt Alliance, approximately 20,000 acres of land per year are lost to development in the Bay Area. Currently some 14 , 000 acres are at risk of being lost to development in San Mateo County and 135, 000 acres are at risk in Santa Clara County. Examples within the District ' s planning area include recent major development proposals adjacent to Russian Ridge, Rancho San Antonio, Long Ridge, and Pulgas Ridge Open Space Preserves and the proposed development of the former Alma College site. Open space lands, if lost to development during this decade (or any other) , will never again be available to the District to acquire. Two issues are involved here: 1) acquiring land before it is Report 91-66 Page 7 developed, and 2) influencing city or county land-use decisions in order to minimize the impact of development which does occur, including fostering a positive response to public trail and open space dedication requests made by the District to cities and counties . The first issue has a much higher priority for the District, as public acquisition can provide permanent preservation of the land as public open space, whereas land-use decisions can be overturned and are always subject to resubmittal by the land owner as the political balance on an elected board changes. Also, the District has experienced only very limited success in influencing the land-use decisions of other jurisdictions . Funding• At present, the approximately one and one-half percent of the total basic property tax collected within the District and allocated to the District is in jeopardy of further erosion as the cities , counties, and other districts within our area continue to suffer shortages in funds. The siphoning off of funds by redevelopment agencies and the fees now exacted by the counties for property assessment and collection are two examples of the erosion of the District ' s tax base. Because of the impact in the past of voter initiatives such as Proposition 13 , we must be aware that during the next decade we face the potential for similar reductions in our available funds. We continue to apply whenever possible for grants for acquisition, development, and special projects, but these grants have also become more scarce. Such potential income losses necessitate urgent planning and legislative action, not only to be able to acquire land to pursue our greenbelt goal , but also simply to maintain our current level of services. 1 . 3 RECOMMENDED OPTIONS TO CONSIDER 1 . Place a supplementary funding measure on the ballot for consideration by District constituency. 2. Support current efforts to place a statewide initiative on the ballot in 1992 that is similar to Proposition 70 placed before the voters in 1988 . 3. Although limited to only a few specific areas, use benefit assessment districts to help fund acquisition of sites with unusually high neighborhood benefit. 4. Increase pace of acquisition subsequent to passage of funding measure. 5. Continue to concentrate on acquiring land which is under -- - -- - - - - - - - - - - --- Report 91-66 Page 8 threat of development. 6. Continue to encourage local government to make sound decisions on land use. 7 . Increase board and staff efforts to engage in speaking opportunities to present the District ' s program and need for funds . 8 . Increase District Director political contacts for support of District programs, proposed funding measures, and cooperative acquisition projects. 9. Encourage and support local open space acquisition efforts which advance District goals. 1 . 4 STAFFING IMPLICATIONS The open space acquisition program is soundly staffed, and it is anticipated that any additional funds for land acquisition could be effectively managed by existing staff. In the event of a successful funding effort by the District, increased acquisition activity could be handled on a consulting or temporary employee basis. However, there are staffing implications for planning staff as discussed in section 3.4. Report 91-66 Page 9 2. BASIC POLICY OBJECTIVE: The District will work with and encourage private and other public agencies to preserve, maintain, and enhance open space. 2. 1 Where We Are Now 2.2 Critical Issues 2. 3 Recommended Options to Consider 2 . 4 Staffing Implications Report 91-66 Page 10 2.1 WHERE WE ARE NOW In the last few years the District has had remarkable success in accomplishing cooperative projects with Peninsula Open Space Trust (POST) , Sempervirens Fund, Save the Redwoods League, Portola Valley, and Town of Los Gatos. Santa Clara and San Mateo Counties have also been brought into projects either directly with the District or via POST. Likewise, the state has responded positively to acquisition proposals made by the District or POST. Cooperative planning and management programs with both counties and the state continue to be effective. However, over the years the District has emerged from the fledgling stage, seeking and receiving help from Santa Clara County and others , to an agency that is expected to be a full partner (or even more) on projects . The District ' s ability to do more, in terms of joint park planning and influencing private land use, is limited mainly by lack of staff time. Thus, focus is placed upon those matters that are "hottest" at the time. Fortunately, relationships with city, county, and other agency staffs are generally very good, and District staff ' s opinion is respected and often sought out . 2.2 CRITICAL ISSUES The primary critical issue is whether the degree of success we enjoy in influencing the decisions of other agencies is sufficient, and whether allocation of more resources would pay off commensurately. The cities and counties often find themselves now in a funding squeeze with a shortage of staff and financial resources. These agencies want to do more but have fewer resources and are more interested in cooperative projects of their own. An example of this is the Santa Clara County Parks and Recreation Department which now approaches the District for funding help on projects ("turn around is fair play" ) . They and local citizen groups look to the District for leadership (and funding if possible) on local projects such as the St . Joseph' s and St. Patrick' s properties and the recent Cupertino bond issue. Report 91-66 Page 11 2.3 RECOMMENDED OPTIONS TO CONSIDER 1 . Allocate more Board and staff time to enhance contacts with public and non-profit agencies. 2. Enter into cooperative management agreements to gain more efficient use of staff . 3. Enhance joint planning for adjacent preserves and parks. 4 . Foster more planning on a regional scale among the District and parks agencies. 2.4 STAFFING IMPLICATIONS This program area is broad and requires participation of many District employees and the Board. Additional time allocated to these needs by the general manager, acquisition, planning, field operations , and public communications staff would need to be replaced. Report 91-66 BASIC POLICY OBJECTIVE: The District will follow a land management policy that provides proper care of open space land, allowing public access appropriate to the nature of the land and consistent with ecological values. 3.1 Where We Are Now 3.2 Critical Issues 3.3 Recommended Options to Consider 3.4 Staffing Implications Page 12 Report 91-66 Page 13 3.1 WHERE WE ARE NOW Preserve Use and Condition: District lands continue to grow in popularity. Staff is observing increasing use at all preserves regardless of location or level of development. Preserves in close proximity to urban areas such as Rancho San Antonio, Fremont Older, and St. Joseph's Hill have had use patterns established that most likely reach or exceed appropriate carrying capacities . Rancho San Antonio County Park is the most heavily visited county park in the system. The adjacent District preserve is both the probable major cause and recipient of the impacts of that use. Our more remote preserves have also increased in popularity, with use patterns tending to favor weekends and holidays. Visitor improvements in the Skyline area have encouraged greater use in both the developed preserves and the nearby undeveloped and less emphasized district lands. At our most popular preserves, the District is facing resource degradation resulting from the impacts of overuse. Specific concentrated or heavy uses such as mountain bicycling and horseback riding are also resulting in impacts requiring increasing levels of maintenance. Resource restoration of newly acquired lands degraded by past uses also continues to be an unmet need. Public Access and Site Development: Site development capital improvements continue to provide for greater public access. Basic improvements such as parking areas, restrooms, and well marked trail systems , along with increased publicity, encourage a greater cross-section of our constituency to visit District lands. The growing popularity of the areas illustrates the success of our more recent comprehensive development projects at Purisima Creek Redwoods and Skyline Ridge preserves. Numerous isolated smaller capital improvement projects continue to be completed by the planning and field staff to provide for safe visitor use and to enhance the open space experience. Visitor Safet y and Liability: All in all , District preserves have been relatively free of visitor safety problems . However, there has been a significant increase in trail related injuries in the past three years. The growth in popularity of mountain bicycling clearly accounts for the increased accident rate. These accidents primarily involve a Report 91-66 Page 14 single visitor, because of excessive speed, failing to negotiate the physical features of a trail . Although accidents do not occur regularly, staff continues to be concerned about accidents involving more than one visitor, which typically result in injury to the more passive user. Multiple uses and their intensity present a potential for increased accidents and, therefore, an ever-growing concern for safety of the public and liability exposure for the District. In an effort to reduce loss claims due to the physical conditions staff is in the process of formulating a site safety inspection program. All sites will be inspected at the time of acquisition, with follow-up inspections annually. It should also be recognized that although the great majority of preserve users are responsible citizens, the District does lie within an heavily urbanized area and anti-social behavior does sometimes occur on District lands. 3.2 CRITICAL ISSUES Responsible Stewardship: We must provide for the protection and enhancement of these lands placed in the public trust. Board policy, which supports levels of use consistent with protection of ecological values , supported by sound land management practices and adequate staffing levels , can result in responsible stewardship. Public Access: The future level of use and development of sites brings up several questions regarding staff ' s ability to provide responsible stewardship. Will the District continue to develop public access and interpretive facilities at the same level we have over the last 10 years? To what extent should attempts be made to increase or publicize use? Will the District be able to keep pace with the increased demands for recreational open space? What impact does site development and subsequent (or anticipated) increased use have on acquisition funds , operating costs, and eventually the natural resource itself? Visitor Use Levels: Can increasing use levels on key open space lands be controlled or directed to less popular areas? Is the Site Emphasis Policy effective or should it be revised or even dropped? What is the proper balance between increased use and the associated costs, both in terms of dollars and resource degradation? Should certain sites be closed to public use or even landbanked as a way a ' Report 91-66 Page 15 of controlling funds and problems associated with the impact of public use? Types of Uses: Uses permitted on District lands must be consistent with ecological values such that the types and levels of use can be indefinitely sustained without significant damage to the resource. Borderline or more intensive (e.g. , bicycles) uses can only be permitted if the impacts can be mitigated by increased maintenance. Resource management policies and plans, including site resource inventories, are being developed to help in deciding uses and levels of use. Visitor Awareness: Ecological values and proper use of open space must be conveyed to the visiting public through education and by enforcement of use regulations. 3. 3 RECOMMENDED OPTIONS TO CONSIDER 1 . Identify those critical factors, immediate and long term, that need to be addressed for proper stewardship of District lands. 2. Develop and implement an open space management organizational structure and staffing plan to meet the District ' s needs in the nineties . 3. Develop comprehensive resource restoration plans, following adoption of resource management policies, seeking funding to help prepare and implement the plans. 4. Adopt and implement Trail Use Guidelines regarding physical trail standards , designation of trail uses , safe use of trails , signing, public education, etc. 5. Develop a volunteer foot, equestrian, and bicycle patrol program to provide a greater presence on District land and assess costs and benefits of staff bicycle or equestrian patrol . 6. Evaluate and utilize existing local volunteer organizations to complement, enhance, and structure the District ' s programs . 7 . Utilize the docent program to present a greater variety of interpretive activities and educational opportunities to a Report 91-66 Page 16 broader cross-section of the District ' s constituency (e.g. , Junior Rangers , Whole Access activities, other youth programs) . 8. Support increased volunteer activities with the staffing necessary to organize and manage the activities. 9. Increase efforts to utilize adjacent state, county, and city parks staff to aid in District site management through reciprocal management agreements and planning studies. 10 . Develop and implement a comprehensive risk management program that includes continuing training for planning and field staff on identification and mitigation of liability problems. 11. Explore alternative methods and funding to provide for site maintenance needs. Consider an Adopt-A-Trail or other similar programs to encourage citizen and corporate involvement. 12. Implement a maintenance management plan for District preserves. 13. Review existing management policies to evaluate site use restrictions or closures, including landbanking, as potential methods to reduce or limit impacts to resource, funding, and management needs . 3. 4 STAFFING IMPLICATIONS Considerable attention has been given by staff to splitting open space management into two departments , planning and operations. A redefinition of some positions, creation of new ones , and additions to the number of authorized positions within certain categories are also included in proposals for restructuring. In the planning section, for example, the addition of the equivalent of three full-time positions has been recommended to meet present and future needs. Planning staff feels that more staff time is needed for acquisition planning to cover both major area studies and site specific reports. In addition, reviews of proposed plans, environmental documents, and local policy matters regarding open space for projects coming through counties and cities could use much more planning time and surveillance than we can currently offer. The operations section proposal also identifies additional staffing needs. Restructuring of the section would strengthen department administrative and support services , provide for a Report 91-66 Page 17 more decentralized management scheme, increase supervisor- employee contact, and provide support to the increased use of volunteers. In addition, restructuring would also provide for the expected growth in field staffing. The current proposal recommends the addition of the equivalent of two and one-half positions to the operations staff . Report 91-66 Page 18 4. BASIC POLICY OBJECTIVE: The District will educate and make clearly visible to the public the purposes and actions of the District, and will actively encourage public communications and involvement in District activities . 4.1 Where We Are Now 4. 2 Critical Issues 4. 3 Recommended Options to Consider 4 .4 Staffing Implications Report 91-66 Page 19 4.1 WHERE WE ARE NOW One of the most important strengths we have is our relationship with the public. We communicate with our constituents in a variety of ways: 1) day-to-day contact with field and office staff , 2) publication of printed materials such as newsletters, trail brochures , and maps , 3) articles in area newspapers , 41 presentations of slide shows and talks , 5) participation in local , regional , and national conferences , 6) cooperation with other agencies and organizations on projects of mutual interest, 7) meetings with legislators and other public officials, 8) special events , 9) telephone responses , and 10) docent and volunteer contacts. Public outreach is the term we use to describe all the efforts needed by the District to establish a solid base for public awareness and support for the District 's activities , including potential funding measures, and for citizen and legislative action to support District programs . The District 's public outreach program has grown over the past few years; however, additional growth would be needed to make substantially more midpeninsula residents aware of the District, its preserves, and its role in preserving the quality of life here on the peninsula. We anticipate having an extra measure of public interest in the District ' s programs as a result of better visibility during the 20th Anniversary. Our lobbying efforts in Sacramento have been very successful and should continue throughout the next decade. 4 .2 CRITICAL ISSUES Approval by the voters of a supplementary funding measure will require additional public information efforts to explain the need. The increased public demand for more frequent, updated preserve information and maps requires more staff time for public contact and thus impacts staff time availability for more proactive activities. We need to maintain that delicate balance between informing the public about the preserves and maintaining visitor use of the preserves at a level permitted by budget and staffing, consistent with the District ' s primary objective in acquiring land before it is lost to development. This does not mean hiding the preserves , but it may mean explaining to the public why facilities are not Report 91-66 Page 20 being developed at a faster pace. tll Since tomorrow' s protectors of public open space are today' s children, there is a substantial need, and, I hope, opportunity to develop joint programs with our schools . 4.3 RECOMMENDED OPTIONS TO CONSIDER 1 . Establish a program to garner the public support needed if a funding measure is to be approved by the voters. 2 . Establish a comprehensive public outreach program, including increased public information about the benefits of open space protection, the District ' s accomplishments , and need for continued support. 3. Publicize need for sensitivity to preserve the ecological values , animal and plant life, on District preserves . 4 . Commit additional time of general manager, Board, and staff to political liaison at local, state, and federal levels. 5. Increase specific public outreach and awareness programs to protect District preserves from threats of adjacent development. 6. Publicize a public youth environmental education and participation program that will concentrate on involving organizations such as the Environmental Volunteers, Boy Scouts, and Audubon Society, and teachers at the elementary school , high school, and college levels. 7 . Increase public outreach efforts and resources to secure support of local citizens and politicians through editorial and news articles explaining the District ' s position on local events. 8 . Position the District as a model of land preservation nationally through placement of District-written articles in national publications, including professional magazines of American Society of Landscape Architects, American Institute of Planners, California Parks and Recreation Society, National Recreation and Parks Association, etc. 9. Focus publicity and special events on those sites where more use can be readily accommodated. 10. Actively involve the District in Open Space America and regional open space efforts. Report 91-66 Page 21 11. Examine possibility of special publication to increase public awareness and support. 12. Develop multi-cultural programs and publications. 4.4 STAFFING IMPLICATIONS In order to evolve from a Public Communications Program to a Public Outreach Program, additional staff needs to be considered. Use of consultants for special events and various contract work should be examined to determine cost effectiveness . The District's current volunteer programs, based in Open Space Management, also provide public education about the preserves. They also require communications and marketing support services from public communications staff . It is important to evaluate the extent to which the volunteer programs require additional staff support, particularly field staff and public communications staff , to be successful. Report 91-66 Page 22 5. BASIC POLICY OBJECTIVE: The staff will administer the affairs of the District in behalf of the public so as to maximize accomplishment of the goals of the District within existing financial constraints. 5.1 Where We Are Now 5.2 Critical Issues 5.3 Recommended Options to Consider 5.4 Staffing Implications Report 91-66 Page 23 5. 1 WHERE WE ARE NOW Since the District' s formation, the General Management and Program Support section has had overall responsibility for administering" the affairs of the District in behalf of the public so as to maximize accomplishment of goals of the District within existing financial constraints . " Because of the District ' s commitment to a maximum acquisition effort, District staff has, in accordance with the Board 's Basic Policy, worked to "keep administrative expenses low by operating with a limited staff and by utilizing the help of already existing governmental and private agencies and contractual services. " Today, in 1991, the District is at a crossroads . All potential funding sources must be explored so that the greenbelt can be completed. All potential legislative contacts must be initiated and nurtured so that the legislative channel can be used to augment District funding. The District must continue to provide the natural "wilderness" experience that existing and new preserve users have and will come to expect. The District has, in essence, come of age -- it is no longer the "mom and pop" organization that it was fifteen years ago. It is now a recognized public entity among decision-makers in the midpeninsula area; it is looked upon as the primary organization responsible for preserving open space in Santa Clara and San Mateo Counties; it has come to the forefront nationwide as the type of agency that can be established to preserve open space. The staff , now numbering forty-five, is the District ' s greatest asset. These assets include both unrepresented employees and those represented by S.E. I .U. Local 715. As stated in the Basic Policy, "the District will employ a highly capable and professional staff and provide them with the facilities and resources needed to run an efficient and responsible organization. " We are at a critical point of evaluating staff needs in all programs. The Organizational Improvement Program now underway ties directly into needs in terms of organizational structure. 5.2 CRITICAL ISSUES Staffing, organization, and staff support by General Management and Program Support are critical issues for the Board to address for the 1990 ' s . In order to meet the District 's acquisition and major funding needs, adequate staff resources must be available to pursue all possible options, whether at the local , state, or national level. At the same time, adequate staffing must be Report 91-66 Page 24 available on the "homefront" on a day-to-day basis to support the Board and District ' s growing staff and operational needs. (The use of consultants is limited, except for specialized experts, particularly in the personnel-human resources arena where day-to- day needs must be met. ) In all departments, staffing resources must be carefully examined. Potential growth must be strategically planned. If , for example, the general manager is to play a leading role in laying the foundation for a supplementary funding measure in 1992 and/or expand and enhance the District ' s visibility among local , state, and national legislative leaders, then the day-to-day decision-making void created while the general manager pursues these critical endeavors must be filled. Since it can only be assumed that the staff size will grow over the next ten years , issues related to meeting and servicing the Board' s and staff ' s needs must be addressed. 5. 3 RECOMMENDED OPTIONS TO CONSIDER 1 . Reorganize, and augment if necessary, District staff to meet Strategic Plan goals. 2. Set into motion a plan to augment current District funding. 3. Increase Board involvement in potential liaison with federal , state, and local officials. 4. Establish a comprehensive staff development and training program. 5. Involve the District via Board members and staff in regional planning underway for the midpeninsula area. This document , the proposed Strategic Plan for the Nineties , and the Board' s involvement in determining specific District goals for the 1990 's will serve as the catalyst for change and the base for recommended solutions . In implementing the Strategic Plan for the Nineties , each specific goal or solution must be viewed in terms of its impact on a given program, on all other District programs , and on the District ' s funding abilities . 5. 4 STAFFING IMPLICATIONS Report 91-66 Page 25 Additional administrative staff is required to effectuate the various solutions proposed in this report. Day-to-day operational staffing needs must be addressed, and some existing current workloads must be redistributed. PUTTING IT ALL TOGETHER All of the preceding options , or a selection of them, could be consolidated into two objectives for the nineties, as follows: 1. We would increase District visibility to the public, emphasizing what the greenbelt plan is, what has already been accomplished, what needs to be done, and what financial resources are needed beyond those now available to the District. 2. We would present a supplementary funding measure to the voters, possibly as early as 1992, the District ' s Twentieth Anniversary. A successful measure would provide the District with the ability both to acquire additional lands and to develop public access amenities to District sites on an accelerated schedule. The regular District funds freed up by the supplementary funds would also enable the District to provide substantial increases in patrol , maintenance, site planning, and nature interpretation. THE BOTTOM LINE Increased funding, therefore, is to be the primary focus of the Strategic Plan for the Nineties in order to complete the greenbelt, while responding to the other needs of the District ' s constituents. Since this report has not differentiated between plans with and without additional funding, it is critical that new programs and staffing levels considered prior to increased funding be assessed relative to the risks of incurring additional expenditures and, therefore, decreased available land acquisition funds . 1-10 Land Purchase Priority Determination 4-2 CR,TTICALLY Comprehensive IMPORTANT EReorg- Public outreach Community Prgrm 5 9-1lan Public Survey for Funding Measure 1-1 1-11 3-2 Supplemental Acquisition Organizational Local Funding outside Structure Measure District 4 3-1 Examine Level of Stewardship 3-10,12 (care of land) Comprehensive Risk Mgmt Prog. Allocate staff time 1-2 Statewide Funding 5-3 Sources Gen Mgr's Poli- tical Liaison VERY Activities IMPORTANT 3 4-4 Politicdl Liaison Contact Legis. NOW 1 - 2 YEARS 3 - 4 YEARS 5+ YEARS 3-3 Resource Mgmt. (Sept) 3-5,6,7,6,11 2 Volunteers i IMPORTANT I 2-1,2,3,9 a09 ' 1 Work w/cities; O.S.Mgmt ' I Expand Inter- ' agency i I