Work Session Agenda Washington State Parks and Recreation Commission
Wednesday May 18, 2016 Moses Lake Best Western 3000 West Marina Drive, Moses Lake, WA 98837
Commissioners: Chair Steve Milner, Vice-Chair Mark O. Brown, Secretary Ken Bounds, Doug Peters, Rodger Schmitt, Cindy Whaley and Patricia Lantz. Director: Donald Hoch
Time: Opening session will begin as shown; all other times are approximate.
Public Comment: This is a work session between staff and the Commission. The public is invited but no public comment will be taken. No decisions will be made by the Commission at the work session.
9:00 a.m. CALL TO ORDER – Mark Brown, Commission Vice-Chair • Call of the roll • Changes to agenda
9:05 a.m. LOGISTICS • Meeting and Evening Functions
9:10 a.m. CHELAN PUD – Mike Sternback, Assistant Director • This item provides an opportunity to engage Chelan PUD staff in the cooperative relationship with Parks operated PUD parks.
10:00 a.m. BREAK
10:10 a.m. OPERATING BUDGET – Shelly Hagen, Assistant Director; Mike Sternback, Assistant Director; Peter Herzog, Assistant Director and Daniel Farber, Policy and Government Affairs Director • This item provides information regarding implementation of the 2016 supplemental operating budget and the development of the 2017-19 operating budget. • Request Legislation with fiscal impact will also be discussed.
11:45 p.m. CAPITAL BUDGET LIST –Peter Herzog, Assistant Director and Richard Brown • This item provides an update addressing the 2017-19 Capital Budget request. Staff will present a list of projects for Commission discussion
12:30 p.m. LUNCH
1:00 p.m. HUMAN RESOURCES UPDATE – Becky Daniels, Human Resources Director
Washington State Parks 2014-2019 Strategic Plan – (2016 Update – Draft May 5, 2016) Page 0
• This item provides updates on important Parks Human Resource statistics and other Human Resource activities and plans.
1:35 p.m. SAINT EDWARD SEMINARY UPDATE – Michael Hankinson, Parks Planner • This item provides the Commission an update on staff’s efforts towards rehabilitation of the St. Edward Seminary and public input received on the project.
2:15 p.m. PARK STATEWIDE ACQUISITION & DEVELOPMENT OUTREACH - Peter Herzog, Assistant Director and Nikki Fields, Parks Planner • This item updates the Commission on the plan for internal and external outreach to develop the Statewide Acquisition and Development Plan.
2:45 p.m. BREAK
2:55 p.m. JOHN WAYNE PIONEER TRAIL UPDATE – Randy Kline, Parks Planner • This item provides the Commission with an update on the Iron Horse State Park Trail/John Wayne Pioneer Trail planning project.
3:30 p.m. FENCING & AGRICULTURE POLICY– Andrew Fielding, Eastern Region Parks Steward • This item provides the Commission with background information on the complexities of fencing and agricultural leases along the John Wayne Pioneer Trail
4:00 p.m. COMMISSION LAW ENFORECEMENT POLICY – Mike Sternback, Assistant Director • This item provides the Commission with an opportunity to discuss upcoming changes to Commission Law Enforcement Policy 60-91-1 to align with recently adopted changes to RCW 79A.05.160 which clarifies Commissioned Park Ranger authority and jurisdiction.
4:30 p.m. NON-RECREATIONAL USE OF STATE PARKS – Mike Sternback, Assistant Director • This item provides the Commission with a brief information update and opportunity for dialogue on non-recreational use of parks by agencies and organizations.
Commission Meeting Agenda Washington State Parks and Recreation Commission
Thursday May 19, 2016 Moses Lake Best Western 3000 West Marina Drive, Moses Lake, WA 98837
Commissioners: Chair Steve Milner, Vice-Chair Mark O. Brown, Secretary Ken Bounds, Doug Peters, Rodger Schmitt, Cindy Whaley and Patricia Lantz. Director: Donald Hoch
Time: Opening session will begin as shown; all other times are approximate.
Order of Presentation: In general, each agenda item will include a presentation, followed by Commission discussion and then public comment. The Commission makes decisions following the public comment portion of the agenda.
Public Comment: Comments about topics not on the agenda are taken during General Public Comments.
Comments about agenda topics will be taken with each topic.
If you wish to comment at a meeting, please fill out a comment card and provide it to staff at the sign in table. The Chair will call you up to the front at the appropriate time. You may also submit written comments to the Commission by emailing them to [email protected] by 5 p.m. on May 13, 2016.
9:00 a.m. CALL TO ORDER – Steve Milner, Commission Chair • Flag Salute • Call of the roll • Introduction of Staff • Recognition of State and Local Officials • Approval of the Agenda • Approval of minutes of previous meeting: March 31, 2016 - Olympia
9:10 a.m. COMMISSIONER REPORTS
9:50 a.m. STAFF REPORTS
10:30 a.m. PUBLIC COMMENTS: Pre-Arranged Speakers • None
10:30 a.m. GENERAL PUBLIC COMMENTS: Topics not on the agenda
10:50 a.m. BREAK
11:00 a.m. REQUESTED ACTION • Item E-1: Washington Administrative Code (WAC) This item asks the Commission to approve the proposed revisions to chapter 352-37 of the Washington Administrative Code (WAC).
11:15 a.m. REQUESTED ACTION • Item E-2: 2016 Update to the 2014 – 2019 Strategic Plan This item asks the Washington State Parks and Recreation Commission to approve 2016 revisions to the 2014-2019 Washington State Parks Strategic Plan.
12:00 p.m. LUNCH
12:30 p.m. REQUESTED ACTION • Item E-3: Recreation Business Activity Pilot Sites This item asks the Washington State Parks and Recreation Commission to designate Recreation Business Activity sites at two state parks to permit privately financed development of recreational facilities.
1:30 p.m. REQUESTED ACTION • Item E-4: 2017-19 Operating Budget This item asks the Washington State Parks and Recreation Commission to provide direction for 1) the total amount requested in the 2017-19 Operating Budget proposal that will be submitted to the Office of Financial Management (OFM) and 2) submittal to OFM of any agency request legislation with potential fiscal impacts. .
2:15 p.m. REQUESTED ACTION • Item E-5: Updated Director Position Description This item asks the Washington State Parks and Recreation Commission to approve the Director’s May 4, 2016 position description before submission to the Washington State Human Resources Office
2:55 p.m. BREAK
3:05 p.m. REPORT • Item E-6: Financial Update This item reports to the Washington State Parks and Recreation Commission on the status of: 1) State Parks’ 2015-17 Biennium operating and capital budget and expenditures, and 2) Parks Renewal and Stewardship Account (PRSA) revenue collections.
3:45 p.m. REPORT • Item E-7: Proposed 2017 Regular Meeting Schedule for the Washington State Parks and Recreation Commission This item asks the Washington State Parks and Recreation Commission to review the suggested meeting dates and locations for their regular 2017 meeting schedule.
EXECUTIVE SESSION
ADJOURN MEETING
Item E-1: Washington Administrative Code (WAC), Chapters 352-37, Ocean Beaches – Requested Action
EXECUTIVE SUMMARY: This item asks the Commission to approve the proposed revisions to chapter 352-37 of the Washington Administrative Code (WAC). This item aligns with Agency core values and advances the Commission Transformation Strategy, “Adopting a business approach to park administration”.
SIGNIFICANT BACKGROUND INFORMATION: As part of an ongoing biennial WAC review which considers suggestions from park visitors, user groups, and field staff, staff reports to the Commission possible WAC changes to 352-37, Ocean Beaches.
STAFF RECOMMENDATION: Staff recommends the Commission adopts the WAC revisions per the attached Appendix.
LEGAL AUTHORITY: RCW 79A.05
SUPPORTING INFORMATION: Appendix 1: 352-37, Ocean Beaches
REQUESTED ACTION FROM COMMISSION: That the Washington State Parks and Recreation Commission: 1. Declare this meeting to be a public hearing to adopt proposed changes to chapters 352-37, Ocean Beaches as shown on Appendix 1. 2. Consider the data, views, and arguments submitted by any person on the proposed rules as published in the Washington State Register and as further modified herein. 3. Formally adopt the proposed changes to Chapters 352-37, Ocean Beaches as shown on Appendix 1. 4. Authorize the Director to file the regulations and to comply with all necessary procedural requirements.
Author(s)/Contact: Mike Sternback, Assistant Director [email protected] (360) 902-8661 Diana Dupuis, Operations Manager, Operations [email protected] (360) 902-8847
Reviewer(s): Jessica Logan, SEPA REVIEW: Jessica Logan, SEPA REVIEW: Following review, staff has determined that the action proposed for the Commission by staff is exempt from the State Environmental Policy Act (SEPA) pursuant to WAC 197-11-800(19). Christeen Leeper, Fiscal Impact Statement: Approval of changes to this WAC will have no fiscal impact. Michael Young, Assistant Attorney General: 05/03/2016 Mike Sternback, Assistant Director
Approved for Transmittal to Commission
______Don Hoch, Director
APPENDIX 1
WAC 352-37-020 Definitions. Whenever used in this chapter the following terms shall have the meanings herein defined unless the context clearly indicates otherwise: "Aggregate" shall mean a mixture of minerals separable by mechanical or physical means. "Aircraft" shall mean any machine designed to travel through the air, whether heavier or lighter than air; airplane, dirigible, balloon, helicopter, etc. The term aircraft shall not include paraglider or remote controlled aircraft. "Campfires" shall mean any open flame from a wood source. "Camping" shall mean erecting a tent or shelter or arranging bedding, or both, between the hours of 11:00 p.m. and 6:00 a.m.; or parking a recreation vehicle or other vehicle for the purpose of remaining overnight. "Commission" shall mean the Washington state parks and recreation commission. "Concentrate" shall mean the valuable mineral content separated from aggregate. "Concentrator" shall mean a device used to physically or mechanically separate the valuable mineral content from aggregate. "Director" shall mean the director of the Washington state parks and recreation commission or the director's designee. "Driveable beach" shall mean that area of the ocean beaches lying between the upper or landward limit of the hard sand area and the clam beds. "Dry sand area" shall mean that area lying above and to the landward side of the hard sand area as defined in this section. "Excavation site" shall mean the pit, furrow, or hole from which aggregate is removed to process and recover minerals or into which wastewater is discharged to settle out sediments. "Fire" shall mean any open flame from any source or device including, but not limited to, campfires, stoves, candles, torches, barbeques and charcoal. "Ganged equipment" shall mean two or more pieces of mineral prospecting equipment coupled together to increase efficiency. An example is adding a second sluice to a high-banker. "Geocache" means geocaches, letterboxes, and related activities. Geocaching is an outdoor treasure hunting game in which participants (called geocachers) use a Global Positioning System receiver or other navigational techniques to hide and seek containers (called "geocaches" or "caches"). "Hand-held mineral prospecting tools" shall mean tools that are held by hand and are not powered by internal combustion, hydraulic, or pneumatics. Examples include metal detectors, shovels, picks, trowels, hammers, pry bars, hand-operated winches, and battery- operated pumps specific to prospecting; and vac-pacs. "Hard sand area" shall mean that area over which the tide ebbs and flows on a daily basis; and which is sufficiently hard or firm to support the weight of, and to provide unhindered traction for, an ordinary passenger vehicle. "High-banker" shall mean a stationary concentrator that can be operated outside the wetted perimeter of the body of water from which the water is removed, using water supplied by hand or by pumping. A high-banker consists of a sluice box, hopper, and water supply. Aggregate is supplied to the high-banker by means other than suction dredging. This definition excludes rocker boxes. "Hovercraft" shall mean a powered vehicle supported by a cushion of air capable of transporting persons. "Intimidate" means to engage in conduct which would make a reasonable person fearful. "Long Beach Peninsula" shall mean that area of the ocean beaches as defined in this section lying between Cape Disappointment on the south and Leadbetter Point on the north. "Mineral prospecting equipment" shall mean any natural or manufactured device, implement, or animal (other than the human body) that can be used in any aspect of prospecting for or recovering minerals. "Motor vehicle" shall mean every vehicle that is self- propelled. For the purposes of this chapter, a motor vehicle must be approved for highway use in accordance with Title 46 RCW. "North Beach" shall mean that area of the ocean beaches as defined in this section lying between Damon Point on the south and
Cape Flattery on the north. "Obstruct pedestrian or vehicular traffic" means to walk, stand, sit, lie, or place an object in such a manner as to block passage by another person or a vehicle, or to require another person or a driver of a vehicle to take evasive action to avoid physical contact. Acts authorized as an exercise of one's constitutional right to picket or to legally protest, and acts authorized by a permit issued pursuant to WAC 352-32-165 shall not constitute obstruction of pedestrian or vehicular traffic. "Ocean beaches" shall mean all lands fronting on the Pacific Ocean between Cape Disappointment and Leadbetter Point; between Toke Point and the south jetty on Point Chehalis; and between Damon Point and the Makah Indian Reservation, and occupying the area between the line of ordinary high tide and the line of extreme low tide, as these lines now are or may hereafter be located, and, where applicable, between the Seashore Conservation Line, as established by survey of the commission and the line of extreme low tide, as these lines now are or may hereafter be located, or as defined in
RCW 79A.05.605, provided, that the ocean beaches shall not include any lands within the established boundaries of any Indian reservation. "Pan" shall mean an open metal or plastic dish that can be operated by hand to separate gold or other minerals from aggregate by washing the aggregate. "Parasail" shall mean a parachute-type device attached to a rope pulled by a motor vehicle, resulting in the participant being lifted from the ground by the force of the wind. "Person" shall mean all natural persons, firms, partnerships, corporations, clubs, and all associations or combinations of persons whenever acting for themselves or by an agent, servant, or employee. "Placer" shall mean a glacial or alluvial deposit of gravel or sand containing eroded particles of minerals. "Power sluice" shall mean high-banker. "Power sluice/suction dredge combination" shall mean a machine that can be used as a power sluice, or with minor modifications as a suction dredge. "Prospecting" shall mean the exploration for minerals and mineral deposits. "Riffle" shall mean the bottom of a concentrator containing a series of interstices or grooves to catch and retain a mineral such as gold. "Rocker box" shall mean a nonmotorized concentrator consisting of a hopper attached to a cradle and a sluice box that can be operated with a rocking motion. "Seashore conservation area" shall mean all lands now or hereafter under state ownership or control as defined in RCW
79A.05.605. "Sluice" shall mean a trough equipped with riffles across its bottom which can be used to recover gold and other minerals with the use of flowing water. "South Beach" shall mean that area of the ocean beaches as defined in this section lying between Toke Point on the south and the south jetty on Point Chehalis on the north. "Spiral wheel" shall mean a hand-operated or battery-powered rotating pan that is used to recover gold and minerals with the use of water. "Suction dredge" shall mean a machine that is used to move submerged aggregate via hydraulic suction. Aggregate is processed through an attached sluice box for the recovery of gold and other minerals. "Wetted perimeter" shall mean the areas of a watercourse covered with flowing or nonflowing water. "Wind/sand sailer" shall mean a wheeled, wind-driven recreational conveyance.
Item E-2: 2016 Update to the 2014 – 2019 Strategic Plan – Requested Action
EXECUTIVE SUMMARY: This item asks the Washington State Parks and Recreation Commission to consider adoption of a 2016 update to the 2014-2019 Washington State Parks Strategic Plan. This item aligns with Agency core values and advances the Commission Transformation Strategy “Demonstrate that all Washingtonians benefit from their state parks”.
SIGNIFICANT BACKGROUND INFORMATION: Almost all state agencies, including Washington State Parks, are required to have up-to-date strategic plans. The Office of Financial Management expects strategic plans to
“… focus on how an agency will achieve statewide results and mission-critical outcomes. Strategic plans remain a key "connector" linking statewide results, the work of state agencies, and requests for resources to carry out strategies.”
The Commission adopted the current strategic plan in July 2014. Since that time, there have been significant changes to the fiscal condition of the state parks system, measurable progress in meeting agency goals, and changes to the operating environment. All these changes warrant revisions to the plan.
After reaching out to various stakeholders in previous months, and engaging in conversation with the Commission at several work sessions, holding a public hearing at the March Commission meeting on a previous draft and engaging with the Office of Financial Management staff on their perspectives and suggestions, staff has prepared a draft 2016 plan update (See Appendix 1). While the update includes a series of technical and data changes, it’s most significant proposed changes from the earlier March draft include:
1. Updates on the Director’s statement to reflect revised data 2. Adding materials on the growing issues around forest health and natural tree diseases 3. Adding elements to the Parks Foundation-Agency relationship and expectations 4. Adding specific references to the Recreational Business Activity (RBA) and Enterprise Lands real estate policy approaches that the Commission is currently pursuing 5. Adding descriptors and policy initiatives around the concept of demographic diversity 6. Clarifying aspects of the goals and attributes of a health park system 7. Clarifying the two major agency commitments described in the plan 8. Clarifying and enumerating the most significant challenges facing the agency in the latter half of the planning period 9. Adding a new sub-section, describing the 2017-19 strategic priorities of the agency that includes a prioritized list of six areas for investment.
SUPPORTING INFORMATION: Appendix 1: May 4 Draft 2016 Update to the 2014-2019 Washington State Parks Strategic Plan
LEGAL AUTHORITY: RCW 79A.05.030(1)
REQUESTED ACTION Of COMMISSION: That the Washington State Parks and Recreation Commission: 1. Adopt the draft 2016 Update to the 2014-2019 Washington State Parks Strategic Plan, as shown in Appendix 1.
Author(s): Daniel Farber, Policy and Governmental Affairs Director [email protected] (360) 902-8504
Reviewer(s): Jessica Logan, SEPA REVIEW: Following review, staff has determined that the action proposed for the Commission by staff is exempt from the State Environmental Policy Act (SEPA) pursuant to WAC 197-11-800 (14)(h). Shelly Hagen, Fiscal Review: There is no direct fiscal impact from this proposed action. Michael Young, Assistant Attorney General: 05/03/2016
Approved for Transmittal to Commission
______Don Hoch, Director
Moving Toward a Healthy and Sustainable Washington State Parks System
Strategic Plan 2014 – 2019 (2016 Update – DRAFT May 5, 2016)
((Note: Graphics/pictures to be added to final version after approval by Commission))
Washington State Parks and Recreation Commission Ken Bounds - Mark O. Brown - Patricia T. Lantz - Steve Milner Doug Peters – Rodger Schmitt – Lucinda S. Whaley
Agency Director Don Hoch
Director’s statement
As our nation and state continue to put the losses of the Great Recession behind us, State Parks staff and the Commission, along with supporters from Washington’s recreation and conservation communities, dedicated partners at the State Parks Foundation and 19 committed State Parks friends groups, can stand tall in the knowledge that they have helped the park system weather incredible challenges.
We are beginning to rebuild during this current fiscal cycle, with a budget that represents a step in the right direction for the park system. A modest increase in public financing support is helping us move toward health and greater stability as we apply modern business practices, market the park system and work with partners.
Our Transformation Strategy, adopted in 2013 to drive operational change, has resulted in some successes, new insights and a refined focus you can read about in this Strategic Plan. We recap the history of where we have been on this sometimes perilous journey and share perspectives we have gained along the way. We also share our accomplishments and growing awareness of emerging conditions and concerns that must be considered as we look to the future. Some are highlighted below: • From 2009 to 2015 State Parks increased its earned revenue by more than double – from less than $20 million per year to over $50 million. • A 2015 study concludes that annual state park visits generate $1.4 billion in total economic contribution, $31 million in local tax revenue and $64 million for the state General Fund. • State Parks today relies on about 80 percent of its budget from earned revenue (fees, donations, leases, etc.), with about 20 percent from tax sources – a virtual flip from a decades-long financing tradition. • Environmental and global conditions pose challenges that State Parks must consider as it cares for its resources today and plans for the parks of the future. • Washington’s population continues to grow (projected at 21 percent over the next 20 years), raising questions about the capacity of today’s park system to meet future needs. • State Parks’ complex mission includes caring for a diverse array of natural and cultural resources that are iconic and essential to the heritage of our state but do not generate revenue. In the past year, our hard work seems to be starting to pay off. Now we must maintain this momentum, because there is much parks can do to improve people’s lives. With continued support from the public, our parks partners, the Governor and the Legislature, we remain committed to creating and sustaining a healthy park system that current and future Washingtonians can enjoy and proudly support.
See you in the parks!
Don
Washington State Parks Mission
The Washington State Parks and Recreation Commission cares for Washington’s most treasured lands, waters and historic places. State parks connect all Washingtonians to their diverse natural and cultural heritage and provide memorable recreational and educational experiences that enhance their lives.
Washington State Parks Vision
Washington’s state parks will be cherished destinations with natural, cultural, recreational, artistic and interpretive experiences that all Washingtonians enjoy, appreciate and proudly support. Culture and core values
The State Parks work environment
In interacting with one another, the Commission, staff, partners, supporters and volunteers foster a collaborative culture in which people: • Maintain a working environment to nurture innovation • Encourage risk-taking and accept responsibility for outcomes • Respectfully challenge assumptions and work traditions • Respectfully honor their colleagues’ diverse cultural heritage • Give and accept constructive criticism • Adopt a ‘yes, and’ approach in discussions • Accept that conflict between ideas may be a necessary step toward finding solutions • Act with civic courage and the highest ethical standards • Invest in training and professional and personal development • Take pride in the work, mission and resources they steward.
The Washington State Parks and Recreation Commission, its staff, partners, supporters and volunteers share core values that demonstrate a commitment to: • Stewardship that preserves the state’s natural and cultural heritage in perpetuity • Universal access to recreational, educational, artistic, and cultural opportunities in state parks • Meaningful public engagement and participation in developing and operating the state park system • Supporting one another by working together to achieve the Commission’s mission • Quality and value in all work accomplished.
Who we are and what we do
The Washington state park system is one of the largest, most diverse – and most beautiful – in the country. With more than 120,000 acres, the system includes 125 developed parks, including 19 marine parks, 11 historical parks, 35 heritage sites, 13 interpretive centers and approximately 500 miles of long-distance recreation trails. There are state parks in nearly every county in the state and within an hour’s drive from home for almost all Washingtonians. Parks lie along rivers, freshwater lakes and Puget Sound shorelines. State Parks manages lands along the Pacific Ocean seashore; Central Washington’s desert shrub-steppes and river gorges; and Eastern Washington’s channeled scablands, river corridors and the Selkirk mountains.
According to the most recent estimates, state parks receive more than 30 million visits a year. These visits generate an estimated $1.4 billion overall in annual economic contribution to the state and $64 million in state general fund tax receipts.
The state park system is managed by a seven-member citizen commission from various parts of the state, appointed by the Governor to serve staggered, six-year terms. The Commission sets policy for the system and hires an agency director, who in turn manages all aspects of agency operations.
Washington State Parks’ expertise is in providing sites where people can enjoy a broad array of healthy outdoor recreation activities. Year-round activities include camping, hiking, boating, mountain and trail biking and horseback riding. Winter recreation activities include down-hill and cross-country skiing, snowshoeing, snow-joring, dog-sledding and snowmobiling. Over the years, Washington’s state parks have become known as world-class locations for recreation enthusiasts pursuing activities such as long-distance kayaking, windsurfing and wind-sailing, diving, paragliding and rock climbing. As new trends develop, State Parks strives to meet the needs of recreation enthusiasts while ensuring protection of natural and cultural resources.
The agency also manages statewide recreation programs that are not limited to agency-managed lands. This responsibility includes management of the federally funded Boating Safety Program and the fee- supported Winter Recreation program. The agency also approves the design of ski lifts and carries out regular public safety inspections.
State Parks strives to enrich the visitor experience through educational and interpretive events and activities designed to connect them to the diverse natural and cultural heritage of their state. Washington State Parks interprets the Ice Age floods that carved Washington’s landscapes; works with tribes to tell the stories of native people; provides multi-media history exhibits so that visitors can learn about early explorers such as Lewis and Clark; offers a glimpse of what life was like on military forts constructed during the administrations of presidents Pierce, Lincoln, McKinley and two Roosevelts; and preserves the stories and park structures built by the Civilian Conservation Corps and Works Progress Administration during the Great Depression.
Washington State Parks strives to balance services geared to the health, education and enjoyment of people with the stewardship and care of natural and cultural resources. The lands managed by the Commission are precious and varied. Acre for acre, these Commission-managed lands represent the greatest concentration of species of conservation concern (endangered, threatened, sensitive, imperiled or vulnerable species) held by any public or private entity in Washington. More than 10 percent of park lands contain rare plant and/or animal species, and more than 40 percent of park landscapes have plant associations classified at least at moderate risk within our state or globally.
Water is essential to all types of habitat, and just over half of the uplands in state parks are within 600 feet of a surface water source. State Parks manages 19,800 acres of wetlands, 2.1 million lineal feet of riparian habitat and 15,800 acres of significant habitat supporting rare plants, animals or both. The agency manages 4,799 acres of Natural Area Preserves and 13,173 acres of Natural Forest Areas.
State Parks has over 2,800 buildings – more than one-quarter of all state-owned buildings. Most of these buildings are small but isolated and expensive to maintain. There are more than 770 identified historic properties under State Parks’ care. These include military forts with their Victorian-era officer’s residences, historic homesteads and ranch buildings, a comprehensive set of lighthouses, a historic seminary building and grounds and an array of cultural landscapes and sites listed on the Washington Heritage Register and National Register of Historic Places.
State parks are like small cities, with law enforcement, public works and facility management responsibilities. Besides structures, the agency manages and maintains 300 miles of roads, 140 watercraft launches and park infrastructure that includes more than 100 wells and water systems and hundreds of sewer and septic systems.
Core public services As numerous studies have confirmed, parks benefit all people. They contribute in immeasurable ways to personal well-being, by enhancing physical and mental health. They strengthen the fabric of civilized society by enhancing community, family and spiritual bonds. Through environmental education and interpretation, children and adults alike learn about our environment and are inspired to participate in caring for the long-term health of our planet. In addition, visits to state parks benefit everyone by contributing over $1.4 billion a year in economic value for stronger local and state economies and delivery of government services. Outdoor Recreation State Parks provides beautiful and inspiring venues that connect Washingtonians and their visitors with the great outdoors. State Parks focuses on creating opportunities for natural heritage-based outdoor recreation with interpretive facilities, wildlife-viewing areas and informal picnicking and gathering spots for families, friends and community groups. State Parks also specializes in providing active recreation opportunities, through trails and trail systems for walkers, bicyclists and equestrians wheelchair-accessible trails and sites; access to water for boating, windsurfing and windsailing; and an array of winter recreation sites and activities. State Parks also offers more immersive experiences with camping and overnight stays. There is an outdoor recreation option for every taste and for every visitor, whether undertaking a day trip or a weekend away.
Statewide Recreation Programs State Parks serves the recreating population outside agency-managed lands through its statewide programs. The cross-state trails program coordinates opportunities for hikers, bicyclists and equestrians on trails that spread over hundreds of miles and eventually will allow a cross-state, east- west traverse. Its Winter Recreation program administers the state’s system of Sno-Parks and trails, for non-motorized and motorized winter recreationists. State Parks oversees the state’s federally funded Boating Programs, which include boating safety and education, in coordination with a variety of stakeholder groups and law enforcement agencies across the state.
Natural Heritage Protection State Parks preserves the diverse natural resources of our state for the benefit of all people and for future generations. This includes conserving rare plant and animal species and preserving unique habitats and landscapes that are significant for their beauty and for their part in advancing our state’s overall environmental health and quality. State Parks uses its expertise in science, its arbor crews, and stewardship staff to manage forest health activities, fire fuel reduction and weed control efforts in parks throughout the state.
Cultural Heritage Preservation State Parks keeps the past alive by providing public access to sites and programs that connect people to their cultural heritage. State Parks preserves the state’s most iconic and representative historic structures, sites, districts and intact cultural landscapes. Examples include historic military forts from the 19th and early 20th century; historic markers; Olmstead Homestead and Dalles Mountain Ranch; the Jackson House territorial courthouse; Cama Beach State Park, a historic fishing resort; and Civilian Conservation Corps-era parks and features in many parks.
Natural and Cultural Heritage-Based Education/Interpretation State Parks offers educational and interpretive opportunities in the state’s most important natural and cultural heritage sites and provides one-of-a-kind opportunities for scientific research and fieldwork education. State Parks provides natural and cultural education opportunities in many parks around the state, with specific destination offerings at several interpretive centers and sites.
For example, the Lewis and Clark Interpretive Center at Cape Disappointment State Park provides interactive displays and tells the story of the Lewis and Clark expedition. The interpretive centers at Sun Lakes/Dry Falls and Gingko Wanapum state parks, together with interpretive displays in other Ice Age Floods Trail parks provide visitors an intimate perspective of the iconic floods that carved much of Washington’s landscape thousands of years ago. Sacajawea State Park Interpretive Center at the confluence of the Snake and Columbia rivers brings focus to the place where people of many tribes gathered for centuries. Goldendale Observatory provides astronomy education and interpretation. Sites such as Olmstead Homestead State Park are the classroom for those wishing to learn about early homesteads and farming practices.
Arts and Cultural Events State Parks develops, protects and enhances special venues of unsurpassed beauty and cultural significance where people gather for cultural celebrations, commemorations and other opportunities to experience and perform enlivening examples of artistic expression. State Parks works with a variety of cultural and arts organizations to present a full program of Folk and Traditional Arts in the Parks events, to celebrate and help citizens understand and connect with their state’s rich and diverse cultural heritage.
Environmental conditions and trends
Washington State Parks is not alone in striving to understand the changing environment in which it operates. Other federal and state agencies that provide outdoor recreation and natural resource stewardship face the same challenge of rapidly shifting demographics, social changes, political dynamics, climate and related changes, and competing interests for financial support.
State Parks has considered the larger factors and forces at work in creating this Strategic Plan. Here are some of the notable factors:
Physical environmental considerations
Outside forces affect Parks: Parks are established and stewarded to provide the public access to the beauty of nature and insights into their cultural heritage. Yet that beauty and heritage are constantly threatened. Noxious exotic plants invade park vegetation communities, urbanization spreads to park boundaries and global-scale climate alteration stresses habitats and threatens sea-based infrastructure. Cultural and natural heritage preservation efforts must be active and ongoing. The roles of parks as both learning laboratories and oases for natural and cultural heritage are likely to take on more and more importance in the coming years.
Natural processes cause dynamic change: Tree diseases such as laminated root-rot and seasonal forest fires have already led to decisions to close some state park campgrounds temporarily and permanently. These and other natural processes create pressures on agency operations and policies. Considerations may include moving recreational facilities out of areas of high safety risk, modifying the environment to maintain facilities, or otherwise reducing public exposure to risks.
Protection priorities: A central challenge for parks is to set preservation and restoration priorities. Since financial resources are finite, it is important to preserve the most significant cultural sites first. Likewise, Parks must protect those natural habitat areas that show the greatest promise for resilience. Park facility design should maximize the impact of park resources on people as it minimizes the impact of people on those resources.
Government policy and fiscal considerations
State parks benefit the economy: Visits to Washington’s state parks generate jobs, tourism and business and tax revenues for the state. In 2013, the Outdoor Industry Association reported that two- thirds of Washingtonians participate in outdoor recreation each year and that $22.5 billion is spent annually on outdoor recreation in our state.
A follow-up study commissioned by State Parks in 2015 showed that half of Washingtonians visited a state park in the previous two years. State park visits generate more than $64 million to the State General Fund each year and contribute more than $1.4 billion to the state’s economy. What’s more, the data clearly demonstrates that this economic contribution has the effect of transferring economic activity from urban portions of the state to rural areas.
Public funding shift between 2009 and 2013 put parks system at risk: The 2009 to 2013 legislative policy changes in State Parks’ financing base happened quickly. They also were dramatic, shifting the agency from a budget relying on 70 percent of operating revenue from taxes, to an operation 80 percent reliant on revenue from use fees and donations. The State General Fund share for State Parks declined from $94.5 million in 2007-09 to $8.7 million in 2013-15. During this time, staffing and program reductions resulted in layoffs of one-third of permanent, full-time staff throughout the system. Parks made tough decisions and acted fast to keep parks open by moving to a more seasonal structure and spreading staff more thinly. The legislature repeatedly asked Parks – through budget proviso- mandated reports - whether a budgetary policy goal of moving the system toward 100% self- sufficiency was possible. The Commission asserted that that goal was neither sustainable nor feasible and that stable public funding was necessary to achieve the kind of a healthy parks system the public demands. During that time, public service, visitation and economic stimuli were at risk, while facilities continued to degrade due to lack of resources for maintenance.
Boosting earned revenue: State Parks and the public responded powerfully and effectively to legislated mandates to earn revenue through fees and donations. As the Commission continued to make the case that a balance of public funding would be needed for a healthy park system, it continued to do what it could to meet its fiscal needs. Between 2007 and 2016, earned revenue more than doubled, from $20 million to more than $50 million annually. Overnight accommodation revenue increased by 24 percent from 2011 to 2015, as the agency went to more of a demand-responsive pricing system. Discover Pass revenue increased by more than 30 percent during that same period. The Discover Pass is now generating the fourth-highest revenue of any state park day-use fee in the country and second-highest per-capita in the country (NASPD AIX, 2014-15).
While earned revenue has risen, it still has not made up fully for the loss in tax support that started in 2007-09. As the Discover Pass matures into an accepted part of the financing for not only State Parks, but also other state recreation lands, budget writers should expect the most likely future for fee revenue to vary somewhat due to annual weather patterns, but overall remain close to existing levels. No significant rise in future fee revenue should be expected. Today, the nationwide trend among state park systems includes a mix of stable public funding, together with use fees. No park system of comparable size and mission to Washington’s system relies solely on use fees.
Not everything makes money, but everything should produce value: While State Parks may charge recreation access and service fees, a meaningful and significant part of its mission – natural and cultural heritage protection – does not directly generate revenue. These core activities result in benefits to all and are essential for sustaining the state’s environmental health, vibrant economy, quality of life and legacy for future generations. It is in these functions that are unrelated to visitor access and use, where the Commission has concluded most strongly that general public financial support is the most appropriate funding mechanism.
Unforeseen events, legislative mandates and business costs: The park system can be dramatically affected by such events as storms, fires and natural disasters. For example, storms in 2007 destroyed bridges across the Chehalis River in Southwest Washington, and in 2015, fires closed Alta Lake and several other state parks. Wildfires threaten lands and park visitation every summer. Forest diseases can cause unplanned recreation closures, associated downturns in revenue, as well as additional expenses and staffing challenges. Legislative budget provisos, biennial mandates and other unexpected obligations may limit Parks’ authority, increase costs, and redirect resources. Cost increases such as rising salary and health care costs, regulatory costs and rising utility and equipment costs must be factored in when assessing the capacity for service fees to meet or cover program costs.
Capital needs: In addition to sufficient operating funds, State Parks needs a strong capital budget to protect the state’s investment. For the first time in 2013, State Parks developed a comprehensive digital facility condition inventory, called the Facility Condition Index. The FCI is a percentage measure of a fully healthy physical plant for all structures, roads and utilities in the park system. From 2013 to 2015, with support from the Legislature and Governor, the agency was able to increase its FCI from 60.5% to 61.4%. About half of the maintenance backlog involves historic properties. Sustained and adequate capital funding will be necessary to catching up and getting the condition of the park system to a healthier level. State Parks must maintain quality facilities in order to accommodate and encourage visitation, retain revenue from service and access fees and achieve operational efficiencies.
Knowing our customers
A changing Washington: While population growth is static or declining in some states, Washington continues to experience population growth and associated pressures from development and urbanization. The State Office of Financial Management (OFM) reports that the state’s population will increase 21 percent over the next 20 years. During that period, Washingtonians also are expected to be more ethnically diverse, about 90 percent urban, and older, as an increasing lifespan and generational changes lead to the doubling of the 65-plus population. Currently, participation rates in outdoor recreation are lower amongst the elderly and some ethnic and racial minorities.
If State Parks is to meet its mission to connect all Washingtonians to their state’s heritage, the agency will need to respond in ways that are welcoming and relevant to citizens. The agency is committed to creating an equitable, hospitable, appreciative, safe, and inclusive park environment – one that embraces the full spectrum of community members' contributions. The Commission makes this commitment because: • Celebrating diversity is a way to appreciate and value individual differences • A diverse workforce will more effectively serve an increasingly heterogeneous society • Diversity in our staffing and programs helps ensure the relevance of a state park system, its mission, properties, and programs.
The Commission encourages and supports staff efforts to reach out to people of all races, national origins, abilities, religions, sexual orientations, veteran status, ages, and genders who use the parks and who live in communities near parks. The Commission is dedicated to offering quality experiences to all visitors through a workforce and volunteer corps that reflects the diversity of Washington.
People do not want parks commercialized: When conducting public outreach to help develop the Transformation Strategy and this Strategic Plan, State Parks received a clear and consistent message from people around the state: They love their state parks, and they do not want them commercialized or changed substantially. As a result, the Commission has created advertising policies that distinguish between in-park advertising and advertising on web sites and in written materials. The policy for in- park advertising places strict limits on commercialism, in order to ensure the protection of f the visitor experience in parks. In-park advertising is intended only to generate support for and information about park concessions and other visitor services.
What people do want – rest, renewal and connection: In survey after survey, including the 2013 Washington State Comprehensive Outdoor Recreation Plan, principal recreation pursuits remain tant in Washington State. People want places to walk, bike and ride horses. They want to get on trails. And they like to be near, in and on the water. Passive recreation is far more popular than active, organized recreation. More than 40 percent of Washingtonians go camping from time to time. Arts and cultural celebrations remain vital draws, along with experiences that provide a meaningful connection with history and culture or that provide learning opportunities. Many report that access to quiet and beautiful natural places is essential for personal renewal and the social wellbeing of people in our state.
Visitor feedback: Through its reservation camping system, State Parks has a ready method for surveying campers for feedback to help us make improvements. Visitors have responded positively to increased numbers of cabins, yurts and vacation house rentals; these are considered solid capital investments that enable State Parks to upgrade services and increase revenue. Ongoing surveying is used to understand the desires of the majority of visitors – those who visit parks during the day.
People expect the benefits of technology: For many years, the trend was for parks to be “technology- free zones,” where the concerns of daily life could be put aside to relax, recreate and enjoy nature. This attitude has shifted nationwide, and park systems around the country are embracing certain technologies that enhance services, expand communications and connections and advance core missions. State Parks is making greater use of technologies that provide customer information and services through web sites, apps and other new modes.. Apps and web-based information can replace the need for costly, on-site interpretive displays that degrade in weather and quickly become out of date. Parks must compete for people’s leisure time. This requires a balance – using technologies to entice visitors seeking a real experience and enhancing the experience when they get there, versus technologies that replace a site visit with a “virtual” one. Meanwhile, greater investment in advanced technologies will help agency efforts to meet customer needs.
Creative and effective partnerships
Working with sister agencies: The Commission recognizes that State Parks cannot finance the park system all by itself, nor can it keep up with the demands of a large and diverse park system without engaged partners. State Parks must work effectively with partner agencies and organizations that provide similar or related services. One example is the Discover Pass program, managed collaboratively with the Washington Department of Fish and Wildlife and the Department of Natural Resources. In another, State Parks works with the Departments of Health and Fish and Wildlife on recreational shellfishing communication and access. State Parks works closely with other state agencies, counties, cities and public utility districts on joint or related projects in order to deliver the best possible public service most efficiently.
Collaborating with tribes: State Parks has a history of collaborating with native tribes on cultural and natural resource protection and cultural events. New efforts are increasing collaboration on interpretation and events and even basic park management. An example is a unique co-ownership and co-management arrangement with the Swinomish Indian Tribal Community at Kukutali Preserve, where joint development and preservation efforts are proving successful. Parks also is working with the Nisqually Tribe to provide access to trails at Nisqually State Park and to tell the tribe’s story. The annual intertribal canoe journey frequently stops at state parks, where the agency is a proud host.
Linking State Parks to broader recreation, education and conservation purposes: The lands and waters of state parks meet multiple public interest objectives. State Parks campgrounds, trails and picnic areas serve as way stations for anglers, hunters, bird watchers and climbers. Its wetlands, escarpments, prairies and old growth forests, serve as habitat for larger systematic natural system conservation. Its amphitheaters and historic structures are the sites for “in field” research and the education of children and adults in our common schools and universities. The State Parks “No Child Left Inside” grant program, administrated in coordination with the Recreation and Conservation Office, fosters connection between our state’s youth and the great outdoors.
Volunteers: Washington State Parks has a long tradition of engaging volunteers to help leverage resources and make parks welcoming to visitors. In 2013, volunteers contributed nearly 229,000 hours, serving as campground hosts and helping with trail and other projects. While it is recognized that the park system cannot run solely on volunteer efforts, these dedicated park users make significant contributions to the quality and breadth of system services.
Parks Foundation and friends groups are essential: The Washington State Parks Foundation raises public awareness and financial support for park projects and programs. Contributions include development of Cama Beach State Park, opened in 2008, and construction projects along the Willapa Hills Trail in 2016, funding for the Folk and Traditional Arts in the Parks program and special events. In close coordination with Parks leadership and field staff, the Foundation supports a Parks Improvements Grants program that helps to fund small park improvements throughout the system. Meanwhile, 19 incorporated friends groups associated with specific parks around the state work closely with staff to support and improve parks. The Foundation has stepped up to help new friends groups form and support parks. It stands ready as a fiscal agent to assist in programs and projects and to foster relationships that friends groups or the agency itself are less able to pursue.
Business relationships and partnerships: State Parks has dozens of concession and lease agreements with commercial businesses, which provide equipment and services supporting the agency mission (boat rentals, firewood, etc.) Recently, State Parks signed a unique lease agreement to co-manage Fort Worden State Park. A non-profit, quasi-governmental entity, the Fort Worden Public Development Authority (PDA) is managing the “campus” portion of the park that encompasses lodgings and rental buildings, while State Parks continues to manage the park’s natural areas and campground. The arrangement encourages fund-raising by the PDA to improve the large collection of historic buildings onsite. Fort Worden is considered unique in this arrangement. Future partnership arrangements will need to fit the special circumstances of each park.
The agency is cautiously and systematically exploring partnership options where mission-aligned investment and development may more feasibly be accomplished by other public or private entities. To that end, the Parks Commission is initiating pilot projects for the concepts of “Recreational Business Activity” sites (RBAs) and “Enterprise Lands” in the next few years. RBAs are mission-aligned recreational facilities and/or programs developed and managed by the private sector within state parks. Enterprise Lands are properties owned by State Parks, inappropriate for park purposes but potentially could be used to generate an income stream for parks operations if developed by outside parties. In exploring these creative real estate agreements, State Parks will keep the focus on providing facilities and services that meet immediate needs for public recreational access, while maintaining the long-term public interest of land stewardship and fiscal health.
Workforce issues
Reorganizing to make things work: As a result of the fast shift in financing between 2009 and 2012, a series of deep system-wide staffing and program reductions were made, and the agency was in survival mode. Most recently, some public funding was restored and earned revenue increased through agency, partner, and public efforts. This has allowed State Parks to make investments in facility maintenance and improved customer service. Between 2013 and 2016, the agency was able to move away from a workforce structure too dependent on seasonality. Workload and retention issues related to this level of seasonal staffing had threatened the capacity and stability of the operation. Parks is currently making another shift toward a geographically based area management structure that will allow greater sharing of resources among groups of parks. The new structure also allows for greater specialization of staff functions and provides more opportunities for park managers to make productive and necessary connections with local communities.
Law enforcement: Park rangers are fully commissioned law enforcement officers who provide public safety services. Investment in training and equipment is essential to provide this service for the public. The new operating structure focuses on enhancing the skills of officers and placing law enforcement staff where they are needed most.
Streamlining and LEAN: State Parks continues to be actively engaged in LEAN management efforts, investing staff time and resources to streamline processes, save time and increase efficiency in day-to- day business. The agency has embraced the philosophy of continuous improvement in agency business processes. LEAN offers an opportunity to eliminate unnecessary steps in processes and free staff time for essential, mission-related work.
Labor relations: Most of the workforce is covered by a labor contract, and State Parks values collaboration with the Union to find solutions when challenges arise. It is important to note that reductions and downsizing during the 2009 to 2012 period put a strain on this valuable relationship and created new challenges. Even as the agency has begun to reinvest during the 2013 to 2016 period, some employees who had been through years of layoffs are anxious and remain nervous about the future. In this climate, transformation activities that call for new businesslike approaches and greater use of appropriate partnerships can be sources of stress for employees concerned about job security. Agency leadership is sensitive to these concerns and is working to bring about workforce stability and health by improving park quality, increasing attendance and defining clear and vital roles for park staff. It is essential for the agency to remain committed to open communications and creative, active and ongoing partnerships with its employees.
Diversity: State Parks is committed to recruiting, developing and retaining a diverse, high-performing workforce and maintaining a work environment that is inclusive and respectful. Diversity is multi- dimensional and covers a broad spectrum, from race and ethnicity, to gender and sexual orientation; from socio-economic status and physical abilities, to age and religious beliefs. By eliminating barriers to growth and opportunity, each employee can contribute his or her full measure of talent. By building capacity to deliver innovative and effective services to all the people of Washington, State Parks will be more successful. The overall goal is to have a workforce and visitor base that reflect the diversity of all of Washington’s residents..
Training: State Parks believes it is essential to invest in its employees and help them grow through training and staff development. Required training is provided in such areas as law enforcement, ethics and information technology. Parks is again investing in position-appropriate professional development training after the difficult budget years, restoring the Stewardship Certification Program and the statewide maintenance conference and empowering managers to provide needed and effective training across the board for their employees to enhance skills, increase productivity and improve morale across the agency.
Staff longevity and experience: State Parks has a large percentage of core staff who have remained with the agency for years. This longevity and depth of experience has served the agency well but has a downside; many agency employees will be eligible for retirement within the next five years. Concerns include dramatic loss of institutional knowledge and costs of impending sick-leave and vacation leave cash-outs. Resources and succession planning are needed to address these concerns.
Strategic response The August 2012 State of State Parks report and the March 2013 Transformation Strategy provide context and background for the agency’s strategic direction over the next six years. What emerge from those documents are clear descriptions of the agency’s Mission, Vision, Culture, Core Values and a comprehensive set of strategies and initiatives. The strategies are geared toward making rapid and meaningful change and creating a successful foundation that can be sustained long-term. The mission, vision and core values help to ensure that quality and public trust and confidence are maintained.
This section of the Strategic Plan adds to those previous documents with a description and rational for specific strategic goals and a listing of near-term actions that advance those goals. The response is structured as follows:
• Defining a healthy and sustainable state park system - Putting a finer level of detail to the agency mission and vision, this description of a healthy and sustainable park system forms the basis for transformational aspirations. Moving toward such a healthy system is the fundamental and overarching goal expressed in this strategic plan. • Measuring health – Converting definitions of park health into measurable indicators that can inform budgeting is an administrative challenge that will take time to complete. Progress on that effort has begun. • Strategic commitments - Basic assumptions about the size and scope of the parks system and the financing of that system are stated. Without those assumptions, there is no basis for understanding the fiscal and programmatic costs of moving toward a healthy and sustainable future parks system. • Strategic priorities - Broad direction is expressed through a set of strategies. These are taken directly from the Transformation Strategy (which is adopted by reference into this Strategic Plan as Appendix A). Biennial priorities are expressed here. o 2015-17 prioritized initiatives and performance measures - For the 2015-17 biennium, priority initiatives and performance measures for each of the seven Transformation Strategies are presented. These are a subset and update of the initiatives listed in the Transformation Strategy o 2017-19 Strategic priorities: For the 2017-19 biennium, the agency expresses a set of investment priorities that shore up its core services while adding to future capabilities. o Organizing for strategic mobilization - The agency has reorganized its staff structure to mobilize for Transformation and act with strategic intention. That structure, in the form of an organizational chart, is presented as Appendix B.
Defining a healthy and sustainable state park system
Years of restricted budgets and the dramatic cost reductions have left the system in need. The Commission is committed to advocating for needed resources and doing all within its power to establish and sustain a healthy park system that benefits all people now and into the future. Some attributes of a healthy park system are described below.
Parks in good physical condition
• All state parks are open and accessible, meeting established and publicly acceptable service levels, and providing visitors a healthy and safe environment. • All park facilities are well cared for and functioning for their intended purpose. Restrooms are clean. Grounds are well-maintained. Boat launches, utility campsites and other overnight facilities meet industry standards for quality and effectiveness. Recreation trails, picnic sites and other day-use areas are well-maintained. Infrastructure services such as water, sewer and electrical systems are working and meet all health and safety standards. • The natural and cultural heritage features in each park are protected from degradation and managed for long-term sustainability.
Parks provide opportunities for recreation, enjoyment, health and learning
• The state park system as a whole offers a diverse array of active outdoor recreation choices for visitors, including but not limited to hiking, camping, bicycling, picnicking, boating, wildlife viewing, horseback riding, rock climbing and winter recreation activities such as cross-country skiing, snowshoeing, ski-joring and dog sledding and snowmobiling. • Parks provide beautiful natural settings for passive recreation such as picnicking, wildlife watching and personal learning through interpretive features and displays. • State Parks facilities and programs promote individual and community health and wellness. • State parks and facilities are easily accessible for day and overnight use for visitors of all ages and abilities. • State Parks provide opportunities, as appropriate to the site, for all people – but particularly our youth - to connect with, learn about, and create memorable experiences from the state’s significant natural and cultural heritage.
State Parks’ resource care and protection mission fulfilled
• Biological communities, including forests, wetlands, plant communities, habitats, seashore conservation and natural areas are healthy and well cared for. • Historic properties contributing to the state’s cultural heritage are appropriately preserved, treated and interpreted for the public. • Architectural and cultural resources are protected and conserved in perpetuity as part of the state’s cultural legacy and managed appropriately for scientific and interpretive use.
Staffing and customer service meet public expectations
• State park offices, interpretive and visitor centers are open and welcoming during reasonable hours. At full-service parks, visitors have access to park staff during their visit. • Customer service that meets established and publicly acceptable service levels is provided by staff and/or agents of the agency who are pleasant, knowledgeable and efficient. This includes customer reservations, access to information, reservations and purchasing of use permits such as the Discover Pass, whether online, over the telephone or in person. • Administrative and support services are adequately resourced to enable staff to efficiently and effectively carry out the agency mission, meet legal requirements, operate with the highest ethical standards and minimize public liabilities and risks.
Public and community engagement in all meaningful decisions
• Parks and program staff throughout the agency have the skills, time and resources to engage with the public, stakeholders and, in the case of parks, their local communities. • State Parks engages with the tourism industry, local governments and park departments and other partners to promote parks and tourism offerings, recognizing that visits to state parks generate business for local communities and add significantly to the economic health of the state.
Measuring a healthy and sustainable state park system
Distinct from many other services, it is extraordinarily challenging to establish consistent, measurable standards for public parks. Each park is distinctive, with highly varied uses, public expectations, cost- drivers, and revenue potential. Nevertheless, when competing for public funds, the Legislature, the Governor and the public want to know what services will be provided at different levels of tax support. If more money is provided, what services will be available that wouldn’t be available with less money?
State Parks is committed to continuously improving its quantitative indicators of service level. For some parameters, progress over the past few years has been substantial and important. The Facility Condition Index (FCI) system created in 2014, allowed Parks for the first time to provide quantitative, system-wide and up-to-date analysis of the condition of its infrastructure, including an estimate of the costs of facility deficiencies. The FCI can be directly applied to a number of the goal statements above, that define a healthy and sustainable system.
A goal for the agency is to have measurable indicators that describe well the services it delivers for the public. As those quantitative measures are developed, they will be incorporated into future strategic plans and other reporting materials to the Governor, the legislature and the public.
Strategic commitments
The Commission strives to create and maintain a state park system that the public enjoys and proudly supports, now and into the future. The Commission has identified the following commitments that will drive agency decision-making for the duration of this Strategic Plan:
Commitment 1: Size and scope of the state parks system
Public expectations and sentiments about the size of the state park system have been clear; any significant reduction in the size of the system is not acceptable. Population growth also will continue to increase demand for additional parks and recreational opportunities. While the agency will continue to review its land base to identify sites that may not be suitable for park purposes, the Commission aims to provide a system of parks that is large enough and diverse enough to connect all Washingtonians to their state’s natural and cultural heritage, while meeting demand for varied recreation experiences from a growing and changing population.
The Commission strategy for land acquisition and development is focused both at the local level and statewide:
• Park-level long-term boundaries • System-level inventory and gap analysis
At the park level, the Commission commits to continue developing long-range plans for each of its parks and properties. These plans include Commission-approved long-term park boundaries that identify properties around existing state parks that should be managed consistent with park purposes. Long-term park boundaries are defined by:
• In-holdings or adjacent properties that contribute to the park’s mission and that the Commission seeks to manage in the future; • Adjacent or nearby properties the Commission would like to manage cooperatively with others. Existing agency-owned properties that do not contribute to the park’s mission and therefore may be suitable for surplus through transfer, sale, or lease.
At the system level, the Commission intends to meet its responsibilities and fulfill its statutory mandate to acquire lands and develop new parks in an intentional and comprehensive manner, while engaging local communities and partners in achieving its mission. The Commission envisions a state park system that represents the landscapes, stories, and activities that are distinctively Washingtonian. The Commission intends to target acquisitions and developments in places that meet one or more of five goals:
• Places to be: Connecting people with Washington’s iconic landscapes
State parks will be the places we all think of when we think of Washington: o Salish Sea shorelines o Rain forests o The Palouse o Ocean beaches o Columbia River Gorge o Puget Trough lowland forests o Dry forests o Shrub steppe o Glacial lakes o Channeled scablands o Wild rivers
• Stories to know: Engaging people with authentic Washington stories
State parks will tell the stories of this state’s people and places: o Ice Age floods o Native American history and culture o Lewis and Clark Exploration o Pioneer settlement, history and culture o Ethnic immigration, history and culture o Natural resource-based industries, such as logging, mining, fishing and shellfish harvesting o Coastal defense o Depression-era park design and development o Hydroelectric power o Agriculture o Railroads o Navigation o Aerospace
• Things to do: Providing Washington’s recreation mainstays
State parks will provide places to participate in the state’s most popular outdoor activities: o Walking and hiking o Cycling o Horseback riding o Picnicking o Fishing o Camping o Geocaching o Beach exploring o Boating o Skiing o Climbing
• Ways to grow: Inviting novices to experience Washington’s outdoors
State parks will serve as gateways for people new to outdoor recreation. State Parks can introduce people to new and different recreation modes and provide inspiration and information about other park destinations as their comfort and skills increase. Variety in exposure to new types of recreation can be found in: o Urban gateway parks o Marine parks o Water trails o Cross-state trails o Winter recreation areas
• Something for everyone: Improving the quality of life for all Washingtonians
State parks will provide benefits to all Washingtonians, not just those whot visit parks. These benefits include: o Personal health o Conservation o Economic development o Transportation o Environmental and heritage education o Community identity o Intergenerational continuity
The Commission will inventory its current land holdings for each of these goals to determine:
• What do we already have? • Do we have enough of it? • What don’t we have? • Does someone else have it, or would it be better for someone else to provide it?
Answers to these questions will allow the Commission to target its future acquisitions and developments in places that best connect the people of Washington to their natural and cultural heritage.
Commitment 2: Financing a healthy, sustainable state park system
A healthy, sustainable park system that satisfies public expectations requires broad-based financial support from park visitors, enterprises, partners, friends groups, volunteers, and all Washingtonians. For State Parks to operate as a public enterprise, it must constantly seek creative ways to engage users and supporters, and it must deliver services that people are willing to pay for. While there are potential fiscal benefits in “acting like a business,” State Parks must also keep true to its stated public mission and vision.
The 2013 Washington State Comprehensive Outdoor Recreation Plan (SCORP) document, strategic plans for various state parks systems and recently adopted federal direction on outdoor recreation all discuss the public’s concern about finding a proper balance between the realities of public finance and the essential demands of public purpose.
The 2014 Governor’s Blue Ribbon Parks and Outdoor Recreation Task Force report recommended that over the long term the Legislature should provide stable funding for Washington's state parks and other state recreation lands, facilities and programs. The recommendation was made in recognition that parks and other outdoor recreation resources provide essential public services. As such, the recommendation was that these resources should be supported primarily by General Fund revenues, with user fees supporting services that are primarily of benefit to the user. In the short term, the task force recommended additional revenue sources to meet the needs of State Parks, DNR and WDFW and to support the actions recommended in the Task Force report. Funding options included in the discussion were an annual motor home and travel trailer excise tax; a sales tax on bottled water; and the watercraft excise tax. If enacted, these sources were projected to raise an additional $100 million in revenues for the 2015-17 biennium. However, none of the new revenue sources was approved by the 2015 Legislature.
When asked through survey and outreach activities (See 2013 SCORP and related citations), Washingtonians have said repeatedly that they do not wish state parks to become overly commercialized or feel like private amusement parks. Most people see parks as oases from the bombardment of commercialism and the stresses of modern life. At the same time, the public has both expectations that there will be facilities and services in parks and resistance to paying taxes to support them. As it responds, State Parks must keep its mission central as decisions are made and actions implemented. The following principles will guide actions involving the services and funding of State Parks:
• Take no action that is inconsistent with the mission and vision of the agency. • Constantly pursue efficiencies in operation – actions that save money while providing the same or a higher level of service in the long-run. • Provide high-value services that enhance the visitor’s park experience, create connections and inspire memories. These services include basic health and safety infrastructure; recreational and interpretive facilities and programs; care and preservation of natural, cultural and historic resources; food and beverage services; overnight accommodations and recreational supplies. • Set fees for services to balance an acceptable level of user-financing with the desire for broad public access. In cases where those public services are the responsibility of all Washingtonians and provide broad benefits, financial support should come from public sources, and fees should be close to zero. In cases where services provide special or private benefit to consumers, set fees at market rate. • Actively support and promote the annual Discover Pass, camping, and other activities as great values for park visitors. At the same time, work with the Legislature, Governor and stakeholders to look comprehensively at outdoor recreation fee and fee-exemption systems and public finance mechanisms. The goals of this review should be to ensure state law and budgeting: 1) Support and expand use and enjoyment of public recreation lands by all citizens; 2) Develop consistent, equitable and effective exemption and pass programs that meet clear social policy objectives; and 3) Maintain and establish long-term adequate and sustainable public funding mechanisms.
Strategic priorities
The agency’s Transformation Strategy, written in 2013, has led to a rapid change in agency culture and priorities in a time of severe public funding reductions and a transition to a user fee financial model. The Transformation Strategy included seven overarching strategies:
1. Demonstrate that all Washingtonians benefit from their state parks 2. Adopt a business approach to park system administration 3. Provide recreation, cultural, and interpretive opportunities people will want 4. Promote meaningful opportunities for volunteers, friends and donors 5. Form strategic partnerships with other agencies, tribes and non-profits 6. Expand use of land holdings for compatible revenue generating purposes 7. Develop amenities and acquire lands that advance transformation
Each strategy was advanced through implementation of a series of initiatives. This Strategic Plan represents the next evolution of the agency’s transformation by incorporating the fundamental goals of the Transformation Strategy while focusing on, refining, and prioritizing strategic initiatives and investments. It provides a description for each initiative, related performance measures and accomplishments from the 2013-15 biennium, and new performance measures for the 2015-17 biennium. It is State Parks intention to update the initiatives and performance metrics every two years. It also provides a set of prioritized strategic investments for 2017-19 that shore up its core services while adding to future capabilities.
As State Parks makes needed investments and builds capacity, agency leadership knows there are significant uncertainties, risks and challenges that lie ahead. These include: • The anticipated loss of $10 million in Litter Tax revenue in 2017-19 that State Parks has received during the last two biennia, with no scheduled replacement • One-time use of cash reserves in 2015-17 that will not be available in future biennia • A nearly $500 million deferred maintenance backlog that needs to be addressed. • A lack of agreement between legislators, the Governor and park stakeholders on how to best finance the state parks system moving forward, including questions about the level of public funding; the flexibility, purpose and fiscal goals of agency fees and the creation of one or more dedicated public fund sources.
Despite the financial challenges, State Parks will continue to pursue the strategic direction outlined in this plan by: • Focusing strongly on customer service • Improving the condition and function of existing facilities • Embracing opportunities to improve the system through thoughtful acquisition and development, either through public funding or with the assistance of partners • Earning revenue from park users, lessees and partners to meet service needs • Seeking broad public financial and material support for the agency to meet its stewardship mission and resource protection obligations.
State Parks will take advantage of new opportunities that advance the mission and vision of the state park system and advance the goal of a healthy and sustainable park system. The following are State Parks’ 2015-17 Strategic Initiatives and 2017-19 Strategic Priorities.
2015-2017 Strategic Initiatives
Active Initiatives (Existing/Adapted or New)
Included in 13-15 strategic initiatives list
Italics New initiative
Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
1 Natural Heritage Assemble field data and • Develop materials and • Generated GIS model to assess • Use GIS model to develop develop a systematic methods to convey the condition of the agency’s natural restoration cost estimates to stewardship plan for significance of the plant communities and determine inform 2017-19 natural resources and threats they treatment priorities. resource budget request. protecting and restoring face, by December 2014, • Developed protocol for • Enlist 10 volunteers to natural plant and animal and begin outreach to monitoring resource condition in collect monitoring data by communities in state parks, stakeholder groups to significant habitats using GIS/GPS June 2016. conveying their significance enlist support for technologies. Added class to • Meet with five conservation to the public and enlisting stewardship efforts. Stewardship Training that provides organizations to discuss public participation and introduction to this technology implications of GIS modeling support in conserving them. and recruits citizen scientists to for statewide conservation assist with effort. Held first efforts. training May 2015.
Washington State Parks 2014-2019 Strategic Plan – (2016 Update – Draft May 5, 2016) Page 38
Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
1 Cultural Develop a systematic plan • Develop materials and • Compiled National Register of • Use Commission-approved Heritage for treatment and methods to convey the Historic Places properties, criteria to score all historic preservation of cultural significance of the cultural including level of significance and properties by April 2016. • historic properties in state and historic resources and date of designation. Meet with two historic their value to the public by • Compiled properties eligible for preservation organizations to parks, conveying their December 2014, and begin National Register. discuss the implications of significance and value to the outreach to stakeholder • Developed criteria for prioritizing the scoring. public, and enlisting public groups to enlist support historic properties and engaged • Incorporate scoring results participation and support in for stewardship. key stakeholders (DAHP, into 2017-19 capital budget preserving them. Washington Trust for Historic request. Preservation) in review. • In March 2015, Commission adopted prioritization criteria; staff is currently using these criteria to rank individual historic properties and incorporate priorities into a statewide historic property treatment plan. 1 No Child Left Re-establish the No Child • Re-establish the No Child • The Legislature appropriated $1 • Partner with RCO to award Inside Left Inside grant program Left Inside grant program million for the 15-17 biennium. grants by April/May 2016. that funds efforts to get through legislative funding • Selection criteria providing • Monitor Grant projects children outside to enjoy by July 2015. Propose emphasis to veterans were added. process. nature and outdoor program modifications • Ensure grant funds are experiences. The 2015 that integrate the program expended by June 30, 2017. Legislature provided $1 into broader agency • million for 15-17 biennium. Provide an end of biennium interpretive program progress report to the objectives and align with Commission. activities associated with the recently passed State Parks partnership bill. Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
1 Fish Passage Identify, evaluate and correct • Construct six (6) fish • Since July 2014, State Parks has Measure no longer needed barriers to anadromous fish barrier correction corrected nine culverts passage through an extensive projections by June 2015. • Four remaining culverts must be inventory and evaluation of corrected by the October 31, 2016 barriers; design and deadline imposed by federal court construct capital projects injunction. These culverts are that correct problems. currently in design/permit, with the construction planned for the 2016 work window. 1 Tourism and Develop working • Develop presentation • The agency’s new economic study Converted from biennial project Economic relationships with local materials that explain the “Economic Analysis of Outdoor to ongoing program governments, local tourism positive economic impacts Recreation at Washington State Development groups, Chambers of of park visitation to state Parks” was completed by Earth Commerce and economic and local tourism, by Economics in August 2015. development entities to help March 2015. • Attended Washington State market and support state • Meet with local Association of Counties Leadership parks. governments, chambers of Conference and shared state park commerce and local economic data with county tourism groups in at least officials. 10 areas of the state to • Attended 6 meetings with King present information and County Parks Directors, sharing explore new partnership state park information with 35 opportunities, by June regional county and city parks. 2015. Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
1 Communications Communicate our None in 2013/15 N/A By December 2016: accomplishments to the public in key areas, • Celebrating success: including revenue earnings, Complete a recognition plan facilities improvements, that defines options and capital project completion, methods for thanking customer service contributors and partners and improvements and progress celebrating accomplishments in stewardship efforts. with the public. • Touting our accomplishments: Report accomplishments to stakeholders twice a year, using communication and marketing outreach tools that include the agency website, online marketing newsletter and social media. • Benefits access: enhance customer service to qualifying veterans by reviewing and improving customer information for three agency discount pass programs. 2 Discover Pass The Discover Pass Business • Increase visitation to state • This measure has been exceeded. • Increase Discover Pass Plan initiative has been parks; this will be In fact, in FY2014 the agency sold program revenues by 3% updated to reflect the measured by a 1 percent more than 780,000 passes. annually • progress made in the per fiscal year increase of Refined Law Enforcement training Discover Pass and daily and approach to enforcement of program and the upcoming permit sales and by Discover Pass to improve overall efforts to continue to meeting the Results customer service. develop the program and Washington goal of increase revenues. 760,000 permits and passes sold in 2016. Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
2 Data Assess current agency data • Complete a report by • Phase 1 completed: The Data • Assess and streamline five Management collected through surveying January 2015 that includes Management Report was shared data collection forms by fall data collectors and users an inventory of data with executive leadership and the of 2017. • and identify ways to collection systems that are final report submitted in August to Continue to improve the used for agency business the executive sponsor. process for collecting streamline reporting from decisions; analyzing the Recommendations included vehicle/day use attendance parks. Improve the accuracy value, security, efficiency, investing in IT FTE to build a by: of park attendance data mechanisms for collection modern data warehouse and o Installing 50 TrafX collected for tracking and storage, and intranet reporting system that counters by July visitation. Develop low cost accessibility of each data would staff data management 2017, so they are but effective system for area; including specific requests. Phase 2, enhancing State established and recommendations to Parks “forms inventory” survey is operable. collecting customer improve the data on schedule for distribution the end Facilitating a feedback from park users. o management system. of February 2016. visitation Provide access to data in • Deploy new technology • Attendance Improvements: workgroup training central location accessible solutions to more o Conducted analysis to further assess to staff and the public. accurately report day use o Acquired and deployed 36 needs regarding attendance in parks by TrafX counters at 16 parks vehicle visitation July 2015. o Pilot concluded data collection. o Continuing to purchase and install additional counters o Visitation workgroup to meet in January 2016 to assess further needs • Customer Satisfaction Survey: (future details moved to Customer Service initiative) o Spring 2014, camping survey redesigned to include demographic data and more targeted information. • Continued analysis of data to gauge visitor satisfaction with state parks. Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
2 LEAN Evaluate administrative and • Complete three LEAN • Value Stream Mapping projects: Converted from biennial project Management operational processes within processes that create o CRT Process, March 2013 to ongoing program the agency and apply LEAN efficiencies, by July 2015. o Hiring of Seasonal Employees, September solutions to remove non- 2013 value added efforts o Time, Leave, and Attendance, February 2014 o Retreat center reservations, October 2014 o Bathroom Cleaning Process, April 23, 2015 o Policy and Procedure Process, June 30, 2015 o Time, Leave, and Attendance Data Base, November 2015 • LEAN principles have been used to make numerous less comprehensive changes to agency processes. Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
2 Sustainability Expand effort to analyze • Complete five or more • Completed state-wide water Converted from biennial project agency energy and resource park energy audits and meter survey, water usage and to ongoing program usage (electricity, fuel, identify and implement water rights data summary and water, etc.) and develop a resource use efficiency encouraged parks to conserve improvements that reduce limited water resources during the statewide plan that directs electrical load and provide 2015 statewide drought. specific sustainability energy use efficiencies by • Energy audits were completed at measures in parks so that 10% in at least five parks, 19 parks during the 2013-15 the agency achieves by June 2015. biennium, resulting in up to 75% efficiencies and reduces reduction in lighting loads for costs. those parks that installed energy efficient lighting upgrades. • Completed installation of new thermal windows for four parks buildings and installed LED lights at Lake Wenatchee State Park, utilizing the remainder of capital energy conservation funds. • Secured over $80,000 in energy rebate funds to be applied to future park energy conservation efforts. • State Parks has reduced GHG emissions primarily through building energy use reduction by 2,585 MTCO2e, a reduction of approximately 20% over six years. Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
2 Fees This initiative transitions all • Evaluate 2014 camping fee • Evaluation complete and prices • Measure YOY camping fees agency fee-setting into a system changes and revise were revised to simplify the tiers revenue tracked against YOY market-based system of as appropriate for the and increase revenues for 2015. bookings • • competitive rates for 2015 season. Marine-related service fees were Measure customer • Set marine-related service revised and adopted by the satisfaction trends using facilities and services. All fees and rates based on Director effective January 2015. survey data to ensure elements of this initiative complete cost of service • The annual Discover Pass was satisfaction ratings do not support the following goals: and fair market value for redesigned and a contract was decrease the 2015 season. signed with a new print and • Develop variable pricing • Setting service fees and • Re-design the Discover fulfillment vendor in 2015. structure for roofed rates based on demand Pass product to increase • Operations implemented fee accommodations, shelters, and fair market value. sturdiness and clarity and modifications. and ELC’s. • Creating new market distinguish it from the • Measure fees YOY for roofed opportunities WDFW Visitor Access pass, accommodations, shelters, • Harmonizing new fee with an eye toward a and ELC’s to ensure at least a policies with the product more easily sold 3% increase. Discover Pass. at retail outlets. • Pricing for exclusivity of services being offered • Pricing services at or above the cost of service, except as discounted by Commission policy or state law. • Delegating most fee and rate setting to staff to maximize entrepreneurial approaches in the marketplace. Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
2 Law The purpose of this project is Provide an objective analysis of • Report proved to Commission, May Measure no longer needed Enforcement to evaluate Washington the costs and benefits of 2014. • Analysis State Park's use of and WSPRC’s current law Work continuing with WFSE in negotiating impacts and implication reliance on, fully enforcement program and of strategically focusing ranger commissioned law evaluate potential enforcement duties at each enforcement personnel as opportunities for improvement. classification. the primary staffing o Administrative Commission Focused training efforts for classification in parks. o Admin/limited commission o Defensive tactics review • Targeting Law Enforcement training to reinforce Area staffing roles.
2 Marketing Build and sustain a • By June 15, execute five All projects were executed in a timely Converted from biennial project comprehensive strategic projects defined in the manner, including tests with television to ongoing program marketing program that can strategic marketing plan, and cinema. All campaigns were set up including testing and adapt to support agency measuring new media to enable effective tracking to measure financial needs and promote vehicles (e.g., television, success. the value of the state park cinemas, etc.), and provide system to the public. quantitative analysis of effectiveness to inform Stimulate sales of the future marketing efforts. Discover Pass and other fee- based services. Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
2 Central Produce a Request for None in 2013/15 N/A Manage multiple stakeholder Reservation Proposal and navigate the groups to produce a complete System agency through the RFP to secure a new vendor that procurement process to will offer a cloud-based system secure a vendor to provide a with new functionality including central reservation system offers management and a point to manage reservations and of sale system. provide a point of sale system at the park. Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
2 Employee Efforts to optimize None in 2013/15 N/A • 100% completion of PDPs Development organizational structure for all permanent employees. within Operations have led • All permanent employees to receive a minimum of 1 to a more specialized focus training opportunity other of most classifications on than required/mandatory the ground. In 2016, the training and in alignment agency will place a focus on with their PDP. improvement to employee development to further define roles and expectations; develop staff to be successful within their role; and focus on encouraging opportunities for growth for staff to promote into critical management roles as we face significant turnover in the current biennium. Additional emphasis will continue to be placed on development for staff in supervisory and leadership roles. Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
2 Customer The current biennium None in 2013/15 N/A • Increase customer survey Service budget has allowed for a participation by 50%. modest increase in front line • Each seasonal employee engages in Customer Service employees at the park. In Training. 2016 the agency will • Each park area has a written concentrate on 2016 customer service plan improvements to basic that ensures intentional customer service in order to customer service efforts. provide an improved experience for the park visitor. Specific focus will be on restroom and campsite cleanliness and repair; staff availability to visitors; and visible improvements to entrances and administrative areas used by the public. An effort will be made to bring these intended changes to the attention of visitor and encourage customer feedback to evaluate the impact of this emphasis. Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
2 Maintenance This initiative will focus on • Develop a definition for • Completed process in 2014 and • MEP complete with a budget assessing the routine custodial/routine used data collected to inform 15/17 implication assessment maintenance needs in the maintenance, preventative budget request. • Maintenance pilot maintenance, and deferred • In 2015, further refined system to implemented and evaluated parks, prioritizing efforts, maintenance. improve accuracy. Updated for further implementation by and deploying resources to • Develop a comprehensive standards and frequencies set for end of biennium. optimize impacts to needed inventory of park level each activity. • Develop and implement maintenance. Assessment maintenance activities. • Accomplished a system-wide audit, written fire plan for the • of the data gathered will be Assess current time utilized which updated the data for prevention and management for maintenance related November 2015. of fires. used to more deliberately activities. • Currently assessing system for use • Continue into a second phase focus staffing resource into • Determine resources in 17/19 budget request. MMP to refine and priority areas. currently expended on • Assessment underway for refining comprehensively capture maintenance. agency wide staffing needs. maintenance activities at the • Determine proper park level. classifications for achieving maintenance activities. • Use as a budgeting tool for 15-17 operational budget. 2 Sponsorships Develop a strategic plan to None in 2013/15 N/A • Prepare policy guiding and Advertising coalesce and manage advertising within state parks opportunities for for Commission consideration by May 2016. sponsorship and advertising • Develop procedures and rate with the agency cards to manage sponsorship opportunities and communicate to necessary stakeholders. • Create baseline for revenues generated from advertising online and in parks. Then, look to optimize existing efforts to increase net revenues by 3% in 2017. Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
2 Customer Data Visitor preferences and None in 2013/15 N/A • Establish baselines for behaviors inform us as to customer acquisition costs the best products and and retention rates on which to assess performance and services to offer. Evaluating guide improvements during these data also leads to the 2017-19 biennium. better business decisions • Hire a new IT employee to that will, in turn, increase assist with data management. revenues. This initiative seeks to centrally manage the data that are currently gathered at a variety of touchpoints to ensure a complete picture on which educated decisions can be based.
2 Park Enterprise This initiative enhances None in 2013/15 N/A • Establish inventory and retail sales of agency manage inventory turns per branded items in park gift year. • shops, stores, interpretive Launch program and increase PIA account centers, and online as part revenues by 5% annually of the agency’s digital media • Launch online merchandising strategy. Contract to sell on- program and increase demand printed products revenues by 3% annually. such as calendars, mugs, books, posters etc. that incorporate both agency and visitor-produced images and content. Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
3 Interpretation Restore and enhance • Be on track to expand the • In Fiscal Year 2015, the number of • Expand number of active interpretation into a number of active reported interpretive contacts interpretive interactions in fundamental park interpretive interactions in increased from 171,092 to state parks by 10 percent a state parks by 10 percent a 221,922, an increase of 29.7 % year, increasing direct experience year, increasing direct from the previous fiscal year. interpretive contacts from interpretive contacts from • Used match from federal 221,000 visitors in fiscal year 114,000 annual visitors in partnership grants to establish two 2015 to the (proposed) 2012 to the Results new interpretive programs (staffed Results Washington goal of Washington goal of 267,000 visitors in fiscal year 160,000 annual visitors by by 6-month Interpretive July 2016. Specialists). One is supported by 2017. the USFWS-Urban Partnership and • Complete exhibit renovation focused on urban youth outreach of one of thirteen agency- at Lake Sammamish; the other is operated interpretive supported by USFS and focused on centers; specifically, Phase old-growth forest experiences at One of the Catherine Rockport. Montgomery Interpretive • Established an Interpretive Center exhibit renovation in Leadership Team to guide the Federation Forest State Park. development of a long-range, • Replace at least 30 outdoor interpretive program strategy. exhibits, 15 per fiscal year, that are no longer relevant or have outlived their designed lifespan. • Work with the State Parks Foundation to initiate a distance learning pilot program in 2016 to provide interpretive programs for underserved schoolchildren. Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
3 Park Events Work with State Parks • Sponsor ten arts and • Provided 20 Arts in Parks events to • Facilitate at least 12 Folk and Foundation, friends groups performance events at five an audience of 11,600 visitors, Traditional Arts in the Parks and other community parks by December 2014. including an average of 583 events and/or festivals in at • Inventory event facility visitors per event. least six state parks by groups to host events, arts capital needs and identify • Identified the location of at least 38 December of 2016. performances, and festivals key areas of investment by outdoor amphitheaters in the • Implement the New Old in state parks (e.g., fun runs, June 2015. system, 8 of these having a seating Time Chautauqua in State races, concerts, and ethnic capacity of 100 over more and Parks Partnership Program, suitable utilities and access. Many including statewide festivals) to enhance public of the remaining 30 amphitheaters community outreach events service, encourage new and are in need of accessibility and in at least six state parks. repeat visitation and utility improvements. • Establish Headwaters Project encourage Discover Pass • A minor works-scale 2015-17 outreach event in at least one sales. Capital Budget request for event state park located along the infrastructure was developed and Columbia River. supported by the agency; however, it did not receive legislative funding. 3 Park Trails Develop accurate trail maps • Complete mapping of 100 • Progress has been made with over • See Cross-State Trails for use online and in mobile state park trails and make 900 miles of park trail GIS data applications. Work with trail available on State Park collected. web site. Promote on State • Trail mapping is projected to be user groups to identify Park apps and social media available on the agency website in improvements that meet by June 2015. early 2016. trail user needs.
3 Cabins and Yurts Manage $3 million capital Complete the installation of 25 • Due to the contractor defaulting, Measure no longer needed investment in statewide cabins or yurts at five (5) parks only 21 cabins were installed, cabin and yurt development, by June, 2015. including: and generate associated o 2 at Ike Kinswa 4 at Millersylvania revenue to help offset o o 5 at Dosewallips agency operating expenses. o 5 at Dash Point o 5 at Twin Harbors • Local park staff completed set up and opened facilities to the public. Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
3 Cross-State This initiative seeks to None in 2013/15 N/A • Complete planning process Trails advance the system of cross currently underway for state trails by working with eastern portion of Iron Horse key agencies and user State Park. • Provide trail-related 2015-17 groups to identify needed operating budget, capital improvements and build budget, and grant requests. “grass-roots” support for • Install at least 3 attendance linear trails. counters capable of discerning between user types on linear trails in 2016 3 Park Level Pursue implementation of None in 2013/15 N/A • Sign initial partnership Transformation transformation principles at agreement with REI. Lake Sammamish to test • Cooperate with USFWS to hire an urban wildlife refuge their viability at the park partnership coordinator. level.
4 Sponsorships Develop sponsors and • Work with the State Parks • No specific policy has been • See Sponsorships and sponsorship opportunities in Foundation to develop a developed Advertising state parks through mutually Sponsorship Policy and • Initiative development of a beneficial agreements, procedural guideline by philanthropic sponsorships consistent with agency June 2015. policy with the Foundation policies and legislative by October 2016. statutes. Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
4 Friends Recruit active volunteers • Maintain18 active park • 18 active Friends Groups with • Rewrite the Community Development and interested community friends groups per year. formal agreements were in place Based Project process (R139) (includes members to establish park • Hold an annual support June 30, 2015. by December 2016 conference to provide • Conferences are held each year. In • Seek to connect the Community- friends groups. training for friends groups 2015 the conferences were split Foundation to the Based and park hosts. into two more focused conferences Community based Partnerships) with one for Friends Group improvement process representatives and one for hosts • Partner with the Foundation to produce the Friends Conference each Fall • Increase to 24 the number of Formal Friends Groups in 2016 • Work with the Washington State Park Foundation’s Executive Director to develop a Memorandum of Understanding in 2016. 5 Interagency, Identify and develop • Initiate new management • The phase one MOU with the • Request Commission Tribal, and Non- agreements to manage park partnerships with two Nisqually Tribe was signed in April approval of a long-term Profit resources or programs with agencies, tribes, or non- of 2014 agreement with the profit partners by June • Nisqually Tribe for Partnerships other government agencies, MOU with the City of Issaquah 2015. signed in August 2013 cooperative development of Native American tribes, and • Develop system to • Planning projects include the Lake Nisqually State Park. non-profit organizations. evaluate revenue and cost Sammamish Development Plan • Initiate preparation and Use partner expertise to savings achieved through and the Larrabee CAMP environmental review of a manage resources or partnerships by June 2015. development agreement programs to secure financial • Initiate two park planning with the City of Issaquah for investments and result in projects to communities Lake Sammamish State Park. • cost savings or revenue and encourage public Complete South Whidbey involvement. CAMP; Beacon Rock Climbing earnings. Plan; Lake Spokane CAMP Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
6 Property This initiative seeks to • Establish Commission real • Real Estate Policy adopted by the • Post Round 1 Recreation Interest designate certain lands to be property management Commission in 2015. Business Activity site managed for the primary policies, setting direction • Staff submitted PAA budget candidates on agency (including purpose of revenue by December 2014. proviso report to the legislature as website by January 2016. • Complete analysis and required by sect. 3107 of 2015-17 • Request that Commission Surplus Lands, generation. Revenue Lands, identify lands potentially Capital Budget to identify “poorly designate first round of appropriate for revenue used” lands. authorized sites as and Endowment generating purposes by • Analysis for over 300 properties as Recreation Business Activity initiatives) June 2015.* needed to nominate Recreation sites by July 2016. Business Activity sites, Enterprise Lands, and Land Transfer *From Property Interest Initiative candidates completed by June 1, 2015. 6 Environmental Allow restoration of natural • Submit an application to • Application not submitted to Measure no longer needed Mitigation systems as compensatory the Washington Ecology due to lack of interest Initiative mitigation for public and Department of Ecology to from private sector consultant become a certified, contracted to submit the private development statewide natural resource application. projects by creating a mitigation banking entity • Additional mitigation banking mitigation bank that would by June 2015. program work on hold pending allow for large-scale private sector interest as needed to initiate/continue the program restoration of degraded natural features and systems, while generating revenue for agency purposes. Strategy Initiative Description Performance Measure Accomplishments 2013-15 Performance Measure 2015- 2013-15 17
7 Facility Develop a comprehensive • Increase the Facility • Further refinement of the data • Increase the Facility Management ranked and prioritized 10- Condition Index from 61% showed that the October 2014 FCI Condition Index (FCI) a and Capital year capital program to 62% by October 2015, was 60.43. Based on these refined minimum of 2% per biennium with a goal of 80%. Planning funding plan based on with a goal of 80% FCI data, the FCI for October 2015 was attained in the next 20 - 61.43 or slightly below the goal of • While maintaining current (Previously 10- operational needs, 25 years. a 1% increase. The shortfall was data, add a minimum of one Year Capital opportunities, and facilities • Provide initial access to due to funding. infrastructure type per biennium (e.g., Roads, Sewer, Development condition, maximizing funds two (2) parks held for • Initial Park Access: Power, Water, Trails). Plan) and leveraging private and future development, by o Miller Peninsula Initial Park public fund sources. October 2015. Access was completed 9/3/2015. Develop and maintain an o Nisqually Initial Park Access is inventory of all physical substantially complete. improvements within the State Park system including their current condition.
7 Grants Develop grant requests that By 2015, increase by 10 Grant coordination was improved Converted from biennial project Coordination support agency percent the number of state through the designation of a specific to ongoing program transformation through grant funds received compared grant program coordinator; the expanded grant opportunities to 2013. number of grants received remained and improved grant about the same. applications. 7 Statewide Park Develop statewide strategy None in 2013/15 N/A Develop strategy for Commission Acquisition and to guide prioritization and approval by July 2016. Development development of properties Strategy held for future park development and acquisition of lands for new, stand-alone parks.
2017-19 Strategic priorities
To build on recent progress toward achieving the strategic goal of a healthy and sustainable park system, the Commission plans to focus on the following areas in the 2017-19 biennium:
Customer service: “Clean, Green and Be Seen”
Over 70% of the existing State Parks budget is devoted to on-the-ground direct service to park visitors. Keeping public facilities, such as restrooms, campgrounds, and picnic shelters safe, clean, and welcoming is essential customer service. Park staff who are available when needed to respond to questions and concerns and to provide a secure environment are also essential to meeting customer expectations for service. Because the operating model relies on the majority of funds to come from customers, satisfying their expectations becomes necessary for the financial stability of the state park system.
State Parks will continue to focus efforts in basic custodial care as a core element of customer service and will continue work to standardize service efforts throughout the state. State Parks will reach out and get to know its customers. A priority will be to continue to seek to understand who isn’t coming to parks, why they aren’t coming, and identify and provide services that are relevant and responsive to their needs. And, State Parks will continue its focus on a commitment to its customers when they visit parks.
Facility Condition
The condition of facilities at State Parks varies. There are some parks, recently refurbished, where buildings, roads, trails and utilities are in good condition. Other parks have serious deficiencies in facility condition, with major renovation or replacement needed. In the last few years, there has been progress on facility condition with support from the Legislature, Governor, and partners. And the agency is making strategic decisions as to which facilities need to be repaired, replaced, or can be eliminated. With nearly $500 million in maintenance backlog statewide, State Parks will focus significant and ongoing investment in both capital and operating budgets to improve the condition of state parks facilities.
Strengthening data management and performance metrics
State Parks will continuously invest in efforts that result in administrative efficiencies; expand internal and external communications, streamline decision-making and better connect with customers and potential customers. The agency will apply continuous improvements in its performance measurement systems that provide better data for agency internal decisions as well as clearer and more meaningful information for legislative and gubernatorial decision-makers. Customer service and expectations data will be expanded as tools for program and facility investments.
Understanding resources in our care
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In order to prioritize and protect the most important natural and cultural resources in its care, State Parks must continue to improve our knowledge of those resources. Noxious weed management, forest health, shellfish protection, and other stewardship parameters, will have improved inventories to quantify the amount of work necessary for their proper management. Working with volunteers, non-profit conservation organizations and other public agencies, State Park will understand more deeply its stewardship assets and carry out specific and prioritized efforts to restore, protect and preserve those assets for future generations.
Engaging youth and diverse communities
Demographic changes continuously alter the potential customer base and their service preferences. The same changes affect the potential work force. State Parks is working to more fully understand these changes and meet the needs and desires of an evolving public. In particular, State Parks will make concerted efforts to reach out to youth and ethnic minorities. The agency is focused on proactively recruiting and developing a high performing, diverse workforce. It seeks to better understand the recreation needs of various ethnic communities through improved communication efforts, and provision of attractive services and facilities that respond to public preferences. Parks intends to enhance its commitment to the No Child Left Inside grant program and expand other efforts to engage youth in outdoor education and resource stewardship.
Trail development and management
In survey after survey, the most popular outdoor recreational activity by far always turns out to be non-motorized trail use - walking, biking, horseback riding in the summer, and skiing and snowshoeing in the winter. Taken together, these are principal draws for the vast majority of state park visitors. The agency plans to increase its outreach to trail users, improve trail conditions and draw in partners for programing and facility development.
Appendix A: 2013 Transformation Strategy (To be included in final document) Appendix B: Organizational Chart. (To be included in final
document)
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Item E-3: Recreation Business Activity Pilot Sites - Requested Action
EXECUTIVE SUMMARY: This item asks the Washington State Parks and Recreation Commission to designate Recreation Business Activity sites at two state parks to permit privately financed development of recreational facilities. This item aligns with agency core values and advances the Commission Transformation Strategy: “Expand use of land holdings for compatible revenue generating purposes”.
SIGNIFICANT BACKGROUND INFORMATION: In March 2013, the Commission adopted a Transformation Strategy that included a strategy to “Expand the use of land holdings for compatible revenue generating purposes.” To further this strategy, the Commission adopted changes to the agency’s real estate management policies. A key part of this policy development effort included establishing a framework for designating sites within existing state parks for development of privately financed recreation facilities. Sites designated for this purpose are called Recreation Business Activity (RBA) sites.
The purpose of RBAs is not to privatize the park system, but rather to provide park visitors with amenities that are beyond State Parks’ financial capacity, while generating lease revenue to help operate the park system. RBAs are conditionally permitted activities in areas classified Recreation, Resource Recreation, or Heritage under the agency’s land classification system. Conditionally permitted activities are only allowed when specifically authorized by the Commission. The decision to allow RBAs can be made as part of initial land classification, or later, through classification revisions.
Current state park recreational developments include campgrounds, picnic facilities, trails, cabins, vacation houses, dormitories, hostels, and even small resorts. All of these might also be appropriate for private development as an RBA, as would other facilities such as lodges or small hotels. A business consultant working with the agency has identified four kinds of RBAs that are most likely to generate revenue for the state park system: • Moorage facilities • RV campgrounds • Groupings of vacation cottages • Food services
To encourage creative proposals from RBA partners, the Commission has not created a list of acceptable RBA development types, but instead in March 2015, it approved guidelines for evaluating proposed recreational uses in designated RBA sites. Appropriate uses: 1. Are consistent with the agency’s mission, vision, and core values 2. Are consistent with the park’s approved land classifications 3. Advance the agency’s Transformation Strategy 4. Are consistent with grant funding restrictions that may apply to the park, or that are able to resolve inconsistencies with those restrictions
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5. Are mutually beneficial to both State Parks and the project developer in: a. Providing recreational benefits to park users b. Providing economic benefits to the state park system 6. Have a net positive impact on park operation 7. Provide activities that respond to recreation trends and help meet current and future recreation demands
In addition to these guidelines, when the Commission approves RBAs as a conditional activity in a park, it may also impose park-specific restrictions to ensure consistency with the park’s design and operational needs. Such restrictions can include: 1. Building height limits 2. Development size limits 3. Building setbacks 4. Design standards (aesthetics, materials, lighting, etc.) 5. Resource stewardship requirements 6. Hours of operation 7. Restrictions on access to other park facilities
RBA Candidate Sites In January 2016, staff identified eleven first-round RBA candidate sites. These sites were consistent with adopted land classifications, were believed to have a high potential to generate revenue, and have a low potential to negatively impact to the rest of the park. The candidate sites included: • Crystal Springs (part of Iron Horse State Park Trail) • Fort Columbia Historical State Park • Fort Flagler Historical State Park • Joseph Whidbey State Park Property • Millersylvania State Park • Packwood State Park Property • Pearrygin Lake State Park • Skating Lake State Park Property • Squilchuck State Park • Twenty-Five Mile Creek State Park • Westhaven/Westport Light State Park
Public Outreach Staff sought public input on the first round of RBA candidates by developing a public outreach document and posting it to the State Parks website. In mid-January a mailing went out to contact lists for each of the first-round sites. The contact lists include adjacent landowners within 1000 feet of each park, tribes, elected officials, and known user groups and other interested parties.
Staff received over 1,000 comments from the initial round of outreach. Most comments were in opposition to designating an RBA site at Crystal Springs because of the site’s proximity to wildlife crossing structures over Interstate 90 currently under construction by the State Department of Transportation. As staff learned more about these structures and associated
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wildlife corridors, it became clear that extensive development at Crystal Springs was incompatible. Staff is therefore no longer pursuing RBA designation for the site.
Of the remaining candidate sites, five received the most public comments: • Joseph Whidbey State Park Property • Fort Flagler Historical State Park • Westhaven/Westport Light State Park • Squilchuck State Park • Twenty-Five Mile Creek State Park
For those five sites, staff scheduled public meetings to further describe RBAs and to seek additional input from the local communities. Three of those meetings were held in March: • Joseph Whidbey o Meeting held March 21 in Coupeville. o 70 people signed in • Fort Flagler o Meeting held March 22 at the park o 58 people signed in • Westhaven/Westport Light o Meeting held March 24 in Westport o 59 people signed in
A meeting to discuss Squilchuck and Twenty-Five Mile Creek was held on April 21, 2016 in Entiat. Comments from the initial mailing, as well as from the meetings, have been posted to the project webpage for review: http://parks.state.wa.us/900/Real-Estate-Policy-Update. At the time of this writing, there are over 500 pages of comments posted.
While there has been some support for most of the candidate sites, in general, people are most concerned about privatization, environmental impacts, and community impacts, such as increased traffic. At the public meetings, there was very little support for the Joseph Whidbey site, primarily due to wildlife and wetland impacts, as well as proximity to the naval air station.
People who attended the Fort Flagler meeting were mostly opposed to an RBA in the currently undeveloped forest area, but were supportive of an RBA that would reuse and improve some of the park’s deteriorating historic buildings. Staff shared that a private developer had approached Parks with a proposal to develop six glamping sites at Fort Flagler, and at the public meeting, there was some support for glamping in the park.
At the Westport meeting, there was concern from local business owners about an RBA competing with their businesses, and there was concern about wetland impacts, but there was considerable support for the economic development that an RBA might bring to the small town.
After the Westport meeting, staff conducted a field visit to several potential RBA sites in the park to determine whether they might be suitable for development, since the park includes many wetlands. Staff identified an approximately 41-acre parcel that appears to be primarily dry and developable, shown in Appendix 1.
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A complication with this site is that most of it is currently classified Resource Recreation, which would not allow for higher-intensity RBA developments. The 2007 South Beach Area Classification and Management Plan resulted in the areas closer to the beach being classified Resource Recreation, while the areas further from the beach were classified Recreation. This decision appears to have been based primarily on proximity to the water rather than on-the- ground surveys. More recently, staff learned that most of the park is dotted with wetlands. Because current classification of the Westport property is incompatible with RBA designation, staff intends to present suitably adjusted land classifications and a refined RBA site proposal for additional public comment before seeking approval by the Commission.
Additionally, since the land between Westhaven and Westport Light state parks was acquired, a new name for these newly combined parks may be appropriate. Staff intends to seek public input on naming options as part of the RBA public process and anticipates bringing a combined naming, land classification, and RBA site designation proposal to the Commission for consideration later this year.
STAFF RECOMMENDATION: Staff recommends that the Commission approve RBAs as conditional activities in two pilot sites: • Fort Flagler Historical State Park, historic area and glamping site, shown in Appendix 2 • Millersylvania State Park, Miles Sand and Gravel Area, as shown in Appendix 3
These sites were chosen as pilot because they have some public support, and because they represent a range of potential development types. The Fort Flagler historic area would be an example of an RBA for adaptive reuse of historic structures, and the Millersylvania site and the Fort Flagler glamping site are examples of new development.
Fort Flagler: Staff recommends designating two RBA sites at Fort Flagler, shown in Appendix 2. The first is an approximately 16-acre parcel that includes a number of the park’s historic structures (Site 1). The project would allow for adaptive reuse of the existing buildings, and would also allow for the possibility of reconstructing previously existing buildings in the area if the proposed use could not be reasonably located within an existing historic structure.
The second site is approximately 4 acres near the lower campground, in an area sometimes used for overflow camping (Site 2). The second site has been identified as suitable for glamping, and it is believed that few or no trees will need to be removed to allow for this development.
It should be noted that the site number designations used in this agenda item for pilot sites at Fort Flagler differ from those used in the earlier public outreach document on the project webpage. For example, Pilot Site 1 in this agenda item was referred to as “RBA #2” in the public outreach document, and the site previously referred to as “RBA #1” is not among the staff-recommended RBA pilot sites.
Park-Specific Development Restrictions:
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In Site 1, the existing and former building sites have been divided into categories, as shown in Appendix 2. Staff recommends that RBAs in Site 1 adhere to the following development restrictions: • Category 1: Adaptive reuse of these existing structures must be consistent with federal and state standards for historic preservation • Category 2: Adaptive reuse of these existing structures must be consistent with federal and state standards for historic preservation, and there may be additional restrictions in order to address the concerns of current user groups. If, before RBA development, the condition of any of the Category 2 buildings deteriorates to the point it is no longer safe to use, it will be considered a Category 1 site instead. • Category 3: Category 3 sites are the locations of structures that have been removed or that are not historically significant. Although it is preferred that an RBA development reuse existing historic buildings, new construction may be considered in the Category 3 sites if the proposed use cannot be reasonably located in a historic building. Developments in these sites should be designed to sensitively blend into the historic setting, and design proposals must be approved by the State Parks Historic Preservation Officer before construction.
Developments in Site 2 are limited to glamping, wall tents or similar overnight accommodations, along with associated support facilities, such as restrooms. Removal of healthy significant trees should be minimized or avoided.
Millersylvania: This approximately 63-acre parcel, shown in Appendix 3, was purchased in 2008, from Miles Sand and Gravel. Due to its previous use as a gravel pit, this site has few, if any sensitive natural resources, and is thought to be suitable for medium to high-intensity recreational developments.
This site was purchased with a grant from the Washington Wildlife and Recreation Program, so it is possible that an RBA development would result in a grant conversion. Approximately five acres of the property were purchased using the Parkland Acquisition Account to allow for cabin or lodge development, and some elements of an RBA development may not be considered conversions, so a conversion is possible but not inevitable at this site.
Park-Specific Development Restrictions Staff recommends that the public (not just RBA customers) should continue to have access to the quarry pond shoreline within the site, and that the RBA development should not negatively impact the adjacent Environmental Learning Center.
Next Steps If the Commission approves one or more of the pilot sites, staff will then solicit private-sector interest through a competitive Request for Proposal (RFP) process. If staff receives any viable proposals, additional public outreach and a project-level State Environmental Policy Act (SEPA) review will be completed, to the extent necessary, before lease agreements are brought to the Commission for consideration. Individual projects may be categorically exempt from SEPA, depending on the size and scope of the proposal.
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It is anticipated that the RBA agreements could take two general forms. Some may be in the form of a ground lease, while others may be in the form of a public/private partnership where revenues are shared according to an agreed-upon formula. In either case, the Commission will own all permanent improvements in parks at the end of the lease term.
Solicitation for Site 2 at Fort Flagler, if it is approved, will be a little different. As mentioned, staff has already received a proposal from a private developer to operate a glamping facility in that site. If the Commission approves it as an RBA, staff proposes to grant short-term approval to this developer. Then in the next year, staff plans to identify other appropriate glamping sites statewide, and bring them to the Commission for consideration as RBAs. Staff would then solicit glamping competitive proposals for any of the approved sites, including the one at Fort Flagler
Staff may also bring additional RBA pilot candidates from the first-round list to the Commission for consideration after further public outreach.
LEGAL AUTHORITY: RCW 79A.05.030 Powers and duties – Mandatory RCW 79A.05.345 Stewarding and interpreting state parks—Commission’s authority to consult, enter agreements, and solicit assistance from other organizations RCW 79A.05.347 Agreements under RCW 79A.05.345 or otherwise involving management of state park land or a facility—Performance measures WAC 352-16-020 Land classification system WAC 352-16-030 Management within land classifications
SUPPORTING INFORMATION: Appendix 1: Westhaven/Westport Light State Park RBA Candidate Maps Appendix 2: Fort Flagler Historical State Park RBA Pilot Maps Appendix 3: Millersylvania State Park RBA Pilot Map Appendix 4: SEPA checklist and determination
REQUESTED ACTION FROM COMMISSION: That the Washington State Parks and Recreation Commission: 1. Approve Recreation Business Activities as conditional activities within selected Heritage and Recreation Areas of Fort Flagler Historical State Park and Millersylvania State Park, as recommended by staff and shown in Appendices 1 and 3. 2. Approve park-specific development restrictions for each RBA site, as recommended by staff. 3. Direct staff to solicit second-party proposals to develop and manage the approved RBA sites, consistent with Commission-approved policies and guidelines on RBAs. 4. Delegate to the Director the authority to approve minor adjustments to site boundaries and park-specific development restrictions as needed, provided that all lease agreements negotiated with terms in excess of five years will be brought to the Commission for approval.
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Author(s)/Contact: Nikki Fields, Parks Design and Land Use Planner [email protected] 360-902-8658 Steve Hahn, Real Estate Program Manager [email protected] 360-902-8683
Reviewer(s): Jessica Logan, SEPA REVIEW: : Pursuant to WAC 197-11-310 and WAC 197-11-340, staff issued a “Determination of Non-Significance” on May 2, 2016 for the preliminary staff recommendation finding that the action proposed was minor and the environmental effects not significant. Christeen Leeper, Fiscal Impact Statement: Adoption of this requested action has no immediate fiscal impact. Implementation will come in subsequent agenda items to the Commission for review and approval and are expected to have a positive fiscal impact in the form of revenue or cost saving. Michael Young, Assistant Attorney General: 4/20/2016. Peter Herzog, Assistant Director
Approved for Transmittal to Commission
______Don Hoch, Director
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APPENDIX 1: Westhaven/Westport Light State Park RBA Candidate Maps
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APPENDIX 2: Fort Flagler Historical State Park RBA Pilot Map
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APPENDIX 3: Millersylvania State Park RBA Pilot Map
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Item E-4: 2017-19 Operating Budget and Request Legislation – Requested Action
EXECUTIVE SUMMARY: This item asks the Washington State Parks and Recreation Commission to provide direction for 1) the total amount requested in the 2017-19 Operating Budget proposal that will be submitted to the Office of Financial Management (OFM) and 2) submittal to OFM of any agency request legislation with potential fiscal impacts. This item advances the Commission’s Transformation Strategy “Adopting a business approach to park administration” and aligns with the agency culture and core values.
SIGNIFICANT BACKGROUND INFORMATION
Budget Development Process. Agency managers, staff and the budget office began work on the 2017-19 Biennium budget proposal several months ago. Efforts have included: . Review of the draft Strategic Plan (incorporates the Transformation Strategy) to ensure alignment . Numerous discussions among the agency’s Executive Leadership Team members to discuss priorities and resource needs . Discussions among the Executive Leadership Team members regarding capacity issues related to additional growth, implementation of current initiatives and the approach of making incremental changes and providing time to assess and communicate results. . Extensive review of staffing to determine resource needs, ensure the optimum use of staff, invest in priority work and continue efficient operations . Review of costs associated with goods and services, travel, and equipment to ensure expenses are needed . Development of a preliminary 2017-19 earned revenue forecast . Review of Governor Priorities . Conversations with OFM to discuss data, issues and approaches . Conversations with legislative staff regarding data and issues . Discussions with the Commission’s Budget Committee
Significant work is still required to further develop and refine the 2017-19 Biennium budget proposal for adoption by the Commission in July. This work will include further discussions within the agency, with the Budget Committee, and with OFM.
General Information. General information regarding the development of the 2017-19 operating budget request includes: . OFM’s budget instructions will be released in June 2016. These instructions may direct agencies to prepare General Fund reduction submittals as a part of their budget request as a result of the significant financial challenges the state is facing in 2017-19. . The legislature provided State Parks with higher than requested levels of PRSA spending authority in the 2016 operating budget supplemental to spend on preventative maintenance. This additional authority assumes the agency will at least temporarily target a fund balance lower than $8.5 million as of June 30, 2017. . The earned revenue forecast will be updated in June 2016. . Litter tax revenue to the Parks Renewal and Stewardship Account is due to end this biennium.
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. State Parks’ 2017-19 operating budget submittal will be due to OFM in September 2016.
Strategic Plan. The Commission is scheduled to adopt a revision to its 2014-19 Strategic Plan that communicates a desired goal of a “Healthy and Sustainable Park System.” The 2017-19 operating budget will be developed consistent with that goal along with specific investment priorities outlined in the Strategic Plan.
Request Legislation. As part of the operating budget, the agency is required to submit to OFM proposals for agency request legislation that have fiscal impacts. Such legislation may involve changes in fee levels or fee programs, establishment or modification of dedicated funds, or any other change in law that may result in positive or negative fiscal impacts.
State General Fund Outlook. Currently OFM projects a significant shortfall in the General Fund for 2017-19. When the new budget projection is released, it will include estimates for revenue, caseload adjustments, compensation costs, and education funding resulting from the Supreme Court’s McCleary decision on funding of basic education.
2017-19 OPERATING BUDGET DEVELOPMENT
General assumptions. 1. State Parks will develop a budget request consistent with OFM’s instructions. 2. To receive additional General Fund-State dollars, the agency is expected to first use available revenue in the Parks Renewal and Stewardship Account (PRSA). This revenue could be previously earned and reflected in the beginning fund balance or it could be projected earnings. 3. The funding source for request packages that are not supported by PRSA revenue will be General Fund-State.
Specific assumptions. The staff recommendation for the amount to request incorporates the following assumptions: 1. A temporary target of a $5.5 million fund balance for June 30, 2017 and June 30, 2019 (versus an $8.5 million fund balance which is Commission policy). 2. No agency request legislation will be pursued that significantly changes State Parks funding sources or amounts. 3. A preliminary PRSA earned revenue projection of $108 million. 4. Approximately $21 million in General Fund-State will be included in base-line funding levels. 5. $10 million in litter tax currently received by the agency ends June 30 2017 and will be removed from the base-level budget - necessitating a $10 million “buyback” package to request the litter tax be replaced by General Fund-State support.
Staff Recommendations. Based on the above assumptions, staff recommends the development of a total 2017-19 budget request of about $175 million, which includes all programs and funding sources. This level of budget request will result in a request for about $15 million in tax support above 2015-17 levels.
This proposal builds on recent gains toward achieving a healthy, sustainable park system that were made possible through gubernatorial and legislative support as well as agency efforts to
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increase earned revenue. This proposal requests a modest, additional investment to continue forward progress in an environment where requests for General Fund-State dollars will have stiff competition.
Staff further recommends that the agency submit no request legislation that has a potential for a fiscal impact. The issue of recreational fees is currently being studied under a legislative budget proviso that is not scheduled to be complete until December 2017. Also, staff concludes that agency pursuit of tax support from the General Fund-State is more likely to be successful than through agency request legislation for the establishment or continuance of dedicated funds.
REQUESTED ACTION OF COMMISSION: That the Washington State Parks and Recreation Commission:
1. Authorize staff to develop a detailed 2017-19 Operating Budget proposal for approval by the Commission that totals about $175 million to continue to make incremental progress toward the goal of a healthy and sustainable park system.
2. Agrees with the staff recommendation to not pursue agency request legislation that has a fiscal impact. ______Author/Contact(s): Shelly L. Hagen, Assistant Director, Administrative Services [email protected], (360) 902-8621
REVIEWS: Jessica Logan, SEPA Review: Following review, staff has determined that the action proposed for the Commission by staff is exempt from the State Environmental Policy Act (SEPA) pursuant to WAC 197- 11-800 (14)(c) Chris Leeper, Fiscal Impact Review: Fiscal impacts are represented in the requested action Michael Young, Assistant Attorney General: 4/29/16 Shelly Hagen, Assistant Director
Approved for Transmittal to Commission
______Don Hoch, Director
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Item E-5: Updated Director Position Description – Requested Action
EXECUTIVE SUMMARY: This item asks the Washington State Parks and Recreation Commission to approve the Director’s May 4, 2016 position description before submission to the Washington State Human Resources Office. This item supports the Commission’s mission and vision and advances the Commission’s Strategic Plan.
SIGNIFICANT BACKGROUND INFORMATION: The Office of Financial Management, State Human Resources Office (State HR), is responsible for administering State Agency Officials’ Salaries under the provisions of RCW 43.03.028. The statute requires a biennial study of positions with a specified completion date. In this study, State HR evaluates and determines the plateau level and maximum salary for positions. On April 14, 2016, the agency received a request from State HR to provide an updated description for the Parks’ Director’s position by May 9, 2016. The attached description was submitted to them, with the understanding that the agency would provide an updated version following the May 19, 2016 Commission meeting if any changes were made.
STAFF RECOMMENDATION: Staff recommends the Commission approve the Director’s May 4, 2016 position description as final and authorize submission of the description to the Office of Financial Management, State Human Resources Office.
LEGAL AUTHORITY: RCW 43.03.028
SUPPORTING INFORMATION: Appendix 1: State Officials Position Description – Director Donald Hoch
REQUESTED ACTION FROM COMMISSION: That the Washington State Parks and Recreation Commission: 1. Approve the Director’s May 4, 2016 position description and authorize the Human Resources Director to make changes as necessary to meet Commission intent and submit the description to the Office of Financial Management, State Human Resources Office.
Author(s)/Contact: Becky Daniels, Human Resources Director [email protected] (360) 902-8575
Reviewer(s): Jessica Logan, SEPA REVIEW: Following review, staff has determined that the action proposed for the Commission by staff is exempt from the State Environmental Policy Act (SEPA) pursuant to WAC 197-11-800(19). Christeen Leeper, Fiscal Impact Statement: There is no direct fiscal impact to approval of the Director’s position description. Michael Young, Assistant Attorney General:
Approved for Transmittal to Commission ______Don Hoch, Director
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State Officials’ Position Description
Name: Position Title: Donald Hoch Director Agency: Reports To: Washington State Parks and Recreation Commission Seven member Park and Recreation Commission Date: Date Last Revised: May 4, 2016 July 2014 Position Objective – Discuss in a few sentences what the position is required to accomplish. Summarize the scope of impact and how the position supports/contributes to the mission of the organization.
The Director serves as the Chief Executive Officer of Washington State Parks, managing a commission-led agency and complex citizen-based governance system. The Director works with the Parks and Recreation Commission to form a vision for the agency, manages the political and external environments, and leads a group of approximately 1,000 employees toward achievement of the agency's dual, sometimes competing missions - stewardship of Parks' public land and creating outdoor recreation opportunities for all citizens. The Director is responsible for the successful implementation of strategic initiatives which currently deliver $64 million in annual revenue to the state general fund while contributing more than $1.4 billion to the state economy. The Director is responsible to hire, lead and manage the agency in a manner that is consistent with statutory requirements established by the State Legislature, local and federal law, and with the policies adopted by the Commission.
The diversity and complexity of this job can also be seen in other key attributes of the position:
- The Director leads the agency's efforts to promote the health and safety of the public who visit state parks. This includes overseeing a core staff of law enforcement rangers across the state and managing environmental risks to visitors, such as tree and water system health.
- The position has the responsibility of a public enterprise executive - leading the agency in the effort to earn more than 75% of its operating costs through camping, Discover Pass and other revenue streams. This adds more complexity and risk to the financial management responsibilities as the agency adheres to its core public mission.
- The Director reports to the seven member Parks and Recreation Commission (Commission) and is responsible for developing and bringing forth to the Commission concepts and proposals that impact the overall agency's movement toward its mission. This includes facilitation of the Commission process, and ensuring public access and participation.
Nature and Scope – This section should include short and descriptive narratives that address the following requirements of the position. Organization (include a copy of organization chart) – Size and role of this position and its importance to the state’s mission and reputation. Diversity of job scope/responsibilities.
The responsibility to lead the organization is reflected in the scope, size and complexity of the parks system and diversity and size of other statewide recreation and public safety programs.
The Washington state park system is one of the largest and most diverse in the country. The system covers more than 120,000 acres and includes 125 developed parks, including 19 marine parks, 11 historical parks, 35 heritage sites, 13 interpretive centers, and approximately 500 miles of long distance trails.
Recent estimates are that state parks receive more than 30 million visits a year. These visitors have a broad range of outdoor activities available to them at state parks, including camping, hiking, boating, mountain biking, horseback riding,
77 skiing, and snowshoeing. Parks also offers locations and facilities for dog-sledding , snowmobiling, kayaking, windsurfing and wind-sailing, diving, paragliding and rock climbing.
Parks enrich the visitor experience through educational and interpretive events as well - designed to connect them to the diverse natural and cultural heritage of their state. The agency interprets the Ice Age Floods,; works with tribes to tell the stories of native people; provides multi-media history exhibits so visitors can learn about early explorers such as Lewis and Clark; offers a glimpse of what life was like on military forts constructed during the administrations of five presidents; and preserves the stories and structures build the Civilian Conservation Corps and Work Progress Administration during the Great Depression.
Acre for acre, these Commission-managed lands represent the greatest concentration of species of conservation concern (endangered, threatened, sensitive, imperiled or vulnerable species) held by any public or private entity in Washington. More than 10 percent of park lands contain rare plant and/or animal species, and more than 40 percent of park landscapes have plant associations classified at least at moderate risk within our state or globally.
Just over half of the uplands in state parks are within 600 feet of a surface water source. State Parks manages 19,800 acres of wetlands, 2.1 million lineal feet of riparian habitat and 15,800 acres of significant habitat supporting rare plants, animals or both. The agency manages 4,799 acres of Natural Area Preserves and 13,173 acres of Natural Forest Areas.
State Parks has 2,800 buildings - more than one-quarter of all state-owned buildings. Most of these are small but isolated and expensive to maintain. There are more than 770 identified historic properties for which State Parks must care, including military forts, historic homesteads and ranch buildings, a set of lighthouses and a historic seminary building. State parks are like small cities, with law enforcement, public works and facility management responsibilities. Besides structures, the agency manages and maintains 300 miles of roads, 140 watercraft launches and park infrastructure that includes more than 100 wells and water systems and hundreds of sewer and septic systems.
The agency also has responsibility for management of the federally funded Boating Safety Program and the fee-supported Winter Recreation program, and manages over 70 miles of ocean coastline that constitute the Seashore Conservation Area. The agency approves the design of ski lifts and carries out regular public safety inspections. Parks now has oversight for the No Child Left Inside grant program, awarding up to $940,000 in grants in 2016.
As a result of the need to self-support, the agency also maintains Business Development, Marketing and Advertising functions.
The Director oversees the management of this large scope with 730 FTEs, distributed across every area of the state in three administrative offices and 125 parks. The use of seasonal staffing is significant; during peak season, the agency staff grows to approximately 1,000 total employees.
The Governor has set Outdoor Recreation as a priority for his administration, stating "increasing public access and use of state recreation lands is a priority intended to enhance personal health, create and sustain a healthy environment and build healthy local and state economies." "Washington state parks offer something for everyone." "…visitors find parks a healthy and affordable way to explore and enjoy nature, create memories and connect with the state's risk historical and cultural heritage…".
Management Environment – Key challenges, sensitivities, risks, etc., inherent in the position and political environment. Any unique requirements associated with the performance of job responsibilities. Key partnerships and stakeholder interactions.
Washington State Parks is not alone in striving to understand the changing environment in which it operates. Other federal and state agencies that provide outdoor recreation and natural resource stewardship face the same challenge of rapidly shifting demographics, social changes, political dynamics, climate and related changes, and competing interests for financial support.
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Understanding and managing conflicts are key elements of this position. For almost every issue, there are strong competing interests – often within the details, but also at the highest levels of ideological and political differences. Failure to find the appropriate balance in the solutions and approaches creates significant risk to continued full operation and sustainability of the State Parks system, which, as outlined elsewhere in this document greatly impacts the state’s environment, its economy, and likely, the health of its citizens.
Some of the changes and challenges that create and influence the management environment are summarized here:
Physical environmental
• Outside forces affect Parks: Global climate and sea level changes, urbanization creep, and noxious exotic plants invade and threaten cultural and natural heritage preservation. As the natural environment outside of parks degrades, parks take on an even greater importance for users. • Natural processes force changes: Natural processes such as tree disease and forest fires put pressure on the system and create difficult decisions regarding facility access vs. safety risk. • Protection priorities: Financial resources are finite, so Parks is faced with difficult decisions regarding how to prioritize protection of natural habitats and cultural sites
Government policy and fiscal
• Public funding shift and need to earn revenue: Swift and dramatic changes in State Parks’ financing base between 2009 and 2013 shifted the agency from a budget relying on 70 percent of operating revenue from taxes, to an operation 80 percent reliant on revenue from use fees and donations. The State General Fund share for State Parks declined from $94.5 million in 2007-09 to $8.7 million in 2013-15. Determining the most appropriate ways to earn revenue to fund the system has become a new and very significant focus. • Not everything makes money: State Parks charges recreation access and service fees, but a meaningful part of its mission – stewardship and protection – does not directly generate revenue. These core activities result in benefits to all and are essential for sustaining the state’s environmental health, vibrant economy, quality of life and legacy for future generations. • Capital needs: In addition to sufficient operating funds, State Parks needs a strong capital budget to protect the state’s investment.
Law Enforcement
• A majority of the agency’s Park Rangers are fully commissioned law enforcement officers. Perceptions, concerns and expectations regarding law enforcement officers and their actions are very much in the public eye and highly sensitive in our current times.
Customer changes and expectations
• A changing Washington: The State Office of Financial Management reports that the state’s population will increase 21 percent over the next 20 years. During that time frame, Washingtonians also are expected to be more ethnically diverse, about 90 percent urban, and older. Currently, participation rates in outdoor recreation are lower amongst the elderly and some ethnic and racial minorities. • People do not want parks changed, but they do want technology: State Parks has received a clear and consistent message from people around the state: They love their state parks, and they do not want them commercialized or changed substantially. Many surveys report that access to quiet and beautiful natural places is essential for personal renewal and the social wellbeing of people in our state. At the same time, attitudes are shifting about technology in parks and the agency must consider embracing certain technologies that enhance services, expand communications and connections, and advance core missions.
Partnerships
• Other state agencies: State Parks must work effectively with partner agencies and organizations that provide similar or related services. Parks, Department of Fish and Wildlife and the Department of Natural Resources manage the Discover Pass program collaboratively. Parks works closely with other state agencies, counties, cities
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and public utility districts on joint or related projects. • Tribes: State Parks collaborates with native tribes on cultural and natural resource protection and cultural events. • Linkage to broader recreation, education and conservation purposes: The lands and waters of state parks meet multiple public interest objectives. Parks serve as habitat for larger natural system conservation. Park facilities are often used as sites for “in field” research and the education of children and adults in our common schools and universities. The State Parks “No Child Left Inside” grant program, administrated in coordination with the Recreation and Conservation Office, fosters connection between our state’s youth and the great outdoors. • Volunteers, friends groups and the Parks Foundation: All park systems utilize volunteers to help leverage and build advocacy. In 2013, volunteers contributed nearly 229,000 hours, serving as campground hosts and helping with trail and other projects. In close coordination with Parks leadership and field staff, the Foundation supports a Parks Improvements Grants program that helps to fund small park improvements throughout the system. Meanwhile, 19 incorporated friends groups associated with specific parks around the state work closely with staff to support and improve parks • Business relationships and partnerships: State Parks has dozens of concession and lease agreements with commercial businesses that provide equipment and services supporting the agency mission (boat rentals, firewood, etc.) Recently, State Parks signed a unique lease agreement to co-manage Fort Worden State Park. In addition, the agency is exploring partnership options where mission-aligned investment and development may more feasibly be accomplished by other public or private entities.
Principal Responsibilities – Prioritize a list of the principal responsibilities for which the position is accountable. Each statement should describe the responsibility, the required result, and the impact to the organization.
Sets, in coordination with the Commission, a strategic vision for the future of the agency. Responsible for preparation of the agency’s strategic plan, which establishes the priorities and direction of the agency. Oversees development of agency-wide goals, strategies and performance measures and assesses progress, reprioritizing and redirecting as necessary to ensure goals are met.
Responsible for the administration of a seven member Commission and managing a complex citizen-based governance system. Serves as the Chief Executive Officer to the Governor-appointed Commission. Facilitates the Commission meeting process, ensuring thorough evaluation of the issues before the Commission and public access and participation.
Responsible for the overall operation of the state’s park system, which includes 125 developed and staffed parks, the Seashore Conservation Area of Washington, and additional undeveloped properties. Manages statewide winter recreation and boating programs.
Oversees the agency’s efforts to promote the health and safety of visiting public, including law enforcement and potential environmental hazards.
Responsible for the overall financial health and security of the system. Secures funding for the system through grants management, legislative initiative and donations; approves spending plans and accounts for financial resources, including approximately $100 million (up from $40 million in 2007-09) in earned revenue each biennium.
Oversees funding strategies for the agency, including a necessary focus on methods for self-funding. Close attention is paid to fees and revenue generation concepts, considering the potential impact on all citizens’ ability to access their parks. Recruits, builds and enhances an Executive Leadership Team to manage the individual programs within the agency.
Represents the Commission with the Governor’s Office, state legislators and legislative committees, congressional members, tribes, county and city officials, community organizations, special interest groups, advisory groups and constituents.
Represents the state, the Commission and the Governor on matters concerning parks, in negotiations and communications with a range of governmental and public bodies: Legislature, state, federal and local governments, tribes
80 and the public. Parks related subject matter including park operations, outdoor recreation trends and demands, natural and cultural resource stewardship, and environmental education and interpretation.
Oversees and directs management coordination with National Park Service, U.S. Forest Service, U.S. Bureau of Reclamation, U.S. Corps of Engineers, Federal Power Commission, Public Utility Districts and other natural resource and recreation agencies.
Serves as a member of the Governor’s Goal Council and serves on the Natural Resources Sub-Cabinet, and at times participates in Executive Cabinet activities.
Serves as a voting member on the State Recreation and Conservation Funding Board. Serves as an Ex-Officio member on the following Boards: Mountains to Sound Greenway Trust Board, Washington Wildlife and Recreation Coalition Board, as well as the State Park Foundation Board. Is a member of the National Association of State Parks Directors, the National Recreation and Park Association and the Washington Recreation and Park Association.
Makes appointments and provides support for agency advisory committees such as the Fort Worden Advisory Committee, Snowmobile Advisory Committee, Winter Recreation Advisory Committee, the Kukatali Management Committee, the John Wayne Pioneer Advisory Committee and other related committees.
Legislatively mandated to make appointments to the Washington State Horse Park Authority and to the “No Child Left Inside” Advisory Committee. The NCLI committee assists the Director with providing over $940,000 dollars to organizations, agencies, and non profits to support getting youth outside and understanding their environment.
Recognized as a Law Enforcement Agency, the Director is responsible for Commissioning all Law Enforcement Officers (approximately 170 commissioned officers, 145 of them fully commissioned) and for providing state-required training and equipment needed to perform their jobs.
Works directly with the state’s Attorney General’s Office when legal assistance is needed due to agency work activities and/or with personnel issues.
Oversees the federal mandate of the Native American Graves Protection and Repatriation Act regarding the agency and responsible for cataloging and storage of historical and cultural artifacts found on state park properties.
Knowledge, Skills, and Abilities – Provide a brief statement indicating the knowledge, skills, and abilities needed to perform the full scope of the job responsibilities. List the preferred/desired education, experience, and competencies needed in this job.
Education:
A Bachelor’s degree in natural resource management, park management, outdoor recreation, public administration or business administration.
Background in parks management or natural resource management (i.e., geology, natural history, forestry, parks planning, recreation). Academic training in public management is desirable.
Experience, skills and knowledge:
Strong leader and manager. Experience leading and managing organizations including an understanding of the unique human resource and budgeting systems of government agencies. Experience and knowledge of union/management relationships.
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Strong visionary. Ability to direct and lead a complex agency. Ability to work with others in establishing a shared vision and use effective strategies to translate that vision into action.
Excellent communication skills. Ability to effectively communicate the vision strategies, and policy positions to stakeholders, public policy makers, agency staff and the general public.
Strong political acumen, sound judgment and understanding of state and national legislative processes.
Excellent inter-personal skills and ability to work collaboratively and in partnership with a diverse range of parties, stakeholders and legislators.
Ability to solve complex problems and issues, whether organizational or political. Excellent facilitation and conflict resolution skills.
The high-profile nature of the position requires strong communication and public speaking skills with the ability to articulate complex issues and make effective presentations to a variety of audiences, including the Governor, Legislature and other organizations.
Specialized (job content) knowledge and skills:
Knowledge of: population and recreation trends, land classification, State Environmental Protection Act, recreational immunity statutes, law enforcement issues, tribal governance and current issues, state employment laws, human resources and labor relations issues and structure, state ethics laws.
Business management and entrepreneurial perspective needed to work within existing funding situation.
Mental Demands – this section should include short and descriptive narratives that address the degree of effort exercised in meetings the following requirements of the position. Problem Solving/Decision Making Requirements – Provide a brief statement indicating the skill required by the job for analyzing, evaluating, creating, and reasoning, arriving at conclusions and making decisions.
Numerous factors create the need for unique problem-solving processes for this position: Washington State’s growing economy and population, and issues related to land use and development; continued difficult fiscal times for state government; natural and cultural resources challenges. The past approaches to operating a state park system must be re- invented in Washington State for the next century. Creative and unprecedented solutions must be explored. At the same time, the level and complexity of the challenge and the rate of change require prompt solutions. Decisions, positions, and timelines have many other drivers including: internal agency concerns; the governor’s office and legislative requirements, media deadlines and responses, external stakeholder requirements, and legal or court order requirements. The most critical skill necessary in this environment is the ability to determine the key factors that need to be considered and then develop and make a timely and prudent decision under pressure.
Independent Judgment – Briefly describe the extent and nature of the job’s problem solving requirements. The position requires a highly developed ability to solve complex, politically sensitive problems where little to no precedence has been set. The Director has nearly complete independent problem-solving responsibilities and decision- making authority. The director has primary authority for all agency operational decisions and policy development.
Accountability – Provide a brief statement indicating both the primary and shared accountability of the position (measured effect of the job on end results) for each of the following requirements of the position.
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Freedom to Act – Considers the degree of controls and limitations placed on the job’s authority that are set by laws, rules, policies, procedures, precedents, and standard practices. The position has been given explicit statutory responsibilities, under RCW 79A.05.010, 040, 060, 070 and elsewhere to carry out the executive duties of the agency. In addition, RCW 79A.05.075 allows the Commission to delegate any of its own powers and duties to the Director as the Commission deems proper.
The Commission has delegated numerous powers and duties to the Director, in addition to staffing and operations of the 730 FTE agency. These delegations include: Under real estate transactions and services: • Grant real property agreements or execute transfers of fee interest or development rights as provided for by law on at State Parks’ property which the Commission has designated as surplus • Transfer fee interests, through sale at public action or as provided for in RCW 79A.05.170, in any State Parks’ property which the Commission has designated as surplus parklands • Accept or grant non-fee simple agreements necessary for the implementation of State Parks’ projects, to continue current management activities, or partnerships, or to complete fee-simple real property purchases approved or budgeted by the Commission, or directed/funded by the Washington legislature or Governor’s Office • All other agreements for the installation, operation, and maintenance of utilities and facilities; for the use of park roads by second parties; and for other uses of parklands and facilities, when: 1) there is no permanent property right conveyed unless certain criteria is met, and 2) permits will not exceed five years, meet identified criteria, and improvements or facilities are movable and temporary in nature • Renew, replace, assign or amend existing leases, easement, permit and other agreement with current State Parks’ documents, when criteria are met • Accept services in lieu of or in addition to cash or monetary considerations for grants involving leases, permits or easements, when criteria are met • Accept or grant Restrictive Covenants, Declaration of Covenants and accept encumbrances, perpetual restrictions, conservation easements or deed reservations involving property for the purpose of protecting or improving recreational, natural, historical, or cultural resources, public health, safety and welfare • Accept or grant agreements with tribal and other forms of governments, non-profits, friends groups and accept encumbrances, perpetual restrictions, conservation easements or deed reservations involving property for the purpose of protecting or improving recreational, natural, historical, or cultural resources, public health, safety and welfare • Spend Parkland Acquisition Account (PAA) funds to execute agreements and purchase fee-simple ownership in properties or property rights when the fee-simple purchase is time-sensitive and/or where acquisition is effectively prohibited using tradition funding sources, under certain criteria • Spend PAA funds to obtain non-fee-simple ownership easements and rights for at least 30-year terms, under certain conditions • Accept donations of real property or partial interests in real property, under certain criteria • Acquire real property under 10 acres, with a purchase price of under $500,000 (2007 dollars, adjusted for inflation), and funding is available through PAA or a grant course, under certain conditions.
Other delegations: • Transfer funds from the reserve for emergency expenditures not greater than $1 million • Make direct lease negotiations for those public-private partnership proposals that do not lend themselves to competitive bidding • Enter into agreements with cooperating associations, which are private nonprofit groups that use agency property and facilities to raise money to contribute gifts, grants and support to State Parks. • Name constructed features (roads, trails, buildings, etc), landscapes, or natural features within parks • Commissioning of State Parks law enforcement officers
All other Commission level policies are drafted by the Director, which is supplemented by over 100 administrative policies
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Job Impact – Considers the type and degree of influence the job contributes to the end result.
The Director is responsible for laying the framework for the agency vision, and achievement of the agency’s mission while constantly seeking alignment between the Commission’s and the Governor’s priorities.
State parks have significant impact on the economics of our state and the health of its citizens, and this positions' leadership of the agency is critical to building and maintaining a healthy park system for today and for Washington's future.
A study commissioned by State Parks in 2015 showed that half of Washingtonians visited a state park in the previous two years, State park visits generate more than $64 million to the State General Fund each year and contribute more than $1.4 billion to the state economy. Additionally, the data demonstrated that this economic contribution has the effect of transferring economic activity from the urban portions of the state to rural areas.
It is widely accepted that active outdoor recreation provides physical and mental health benefits and helps to prevent obesity and risk of disease. The creation of the No Child Left Inside program being administered by State Parks is a reflection of that connection.
The Governor has set Outdoor Recreation as a priority for his administration, stating "increasing public access and use of state recreation lands is a priority intended to enhance personal health, create and sustain a healthy environment and build healthy local and state economies." "Washington's state parks offer something for everyone." "…visitors find parks a healthy and affordable way to explore and enjoy nature, create memories and connect with the state's risk historical and cultural heritage…".
Size of Impact – Financial and other quantifiable dimensions, influences, and impacts. Describe the type and annual amount of all the monies that the position directly controls or directly/indirectly influences.
Biennial numbers:
Operating Budget – $175 million Capital Budget - $ 90 million
Delegated purchasing authority is: Services - $1 million per project –large capital development projects Commodities - $150,00 per purchase
Other Financial Influences and Impacts –
Revenue = Total Revenue is $122 million, of which Discover Pass = $36 million Camping/Overnight Accommodations = $36 million License Renewal Donations = $15 million
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Other Sources = $35 million (included dedicated program)
Assets under control: . Land, Buildings, and Infrastructure = Over $2 billion in total (cost) . Equipment - $30 million (cost)
Economic Impact: . $212 million in federal, state and local tax revenue per year ($424 M biennially) . $64 million in taxes specifically to the General Fund per year ($128 M biennially)
Number of Employees: Operating Budget Amount: 730 FTEs, including about 500 full-time staff. During $ 175 million peak season, staffing is approximately 1,000 positions. Planning (Tactical and Strategic) – Focus on the job requirements. Briefly describe the impact of planning on the state’ mission and success of the agency.
The Director’s role is tactical and strategic in nature. The director identifies future opportunities and programs, retains or improves existing programs, and balances resources to meet needs as the department evolves. In addition, the Director leads and fosters a commitment to a strategic planning process to ensure efficient and effective use of agency resources in meeting the agency’s mission and goals.
Each year, the position develops and coordinates seven public commission meetings across the state, with the purpose of facilitating agency policy development.
Date: Signature:
Submit completed form and required documents to: [email protected]
Or Mail to: Office of the State Human Resources Director Attn: Compensation Team P O Box 47500 Olympia, WA 98504-7500
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Item E-6: Financial Update - Report
EXECUTIVE SUMMARY: This item reports to the Washington State Parks and Recreation Commission on the status of: 1) State Parks’ 2015-17 Biennium operating and capital budget and expenditures, and 2) Parks Renewal and Stewardship Account (PRSA) revenue collections. This item aligns with Agency core values and advances the Commission Transformation Strategy “Adopting a business approach to park system administration.”
SIGNIFICANT BACKGROUND INFORMATION
2015-17 Biennium Operating Budget: State Parks’ 2015-17 Biennium operating budget is currently $158.3 million of which $137.8 million is for general operations. Of the $137.8 million, $31.0 million is supported by tax dollars from the General Fund and Litter Tax revenue. The remainder is supported by earned revenue.
2015-17 Biennium Capital Budget: As of January, State Parks’ capital budget is $84.8 million ($61.1 million in the State Building and Construction Account). This amount includes direct appropriations, re-appropriations, grants, spending authority, and dollars received through interagency agreements.
2015-17 Biennium Revenue: The current 2015-17 revenue forecast for the Parks Renewal and Stewardship Account is $111.8 million (includes $10.0 million in litter tax transfers). This forecast projects a 6.9% growth of earned revenue over 2013-15 collections.
2016 Supplemental Budgets: The legislature passed and the Governor signed the 2016 operating and capital supplemental budgets.
Operating Supplemental Budget. State Parks’ request for $4.3 million in PRSA spending authority was approved to replace incompatible law enforcement radios, purchase fire-related equipment and supplies, invest in additional marketing efforts, and perform additional preventative maintenance.
Also, $9.9 million in PRSA spending authority was provided to pay for additional preventative maintenance. This additional spending authority is dependent upon earning revenue at expected levels and use of reserves. Spending plans are being finalized to identify and address preventative maintenance priorities and determine how much to spend. Other budget items included: . The Snowmobile and Winter Recreation programs were directed to pay additional costs for the Northwest Avalanche Center - $25K each . Direction to pay $100K from the PRSA for noxious weed control on the John Wayne Pioneer Trail . Direction to pay $250K for a recreation access pass study . Direction to pay $20K to Skamania County to defray the costs of processing Discover Pass citations . Other adjustments for changes in statewide costs
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Attached is a summary (Appendix 4) that shows State Parks new operating budget totals for 15- 17 as a result of the Legislature passing, and Governor signing, the 2016 operating budget supplemental.
Capital Supplemental Budget. Adjustments made to the capital budget that affect Parks are: . $50K was provided to pay for a study on potential viable nonprofit or public partnership opportunities at St. Edward . A $1.0 million increase in spending authority to ensure we have sufficient authority to spend grant and donation dollars that are received . A requirement for Parks to evaluate the use of locally produced renewable bio-fertilizer fiber from dairy digester systems. The Department of Natural Resources and Department of Fish and Wildlife will also participate in the evaluation.
CURRENT FINANCIAL INFORMATION
2015-17 Operating and Capital Expenditures Operating: The Agency continues to have a positive spending variance for the period ending March 31, 2016. The variance is mostly due to staff vacancies as the Agency experiences normal vacancy rates of about 2.2%. To-date, the total spent was $53.9 million, of which $47.0 million was for general operations. The Agency continues to carefully monitor actual spending against its plans and make needed adjustments to ensure spending remains on target. Fund balance for the PRSA continues to decline as expected - a result of executing spending plans and because winter and spring are lower revenue producing months. The March balance is $17.8 million; down from $19.2 million in January.
Capital: Since January, an additional $2.1 million in grants were allotted, resulting in a capital budget of $86.9 million ($61.1 million for the State Building and Construction Account).
As of March 31, 2016 the Agency’s biennium-to-date spending plan for the State Building and Construction Account totaled $19.2 of which $12.3 million was expended ($7.8 million on new projects and $4.5 million on re-appropriated projects). This represents a 36% biennium-to-date variance. Currently, the projected re-appropriation rate for new 2015-17 projects is 15%. These two statistics (the biennium-to-date variance and the re-appropriation rate) are two of the performance measures established and monitored by the Capital Program.
2015-17 Revenue For the first time since the start of the 2015-17 biennium, all categories of earned revenue collections turned positive, exceeding estimates. Collectively, PRSA revenue collections for Discover Pass sales, camping, cabins, yurts, other lodging, “opt-out” donations through the Department of Licensing, and other revenue are 2.4 % above estimates as of March 31, 2016.
Comparing biennium-to-date revenue collections against estimates for the five categories shows: 1) Discover Pass revenue is 0.8% above projection 2) Revenue from camping is 1.3% above projection 3) Cabins and other lodging revenue are 1.5% above projection 4) Donations through the “opt out” program are 8.7% above projection
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5) Other revenue sources are 2.2% above projection
In April 2016, the earned revenue forecast will be reviewed for potential adjustment. The next forecast update will be in the summer for inclusion in the 2017-19 budget request.
SUPPORTING INFORMATION
Appendix 1: Operating and Capital Budget Financial Report Appendix 2: Parks Renewal and Stewardship Account (PRSA) Revenue Summary Appendix 3: Earned Revenue – Percentage Over or Under Estimate; Accumulative Appendix 4: State Parks’ 2015-17 Operating Budget – Adjusted for 2016 Supplemental
______Author/Contact(s): Shelly Hagen, Assistant Director, Administrative Services [email protected], (360) 902-8621
Reviewer(s): Jessica Logan, SEPA Review: Pursuant to WAC197-11-704, staff has determined that this Commission agenda item is a report and therefore is not subject to State Environmental Policy Act (SEPA) review. Christeen Leeper, Fiscal Review: Report only, no fiscal impact. Michael Young, Assistant Attorney General: Report only, no review necessary.
Approved for Transmittal to Commission
______Don Hoch, Director
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APPENDIX 1 OPERATING AND CAPITAL BUDGET FINANCIAL REPORT 2015-17 BIENNIUM As of March 31, 2016
Operating Budget
Biennial Expenditures Percent Fund/Account Budget To Date Balance Spent General Operating Funds General Fund - State* 21,014,000 7,485,125 13,528,875 35.6% Parks Renewal and Stewardship Acct. (PRSA) 116,707,000 39,469,230 77,237,770 33.8% Subtotals 137,721,000 46,954,355 90,766,645 34.1%
Other Funds PRSA/Dedicated Funds** 20,573,000 6,981,209 13,591,791 33.9% Totals 158,294,000 53,935,565 104,358,435 34.1% * Includes Avalanche Center and LID Property Assessments ** Restricted for private/local grants, donations, Boating and Winter Recreation Programs, ORV, Roads, and non-appropriated funds
PRSA Fund Balance Information
Date Balance June 30, 2015 19,495,145 March 31, 2016 17,778,171 Note: Commission Policy for Working Capital Reserve - $8.5 Million
Capital Budget
Biennial Expenditures Percent Funding Source Budget To Date Balance Spent New Projects - State Bldg. Constr. Acct. 52,896,000 7,788,414 45,107,586 14.7% Reappropriations - State Bldg. Constr. Acct. 8,190,538 4,530,792 3,659,746 55.3% Subtotals 61,086,538 12,319,206 48,767,332 20.2%
Grants/Donations/Pass Through Funds State Grants/Donations/Parkland Acquisition* 22,433,063 6,816,233 15,616,830 30.4% Federal Grants/Pass through Funds** 3,350,000 234,161 3,115,839 7.0% Totals 86,869,601 19,369,600 67,500,001 22.3% * Includes private/local spending authority for grants including re-appropriations ** Includes Clean Vessel grants issued to other entities, and spending authority for grants
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APPENDIX 2 PARKS RENEWAL AND STEWARDSHIP ACCOUNT (PRSA) REVENUE SUMMARY 2015-17 Biennium As of March 31, 2016 Percent Actuals Biennial Estimate Actuals Variance To Over/Under Revenue Category Estimate To Date To Date Date To Date Discover Pass Sales 36,224,000 10,703,200 10,784,864 81,664 0.8% Camping & Related Sources 31,329,608 10,373,404 10,505,372 131,968 1.3% Cabins/Yurts/Other Lodging 4,557,492 1,489,996 1,512,400 22,404 1.5% License Renewal Donations 14,766,000 4,981,200 5,412,907 431,707 8.7% Other * 14,922,900 5,637,400 5,760,785 123,385 2.2% Subtotal 101,800,000 33,185,200 33,976,327 791,127 2.4%
Litter Tax 10,000,000 3,750,003 3,750,000 (3) 0.0% Totals 111,800,000 36,935,203 37,726,327 791,124 2.1% * Other revenue sources include leases, reservation fees, retreat centers, boat moorage and watercraft launch fees, day use fees, etc.
Percent of Revenue Collected by Source
9.9% Discover Pass Sales 28.6%
Camping Related Sources 27.9% 28.6% 15.3% Cabins/Yurts/Other Lodging 4.0%
License Renewal Donations 14.3%
14.3% Other 15.3%
27.9% 4.0% Litter Tax 9.9%
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APPENDIX 3 EARNED REVENUE – PERCENTAGE OVER OR UNDER ESTIMATE ACCUMULATIVE 2015-17 Biennium As of March 31, 2016 July 2015 Aug 2015 Sept 2015 Oct 2015 Nov 2015 Dec 2015 Jan 2016 Feb 2016 Mar 2016 Variance Variance Variance Variance Variance Variance Variance Variance Variance Discover Pass -16.2% -13.4% -12.3% -9.5% -7.6% -6.6% -6.7% -1.7% 0.8%
Donations -0.7% 1.9% 1.7% 5.4% 6.6% 8.1% 6.8% 7.8% 8.7%
Camping 22.9% 8.9% 6.9% 6.9% 5.5% 5.5% 5.5% 0.8% 1.3%
Other Lodging 7.4% 8.0% -0.9% -2.6% -4.3% -3.7% -4.2% 1.8% 1.5%
Other -15.0% -7.4% -3.6% -0.7% 14.0% 14.8% 8.1% 4.1% 2.2% Totals 1.2% -1.2% -1.2% 0.2% 2.5% 3.2% 1.8% 1.6% 2.4%
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APPENDIX 4 STATE PARKS’ 2015-17 OPERATING BUDGET ADJUSTED FOR 2016 SUPPLEMENTAL April 22, 2016
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SUMMARY Initial 2016 By Fund/Account Budget Supplemental Total 2015-17 Operating Budget Parks Renewal & Stewardship Account -State 116,707,000 14,650,000 131,357,000 General Fund - State 21,053,000 614,000 21,667,000 Sub-Total General Operation 137,760,000 15,264,000 153,024,000 Parks Renewal & Stewardship Account-P/L 318,000 0 318,000 General Fund - Federal 6,920,000 0 6,920,000 Other 13,335,000 320,000 13,655,000 Total Operating Budget 158,333,000 15,584,000 173,917,000 Note: "General Operations" budget $153,024,000 after supplemental.
Supplemental/Adjustment Item Detail 2016 Supplemental Items Supplemental Asset Protection and Park Promotion 4,266,000 Park Improvements 9,919,000 Northwest Avalanche Center 50,000 Lean Management Practices (39,000) John Wayne Trail Noxious Weed 100,000 Recreation Access Pass 250,000 State-wide Adjustments - State Parks Portion 1,038,000 Supplemental Total 15,584,000
Notes: Asset Protection and Park Promotion - authorizes requested spending to pay for replacement of incompatible law enforcement radios, fire-related equipment and supplies, invest in more marketing efforts and perform additional park maintenance. Park Improvements - provides additional spending authority to address Parks' preventative maintenance backlog. Direction to provide $50,000 to help pay for an additional forecaster at the Northwest Avalanche Center from the Snowmobile and Winter Recreation Program accounts. The $39,000 reduction in General Fund is for State Parks portion of LEAN efficiency savings. Direction to fund $100,000 for noxious weed control on the John Wayne Trail. Direction to fund $250,000 for a recreation access pass study. State-wide adjustments reflect cost increases and reductions for central services. Not included in the budget total is a $20,000 grant out of the Recreation Access Pass Account through the Department of Commerce to defray Skamania County court costs to process Discover Pass citations.
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Item: E-7: Proposed 2017 Regular Meeting Schedule for the Washington State Parks and Recreation Commission – Report
EXECUTIVE SUMMARY: This item asks the Washington State Parks and Recreation Commission to review the suggested meeting dates and locations for their regular 2017 meeting schedule. This item aligns with Agency core values and advances the Commission Transformation Strategy: “Demonstrating that all Washingtonians benefit from their state parks”.
SIGNIFICANT BACKGROUND INFORMATION: Commission meetings are conducted in different geographic locations across the state to enable citizens to address their suggestions and concerns to the Commission. It is the Commission’s intent to be visible and responsive to issues in different areas motivated by weather, population, location and types of recreational and natural resource issues. It is also the Commissioners intent to comply with direction from the Governor, the Legislature and the public to be fiscally prudent and responsible. Commission meetings typically consist of a three/four day schedule consisting of a work session on Wednesday, a regular Commission meeting on Thursday and if scheduled park tours on Tuesday and/or Friday.
SUPPORTING INFORMATION: Appendix 1: Previous Meeting Dates and Locations. Appendix 2: Potential meeting dates & locations for 2017
Author/Contact(s): Becki Ellison, Executive Assistant [email protected] (360) 902-8502
Reviewer(s): Jessica Logan, SEPA Review: Pursuant to WAC 197-11-704, staff has determined that this Commission agenda item is a report and therefore is not subject to State Environmental Policy Act (SEPA) review. Shelly Hagen, Fiscal Review: Report only, no impact at this time. Michael Young, Assistant Attorney General: Report only, no review necessary. Approved for Transmittal to Commission
______Don Hoch, Director
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APPENDIX 1 PREVIOUS MEETING DATES AND LOCATIONS
2005 2006 January Olympia January Hoodsport March Lake Quinalt March Cle Elum April LaConner May Cama Beach June Colville June Spokane August Whidbey Island August Chelan October Grand Coulee October San Juan November Tacoma November Bellingham
2007 2008 January Fort Worden January Silverdale March Castle Rock March Lakewood April Quincy April Cama Beach June Pullman June Okanogan August Westport August Cama Beach September Republic September Yakima November Bellingham November Vancouver
2009 2010 January Ocean Shores January Olympia February Olympia March Lakewood March Port Angeles May Montesano May Olympia June Walla Walla April Ellensburg July Olympia June Wenatchee September Olympia August Pasco November Olympia October Spokane December Olympia
2011 2012 January Olympia February Olympia March Olympia March Fort Worden May Spokane May Yakima August Wenatchee August Wenatchee September Olympia June Olympia October Pasco October Vancouver November Cama Beach
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2013 2014 January Ocean Shores January Olympia March Olympia March Chehalis April Olympia May Winthrop May Pasco July Bellingham June Spokane September Ilwaco August Anacortes November Spokane September Chelan December Olympia November Gig Harbor
2015 2016 January Olympia January Lynwood March DuPont March Olympia May Cle Elum May Moses Lake July Poulsbo July Clarkston September Spokane September Sequim November Stevenson November Yakima December Gold Bar December Fort Worden
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