MARCH 2006

Purpose and Outreach Strategy Report

Countywide Green Infrastructure
FUNCTIONAL MASTER PLAN

A Plan For Natural Connections

THE MARYLAND-NATIONAL CAPITAL PARK AND PLANNING COMMISSION

 ABSTRACT

TITLE: Purpose and Outreach Strategy Report – Countywide Green

Infrastructure Functional Master Plan

AUTHOR: The Maryland-National Capital Park and Planning

Commission

SUBJECT: Background information and Green Infrastructure Functional

Master Plan purpose and public outreach strategy

DATE: March 2006

PLANNING The Maryland-National Capital Park and Planning Commission

AGENCY: 8787 Georgia Avenue
Silver Spring, Maryland 20910-3760

SOURCE OF The Maryland-National Capital Park and Planning Commission

COPIES: 8787 Georgia Avenue
Silver Spring, Maryland 20910-3760

NUMBER OF
PAGES: 25

ABSTRACT: This report contains an overview of the purpose, objectives, public

outreach strategy, and tentative timeline for the Countywide Green
Infrastructure Functional Master Plan.
Looking north towards Sugarloaf Mountain from Ridge Road (Rt.27), October 2003.

Purpose and Outreach Strategy Report

Countywide Green Infrastructure
FUNCTIONAL MASTER PLAN

MARCH 2006
 THE MARYLAND-NATIONAL CAPITAL PARK AND PLANNING COMMISSION

The Maryland-National Capital Park and Planning Commission is a bi-county agency

created by the General Assembly of Maryland in 1927. The Commission’s geographic
authority extends to the great majority of Montgomery and Prince George’s Counties;
the Maryland-Washington Regional District (M-NCPPC planning jurisdiction) comprises
1,001 square miles, while the Metropolitan District (parks) comprises 919 square miles,
in the two counties.

The Commission has three major functions:

1. The preparation, adoption, and, from time to time, amendment or extension of

The General Plan (On Wedges and Corridors) for the Physical Development of
the Maryland-Washington Regional District in Montgomery and Prince George’s
Counties;

2. The acquisition, development, operation, and maintenance of a public park

system; and

3. In Prince George’s County only, the operation of the entire County public
recreation program.

The Commission operates in each county through a Planning Board appointed by and
responsible to the county government. All local plans, recommendations on zoning
amendments, administration of subdivision regulations, and general administration of
parks are responsibilities of the Planning Boards.

The Maryland-National Capital Park and Planning Commission encourages the

involvement and participation of individuals with disabilities, and its facilities are
accessible. For assistance with special needs (e.g. large print materials,
listening devices, sign language interpretation, and others), please contact the
Community Relations Office, 301-495-4600 or TDD 301-495-1331.

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 ELECTED AND APPOINTED OFFICIALS

COUNTY COUNCIL

George F. Leventhal, President

Marilyn J. Praisner, Vice-President
Philip Andrews
Howard A. Denis
Nancy Floreen
Michael Knapp
Thomas Perez
Steven A. Silverman
Michael L. Subin

COUNTY EXECUTIVE

Douglas M. Duncan

THE MARYLAND-NATIONAL CAPITAL PARK AND PLANNING COMMISSION

Derick P. Berlage, Chairman

Samuel J. Parker Jr., Vice Chairman

COMMISSIONERS

Montgomery County Prince George’s County

Planning Board Planning Board

Derick P. Berlage, Chairman Samuel J. Parker Jr., Chairman

Wendy C. Perdue, Vice Chair William M. Eley, Jr., Vice Chairman
Allison Bryant Colonel John H. Squire
John M. Robinson Sylvester J. Vaughns
Meredith K. Wellington Jesse Clark

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THE MASTER PLAN PROCESS
The Master Plan
STAFF DRAFT PLAN — This document is prepared by the
Process in Brief
Montgomery County Department of Park and Planning for
presentation to the Montgomery County Planning Board. The Annual Work Program
Planning Board reviews the Staff Draft Plan, makes preliminary
changes as appropriate, and approves the Plan for public Park and Planning staff
hearing. When the Planning Board’s changes are made, the initiates community
document becomes the Public Hearing (Preliminary) Draft Plan. participation and
prepares:
PUBLIC HEARING (PRELIMINARY) DRAFT PLAN — This
document is a formal proposal to amend an adopted master plan Purpose and Outreach
or sector plan. Its recommendations are not necessarily those of
Report
the Planning Board; it is prepared for the purpose of receiving
public hearing testimony. The Planning Board holds a public Park and Planning staff
hearing and receives testimony on the Draft Plan. After the reviews Report with Planning
public hearing record is closed, the Planning Board holds public
Board and then
worksessions to review the testimony and to revise the Public
Hearing (Preliminary) Draft Plan as appropriate. When the prepares:
Planning Board’s changes are made, the document becomes
Staff Draft Plan
the Planning Board (Final) Draft Plan.
Planning Board reviews
PLANNING BOARD (FINAL) DRAFT PLAN — This document Staff Draft and, with
is the Planning Board's recommended Plan and it reflects the
modifications as
revisions made by the Board in its worksessions on the Public
Hearing (Preliminary) Draft Plan. The Regional District Act necessary, approves plan as
requires the Planning Board to transmit the Master Plan directly suitable for public hearing.
to the County Council with copies to the County Executive. The
Regional District Act then requires the County Executive, within
Public Hearing (Preliminary)
sixty days, to prepare and transmit a fiscal impact analysis of the Draft Plan
Planning Board (Final) Draft Plan to the County Council. The
Planning Board reviews public
County Executive may also forward to the County Council other
comments and recommendations regarding the Planning Board hearing testimony, receives
(Final) Draft Plan within the sixty-day period. County Executive comments at
Board worksessions, and
After receiving the Executive's fiscal impact analysis and adjusts Public Hearing Draft
comments, the County Council may hold a public hearing to to become:
receive public testimony on the Master Plan. After the record of
this public hearing is closed, the Council's Planning, Housing, Planning Board (Final) Draft
and Economic Development (PHED) Committee holds public Plan
worksessions to review the testimony and then makes
recommendations to the County Council. The Council holds its County Executive reviews
own worksessions, and then adopts a resolution approving the Planning Board Draft and
Planning Board (Final) Draft Plan, as revised. forwards fiscal impact analysis
and comments to County Council.
ADOPTED PLAN — The Master Plan approved by the County
Council is forwarded to The Maryland-National Capital Park and Planning Board (Final) Draft
Planning Commission for adoption. Once adopted by the Plan Transmitted to County
Commission, the Plan officially amends the various master or Council
sector plans cited in the Commission's adoption resolution.

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 TABLE OF CONTENTS

Page No.

INTRODUCTION ..................................................................................................1
What is Green Infrastructure? ...........................................................................1
Why Does the County Need a Green Infrastructure Plan?................................1
Relationship to Other Plans and Programs .......................................................6
Goal of the Countywide Green Infrastructure Functional Master Plan.............13
Objectives of the Countywide Green Infrastructure Functional Master Plan ...13
Why a Functional Master Plan for Green Infrastructure? ................................14

MAJOR THEMES AND ISSUES ........................................................................15

PROPOSED MASTER PLAN PROCESS ..........................................................22

Proposed Public Outreach Strategy ................................................................22
Public Outreach Strategy Outline ....................................................................23
Tentative Master Plan Schedule......................................................................25

LIST OF FIGURES

Figure 1. Forest Protection in Montgomery County...............................................2

Figure 2. Sensitive Area Protection in Montgomery County..................................2
Figure 3. 1973 Land Use ......................................................................................4
Figure 4. 2000 Land Use ......................................................................................5
Figure 5. Montgomery County Forest Change over Time
(Percent of total County area)..............................................................16
Figure 6. Montgomery County Existing Forest Cover .........................................17
Figure 7. Montgomery County Stream Quality Conditions ..................................19

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vi
INTRODUCTION

What is Green Infrastructure?

Green Infrastructure is a network of waterways, wetlands, woodlands, wildlife

habitats and other natural areas of Countywide significance that supports native
species, maintains natural ecological processes, sustains air and water
resources, and contributes to health and quality of life. As an interconnected
system, green infrastructure provides greater environmental viability, value, and
function than the sum of the individual resources.

Why Does the County Need a Green Infrastructure Plan?

The overall protection of sensitive environmental features occurs through the

implementation of policies and regulatory requirements found in area master and
sector plans, the County subdivision regulations, the requirements of the State
and County Forest Conservation Law, the County Environmental Guidelines, and
the protection of wetlands through State and federal regulations. As land
development proposals are submitted for review, natural resources and sensitive
environmental areas are identified for preservation, enhancement, or mitigation.
Although these have proven to be effective mechanisms in setting
recommendations and requirements for environmental preservation and
mitigation, they would benefit from a Countywide vision and plan for ecosystems
and natural area connections.

To date, the County’s programs and mechanisms for land acquisition for
preservation have also provided a great benefit to the County in terms of
protecting and preserving many natural areas. The County’s Legacy Open
Space Program has acquired many unique environmental areas, sites of historic
value, and areas important for water supply protection. The Park and Planning
Department acquires land for recreation and preservation purposes, as set forth
in area master plans and in accordance with the Park Recreation & Open Space
(PROS) Master Plan, and in the Land Preservation, Parks and Recreation Plan
(LPPRP). At the State level, the Maryland Department of Natural Resources has
completed a green infrastructure initiative intended to guide and coordinate State
land conservation and preservation efforts. Although these various programs
and mechanisms have resulted in the protection and preservation of much
valuable natural land in the County, as well as an exemplary stream valley park
system, an overall plan for what the County’s green infrastructure should look
like, especially in terms of ecosystem connectivity between park and non-park
natural areas, remains lacking. A Countywide green infrastructure plan would
improve the overall natural land acquisition and preservation process in the
County.

As Figure 1 shows, only about 35% of the total forest area in the County is
currently on public parkland. Another 4% is in proposed parkland and 4% in

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conservation easements. A total of 57% of forest area in the County, or about
51,000 acres, is on privately owned land. As a result, most County forested land
is not specifically protected. These areas are at risk for increased fragmentation
and further loss of ecological function.

Montgomery County Forest Protection

Existing Park* 35%

Private Land w/o Easements 57%

Proposed Park* 4%
Conservation Easements 4%

Figure 1. Forest Protection in Montgomery County

*Note: Existing and Proposed Park acreage includes Federal, State, County, M-NCPPC parkland, and
WSSC reservoir protection property.

Similarly, Figure 2 shows that Countywide, 33% of environmentally sensitive

areas (including stream buffers, floodplains, and steep slopes) are within
parkland. Another 3% are in proposed parkland and 2% in conservation
easements. About 62% of sensitive areas, or about 52,000 acres, are on private
lands. Although the Forest Conservation Law and the Environmental Guidelines
protect sensitive areas on property proposed for development, many areas
developed before these programs were in place and sensitive area protection is
at the discretion of the property owner.

Protection of Sensitive Areas

Existing Park* 33%
Private Land w/o Easements 62%

Proposed Park* 3%
Conservation Easements 2%

Figure 2. Sensitive Area Protection in Montgomery County

*Note: Existing and Proposed Park acreage includes Federal, State, County, M-NCPPC parkland, and
WSSC reservoir protection property.

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A Countywide green infrastructure plan is needed to coordinate the various
existing State and local efforts to protect natural areas, provide a Countywide
guide to setting priorities, evaluate alternatives and optimize mitigation programs,
and to implement a long-term environmental vision for the County. The plan will
identify important Countywide natural resources and recommend ways to protect
and restore a Countywide network of significant environmental features that
retain ecological functions, maintain and improve water quality, and support the
development pattern of the General Plan.

Just as a countywide perspective and connectivity are important in planning for,

upgrading and expanding gray infrastructure (e.g. roads, stormdrains, sewers,
and utilities), they are also important in planning for, upgrading, expanding and
protecting functional natural areas, or green infrastructure. This is especially true
for urbanizing areas such as Montgomery County.

Figures 3 and 4 provide a 30-year perspective on changes in developed and

forested land in the County between 1973 and 2002. As the proportion of
developed land has increased, natural areas have not only decreased in area,
but have undergone a significant increase in fragmentation. As development
pressures increase, it becomes increasingly important to have a plan for the
integrity and functionality of green infrastructure. A Countywide green
infrastructure plan will identify what the environmental framework of the entire
County should look like, providing a target to work toward during master plan
revisions, development review decisions, and park acquisition programs.

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Montgomery County 1973 Land Use / Land Cover

Figure 3. 1973 Land Use

4
Montgomery County 2002 Land Use / Land Cover

Figure 4. 2000 Land Use

5
Relationship to Other Plans and Programs

The Countywide Green Infrastructure Functional Master Plan is intended to

provide important support for the attainment of a number of goals and objectives
contained in existing County and State plans and programs.

General Plan Refinement of the Goals and Objectives for Montgomery County

The approved and adopted General Plan Refinement-Goals and Objectives of

1993 contains the following goal:

“Conserve and protect natural resources to provide a healthy and beautiful

environment for present and future generations. Manage the impacts of human
activity on our natural resources in a balanced manner to sustain human, plant,
and animal life.”

To meet this goal, the General Plan Refinement includes a number of objectives.
The objectives that would be most supported and advanced by developing a
Green Infrastructure Plan are as follows:

• Preserve natural areas and features that are ecologically unusual,

environmentally sensitive, or possess outstanding natural beauty.
• Protect and improve water quality.
• Conserve County waterways, wetlands, and sensitive parts of stream
valleys to minimize flooding, pollution, sedimentation, and damage to the
ecology, and to preserve natural beauty and open space.
• Preserve and enhance a diversity of plant and animal species in self-
sustaining concentrations.
• Increase and conserve the County’s forests and trees.

In addition, the General Plan Refinement lists strategies to support the meeting
of the objectives. The strategies that would be most facilitated by the creation of
a Green Infrastructure Plan are:

• Connect parks and conservation areas to form an open space and

conservation-oriented greenway system.
• Determine and protect the land and water masses and linkages
necessary to support a diversity of species in self-sustaining
concentrations.
• Plan a system of parks, conservation areas, subdivision open space, and
easements to support a diversity of species in self-sustaining
concentrations.
• Minimize forest fragmentation to protect habitat continuity.
• Identify and designate forest preservation and tree planting areas.

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Park, Recreation, and Open Space (PROS) Master Plan

The 1998 Park, Recreation, and Open Space (PROS) Master Plan includes a
series of recommendations for natural resource protection. The natural
resources section of the PROS plan relied largely on the environmental and park
acquisition recommendations in approved master plans and various studies
conducted by Park and Planning staff. The recommendations and strategies
from the PROS Plan that would be most advanced by the development of a
Countywide Green Infrastructure Plan are:

• Consistently use a planned approach to natural resources management,

cognizant of the ecological interdependencies of people, animals, plants,
water, and soil.
• Connect parks and environmentally sensitive areas to form an open
space and greenway system.
• Plan for and encourage the provision of greenways to connect urban land
and rural open spaces to provide access to parkland, and to connect
major stream valley park areas.
• Expand major stream valley park areas along smaller tributaries and over
ridges between watersheds to provide greenway linkages and protect
stream water quality.
• Provide connections between stream valley parks to create a network of
greenways.
• Preserve high quality forests.

The PROS Strategic Plan will be prepared in 2006. This plan will deal with
important local issues for planning recreation, agricultural, cultural, and natural
resource protection. The findings of the Green Infrastructure Plan that are
available will be used to help set priorities and address issues related to natural
resource protection.

Land Preservation, Parks, and Recreation (LPPR) Plan

The State maintains and periodically updates the Guidelines for State & Local
Land Preservation, Parks, and Recreation (LPPR) Planning. These guidelines
are used by local jurisdictions to create LPPR plans to remain eligible for State
funding for open space acquisition and development. Within the guidelines, the
State has listed its goals for conservation of natural areas. The goals that relate
directly to the importance of comprehensive planning for green infrastructure
include the following:

• Identify, protect, and restore lands and waterways in Maryland that

support important natural resources and ecological functions, through
combined use of the following techniques:
o Public land acquisition and stewardship

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 o Preservation and stewardship on private lands through easements
and assistance
o Local land use management plans and procedures that conserve
natural resources and environmentally sensitive areas and
minimize impacts to natural areas when development occurs.
• Focus conservation and restoration activities on priority areas within the
Statewide green infrastructure.
• Develop a more comprehensive inventory of natural areas and
environmentally sensitive areas to assist State and local programs.
Accomplish this by synthesizing local inventories with the Department of
Natural Resources’ inventory of green infrastructure in each county.
• Assess the combined ability of State and local programs to:
o Expand and connect forests, farmlands, and other natural lands as
a network of contiguous green infrastructure.
o Protect critical terrestrial and aquatic habitats, biological
communities, and populations.
o Manage watersheds in ways that protect, conserve, and restore
stream corridors, riparian forest buffers, wetlands, floodplains, and
aquifer recharge areas and their associated hydrologic and water
quality functions.
• Establish measurable objectives for natural resource conservation and an
integrated local strategy to achieve them through and local
implementation programs.

The LPPR Guidelines as a minimum requirement, ask for specific information

related to comprehensive green infrastructure issues, which, among others,
includes:

• Has the County completed a general or detailed inventory and

assessment of natural resource lands and environmentally
sensitive areas, i.e., green infrastructure, independent of or in
addition to the Department of Natural Resources’ green
infrastructure survey?
• Does the County have a strategy to map, expand, and better
connect forests, farmlands, and other natural lands as a network of
contiguous green infrastructure? If so, what is the status of the
effort? Is the strategy an adopted part of the comprehensive plan?
What implementation tools are being employed?
• What are the shortcomings in the ability of combined State and
local programs to protect and preserve a contiguous network of
green infrastructure consisting of forests, farmlands, and other
natural lands in the County?

To help achieve State and local environmental goals, complement and enhance
existing plans and mechanisms for natural area conservation, and to continue to
be eligible for State funding, M-NCPPC’s recently approved Land Preservation,

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Parks, and Recreation Plan includes the development of a Countywide Green
Infrastructure Plan.

Legacy Open Space (LOS) Functional Master Plan

The Legacy Open Space Plan is a strategic plan aimed at identifying the “best of
the best” natural (and other) open space resources in the County. Although the
LOS plan addresses the overall concept and
importance of green infrastructure, it was not
intended to address all resources for overall
ecological connectivity and function. The Green
Infrastructure Plan will give us a broader
understanding of the County’s natural resources,
their relative significance, and how best to achieve
a functional network of important green space. Any
sites identified by the Green Infrastructure Plan that
meet Legacy Open Space criteria can be
considered for addition to that program through the
process provided by that plan. In addition, the
Green Infrastructure Plan will provide information to
rank some of the lands in the larger areas, such as
the Broad Run watershed and the Water Supply
Protection Areas. As a result, the Green
Infrastructure Plan will complement the Legacy
Open Space Plan, providing the County with a more comprehensive approach to
natural resource protection.

Environmental Guidelines and Forest Conservation Regulations

In 1983, the Planning Board approved the Environmental Guidelines for staff use
in reviewing the elements of development proposals, and in formulating
recommendations to the Planning Board. The Guidelines, revised in 1997,
provide criteria for environmental buffers, protection of certain habitats, steep
slopes, erodible soils, and dam breach safety areas in the development process.
The application of the guidelines is flexible and can be adapted to unique site
conditions.

Maryland’s Forest Conservation Act, passed in 1991, requires forest and tree
retention and replanting as part of the approval of development. Accordingly,
regulations involving forest conservation and tree preservation have been
established. The County’s Forest Conservation Regulations and Environmental
Guidelines work together to protect sensitive environmental areas and some
forested areas of properties approved for development.

A green infrastructure plan will enhance the effectiveness of the guidelines and
the Forest Conservation Regulations by providing a Countywide perspective to

9
guide their interpretation and application, and showing where to prioritize green
space for maximum benefit. This will serve to improve the value of the guidelines
and Forest Conservation Regulations in achieving Countywide resource
protection goals.

Functional Master Plan for the Preservation of Agriculture and Rural Open Space
in Montgomery County

The Agricultural and Rural Open Space Functional Master Plan, prepared in
1980, focuses on the preservation of farmland, and established a policy
framework that helps to contribute to the continuation of farming in the County.
The Agricultural Reserve is also rich in natural resources. The Reserve contains
many streams with good water
quality, and approximately one
fourth of the total area is forested.
Although agriculture is the main
focus of the plan, it also includes
consideration of environmental
issues and needs in the rural
area. The plan recognizes the
value of forested land and wildlife
resources, as well as the
importance of air and water
quality. Nevertheless, the plan
does not provide a
comprehensive vision and plan
for green infrastructure in the Agricultural Reserve. As a result, there are
currently many natural areas that are potentially at risk there. The Green
Infrastructure Plan will work with the Agriculture Plan to help protect and enhance
the quality of life and natural resources in the Agricultural Reserve. As with the
rest of the County, the Green Infrastructure Plan will identify a desired potential
network of green space within the Agricultural Reserve. However, unless
subdivision development plans come in for review, protection, preservation, and
enhancement of private natural areas in the Agricultural Reserve will rely on
voluntary efforts. A number of incentives currently exist for voluntary protection
and/or enhancement of natural lands, and the Green Infrastructure Plan will
make recommendations about how to combine programs to achieve the desired
network.

Countywide Park Trails Plan

The Countywide Park Trails Plan proposes a 250-mile interconnected system of

hard surface and natural surface trails of Countywide significance. Many of the
existing and proposed County park trails are in natural areas. These trails allow
park visitors an opportunity to experience nature first hand, and therefore are an
important recreational and educational resource. As with other existing County

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plans, the Green Infrastructure Plan will complement and work with the County
Trails Plan, providing valuable input to the trail planning process and enhancing
the effectiveness of both plans.

Revitalizing Centers, Reshaping Boulevards, and Creating Great Public Spaces

(Draft Planning Framework)

Montgomery County is currently exploring and developing a new planning

framework on Revitalizing Centers, Reshaping Boulevards, and Creating Great
Public Spaces. The Department of Park and Planning has prepared a working
draft of a planning Framework Report, which chronicles key development trends,
changing population needs, and emerging land use and market changes. It
offers a new planning perspective that captures future development potential
through a more focused pattern of sustainable growth that conserves land and
energy. Among a number of commitments the framework will uphold the General
Plan and will seek to protect the Agricultural Reserve and open spaces. The
Green Infrastructure Plan will also serve to complement this new planning
framework, and where possible, will identify potential green infrastructure links
with residential and commercial areas. Preservation of green infrastructure is
necessary to ensure that healthy open space is near all residents of the County.

State Green Infrastructure Assessment

The State of Maryland prepared a Green Infrastructure Atlas in 2000, in

coordination with local jurisdictions. This Atlas was recently expanded in the
2003 Green Infrastructure Assessment. The assessment identified green
corridors (linear features) and hubs
(large contiguous areas) of major
ecological significance to the State.
The Assessment used a minimum
width of 1,000 feet for green
corridors and 250 acres for green
hubs, which contain regionally
important plant and animal species
and sensitive natural areas. The
assessment identified only State-
significant areas, allowing local
jurisdictions the opportunity to determine the appropriate sizes for their green
infrastructure elements. The Assessment is used as the foundation for the State
GreenPrint Program, initiated in 2001, to identify and prioritize land for acquisition
using allocated funds. Several large parcels have been preserved using this
planning and funding mechanism.

The State Green Infrastructure Plan uses older data, a smaller scale, and maps
larger features than are used in assessing green infrastructure on a county level.
The Countywide Green Infrastructure Plan will rely on more recent and detailed

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Montgomery County geographic data and aerial photography as a foundation for
the analysis and mapping of natural resources. The Plan will be a policy guide
for development and zoning decisions, providing a basis for making
development-related natural resource preservation and mitigation judgments,
and guiding the targeting of County funds for environmental preservation,
conservation and restoration efforts. As County master plans are developed and
updated, Green Infrastructure Plan recommendations and elements will be
incorporated in detailed land use plans.

Montgomery County Forest Preservation Strategy

In 1999, the County Executive called for a task force to develop a forest
preservation strategy for Montgomery County. In 2000, the task force produced
a Forest Preservation Strategy Report. The report presents a broad vision for
forest resources along with goals and suggested actions. As the County’s land
planning authority and principal public landowner, M-NCPPC will continue to
have the leading role in planning for green infrastructure and realizing long-term
County goals for natural areas. The Green Infrastructure Functional Master Plan
will be a key mechanism in refining and attaining these goals by providing a
countywide planning framework for natural areas of countywide significance.

Prince George’s Countywide Green Infrastructure Functional Master Plan

The Prince George’s County Department of Planning has recently completed a

Countywide Green Infrastructure Functional Master Plan. The plan for
Montgomery County will follow a similar approach to that used in Prince George’s
County’s plan, but will modify it as needed to take into account the needs, issues,
and characteristics of Montgomery County. Montgomery County’s plan will
identify a recommended network of natural areas of countywide significance, and
will complement the Prince George’s County plan, especially along the shared
border of the two counties.

Total Maximum Daily Load Program

Total Maximum Daily Loads (TMDLs) are a requirement of the federal Clean
Water Act (CWA) that became law in 1972. Under authority delegated by EPA to
the State, the Maryland Department of the Environment (MDE) administers a
program that includes TMDLs as tools for implementing State water quality
standards. TMDLs are based on the relationship between pollution sources and
in-stream water quality conditions. MDE establishes TMDLs for impaired water
bodies when normal pollution control requirements are not stringent enough to
sufficiently improve water quality to meet applicable water quality standards. A
TMDL establishes the maximum amount of an impairing substance or stressor
that a water body can assimilate and still meet water quality standards, and
allocates that load among pollution contributors. A preliminary assessment of the
implications of the Chesapeake Bay Tributary Strategies (which are voluntary

12
measures intended to forestall the need for TMDLs) indicates that large-scale
land use planning measures will be needed as part of the overall approach to
achieve County compliance with water quality standards. In addition, current
data indicate that improving and maintaining water quality will likely depend on
implementing every practicable measure that helps protect water quality. As a
healthy green infrastructure is essential to sustaining water quality benefits, the
Countywide Green Infrastructure Functional Master Plan will help maintain water
quality standards.

As outlined above, Montgomery County currently has many plans and programs
that attempt to meet both State and local environmental goals and objectives.
Nevertheless, most of these goals and objectives cannot be fully realized without
the preparation and implementation of a Countywide green infrastructure plan.

Goal of the Countywide Green Infrastructure Functional Master Plan

The goal of the Countywide Green Infrastructure Functional Master Plan is to

identify existing natural areas of Countywide significance, and propose
conservation mechanisms to connect, preserve, protect, restore and enhance
these areas.

Objectives of the Countywide Green Infrastructure Functional Master Plan

The Green Infrastructure Plan will seek to:

• Identify the existing and desired contiguous network of natural areas of

Countywide significance, in addition to parks and Legacy Open Space
areas;
• Identify the current gaps in that network;
• Identify and recommend effective implementation mechanisms to preserve,
protect, enhance, and restore this network, such as improved natural area
mitigation guidelines;
• Help realize the environmental goals and objectives as stated in the Approved
and Adopted General Plan Refinement of 1993;
• Support the desired development pattern of the County in the General Plan and
facilitate Smart Growth;
• Meet new State requirements as expressed in the County’s Land Preservation,
Parks, and Recreation Plan regarding comprehensive green infrastructure
planning;
• Support the recommendations of the County’s Park, Recreation, and Open
Space (PROS) Plan;
• Complement the County’s Legacy Open Space (LOS) Program;
• Complement, guide and enhance existing plans, programs, and the
Environmental Guidelines for Development;
• Help realize forest resources goals in the County’s Forest Preservation Strategy;

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 • Provide a land use planning-based tool to help meet the goal of maintaining
water quality mandated by the Clean Water Act and TMDLs;
• Support State Goals for Natural Resource Land Conservation;
• Increase the potential for State funding of open space preservation through
programs that promote the preservation of green infrastructure;
• Streamline the preparation of environmental information and recommendations
for area master plans;
• Facilitate a more streamlined and environmentally effective review and mitigation
process for all public and private development projects;
• Provide a Countywide map of existing and desired green infrastructure that can be
readily updated; and
• Provide a basis for tracking and quantifying progress in implementing the
plan.

Why a Functional Master Plan for Green Infrastructure?

To address the goals, objectives and strategies cited above, the Countywide
Green Infrastructure Plan will be developed as a functional master plan to reflect
the policies of the General Plan and include
recommendations for plan implementation.

A functional master plan is a plan that addresses

one functional element and associated issues on
a broad scale. Its purpose is to provide a set of
written and mapped recommendations that
address specific elements of the General Plan.
For green infrastructure, these include the need to
reduce forest fragmentation, improve wildlife
habitat, and protect and enhance the quality of life
for County residents and workers. A functional
master plan includes a large-scale map, text on
definitions and guidelines, and implementation
mechanisms.

The Green Infrastructure Functional Master Plan will serve a variety of purposes.
For elected officials, it will provide a policy guide for development and zoning
decisions. For planning staff, it will provide a basis for making development
review recommendations and provide important information and guidance in
support of smart growth, transportation, and park planning. For developers, it will
provide a guide for development proposals and mitigation options. For the
general public, it will inform them of the goals and objectives for preservation and
enhancement of identified natural areas of Countywide significance, and will
provide recommendations for implementation.

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MAJOR THEMES AND ISSUES
The concept underlying green infrastructure protection is to identify existing
large, contiguous blocks of ecologically significant natural areas (hubs) and
environmentally sensitive linkages (corridors) in relation to a desired green
infrastructure network, along with gaps in the existing and desired network. This
information may then be used to develop a conceptual green infrastructure plan
that can be used to create a network of natural lands.

The Green Infrastructure Plan will consist of plan text, a map, and a discussion of
implementation strategies and guidelines. The Green Infrastructure Plan will be
prepared as a functional master plan, following procedures established for this
type of plan. It will be a Countywide planning document, and opportunities for
input from stakeholders will be provided (see the Proposed Public Outreach
Strategy on page 22).

The green infrastructure map will be conceptual in nature and will illustrate a
generalized pattern for green infrastructure in the County. It is envisioned as an
assessment tool that will be used as a guide for environmental planning to:

1. Assess the role of specific locations within a larger network during the
development review process;
2. Enhance and coordinate local, State and interstate natural resources
management planning; and
3. Address the need for a regional and landscape-level perspective for
natural area conservation.

Identification of a green infrastructure network is an important step toward

protection, consolidation and, in the long-term, restoration of natural ecosystems.
The fragmentation of undeveloped open space can be reduced, and retention of
the ecological potential of the landscape can be maximized, once the key
components and gaps have been geographically identified.

The following environmental issues will be examined by the Green Infrastructure

Plan project:

1. Definition of the Green Infrastructure Elements

The Statewide Green Infrastructure Assessment green corridors are a

minimum 1,000 feet in width, and green hubs are a minimum 250
acres. For the Montgomery County Green Infrastructure Functional
Master Plan, additional narrower corridors and smaller hubs will be
included. The appropriate size of these elements will be determined in
order to address locally significant land features.

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2. Reduction of Forest Fragmentation and Preservation of Habitat
Diversity

Prior to European colonization, Montgomery County was mostly

forested. Wind damage and fires set by native people created small
clearings that attracted game animals. The colonists cleared massive
areas of the forest for agriculture, leaving trees principally in areas too
steep or wet to farm. Over the course of the last 60 years or so, the
character of the forest and tree cover in Montgomery County has
changed again. What were once agricultural fields in some areas have
regenerated as forests, and many areas that were once forested have
been developed for human uses (homes, businesses, roads). As a
result of these changes, the forested areas in the County have become
fragmented—the typical woodland area is smaller in size than it once
was, and many areas lack critical connections to other woodlands.

Figure 5 graphically presents changes in the County’s forest cover

from 1973 to 2000. This represents a reduction from 143,000 acres to
89,000 acres, or about a 38% decrease in forested land in less than
thirty years. Figure 6 shows the current forest cover for Montgomery
County. Although some large parcels of forested land are left and
stream valley parks have protected many significant resources, there is
still a considerable degree of forest fragmentation in the County, and
total forest cover is still decreasing.

Montgomery County Forest Cover Change

45%

32%
28%

1973 1986 2000

Figure 5. Montgomery County Forest Change over Time

(Percent of total County area)

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 Montgomery County Existing Forest

Figure 6. Montgomery County Existing Forest Cover

Overall ecological health and function will depend on maintaining and

enhancing large parcels of forests and forested corridors providing
connectivity between these larger parcels. Large forested parcels are
particularly important because they provide habitat away from exotic
invasive species-dominated edge areas, and are also important for

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 animal and plant species that depend on larger amounts of high quality
forest interior conditions. Ecological health and function also depend
on a diversity of habitat types in addition to forests—such as wetlands,
meadows, and shrubland—in order to accommodate a greater diversity
of animal and plant species native to the County.

Contiguous natural areas are important to the long-term survival of

native plants and animals, and to people living and working in the
County. When natural areas are fragmented, the long-term viability of
populations of plants and animals is reduced, as genetic pools are
reduced and isolated. Physical connectivity is important to the long-
term survival of all species. Fragmentation also makes forest
susceptible to non-native invasive species that further reduce
biodiversity. Natural corridor connections are critical to decrease the
isolating effects of habitat fragmentation and to enhance the
functioning of ecosystems as an integrated whole.

Fragmentation of natural areas is also an issue for humans, both in the

context of their relationship to the areas where they live and their use
of the areas. Numerous studies have shown that just the sight of a
natural area provides benefits to human health. Our interaction with
the natural environment is also related to our long-term well-being.

3. Enhancement of Surface Water Quality

The built environment and the way water is treated prior to entering the
natural environment influence water quality. Enhancement of the
County’s green infrastructure will help to enhance surface water
quality. The preservation of stream and wetland buffers, and the
resulting surface water quality benefits, will be addressed in the plan.

One of the difficulties that will be encountered in developing the plan is

that the areas with the lowest water quality ratings, based on
monitoring data, tend to be the areas where the least amount of green
infrastructure currently exists. Barriers to the reestablishment of green
infrastructure corridors and hubs in areas with the lowest water quality
rating often include areas of dense development and where streams
and major tributaries have been channelized.

Figure 7 shows stream water quality in the County. The decrease in

water quality evident in the southern part of the County corresponds to
the increase in developed area shown in Figures 3 and 4. Areas with
good water quality are generally found in the less developed portions
of the County. A green infrastructure plan will be an important part of
overall efforts to both protect areas with good water quality and to help
improve areas with lower water quality.

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 Stream Quality Conditions 1994 - 2000

Figure 7. Montgomery County Stream Quality Conditions 1994 - 2000

(Source: MCDEP, CSPS 2003 Update)

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4. Enhancement of Habitat Quality

The term wildlife habitat includes a variety of elements and plant

associations. Examples
include edges of forests, forest
interiors, wetlands, open
meadows, meadows next to
forests, early successional
forests, climax forests, upland
forests, forests on slopes, and
bottomland forests. The
Countywide Green
Infrastructure Plan will strive to
provide for the preservation, protection and enhancement of a variety
of forest elements and other natural habitats.

5. Evaluation of the Current Status of Efforts to Preserve Potential Green

Infrastructure Elements

The existing regulations and ordinances will be examined to assess

what environmentally sensitive areas are currently being preserved in
the County. Where GIS data is available, sensitive environmental
features will be mapped given the existing regulatory framework. An
evaluation of the existing regulations and ordinances will help to
formulate recommendations for developing plan implementation
strategies.

6. Determination of the Applicable Environmental Regulations,

Guidelines, Mechanisms and Commitments that are Necessary to
Implement the Green Infrastructure Plan.

Research will be conducted on how similar jurisdictions plan for and

regulate the preservation and restoration of environmentally sensitive
areas. This research will be used as a guide for recommendations for
possible amendments to existing regulations based on the
environmental issues raised.

7. Consideration of Green Infrastructure Elements During the Land

Development Process

The current process for consideration of green infrastructure elements

during the land development process will be reviewed.
Recommendations will be made in the plan text regarding how the
elements should be considered in the future, in keeping with the
General Plan’s established development patterns.

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8. Consideration of Green Infrastructure Element Size and Priority in
Different Areas

Green infrastructure elements occur differently in the diverse areas of

the County, and may need to be considered differently. For example,
the southern portion of the County is generally urbanized with fewer
opportunities for preservation and restoration. The more densely
populated an area, the more precious any green space is to local area
residents. The Plan will consider urban green space as it relates to the
broader issue of ecosystem connectivity, and make recommendations
for how best to plan for it.

In addition, preservation levels for different stream sizes (e.g.

headwaters, larger tributaries, and mainstems) may be needed.
Various types of preservation planning methods will be explored, and
input will be sought on how to prioritize environmental enhancement
and preservation in different areas as appropriate. The issue of
prioritization is especially important in addressing the need to target
and optimize mitigation efforts.

9. Implementation Goals for the Green Infrastructure Plan

The setting of implementation goals along with a time frame for green
infrastructure will be examined during plan development. Appropriate
goals will be included in the plan recommendations.

10. Measures of Success

Measures of success in plan implementation will be considered and

included in the plan recommendations. Assessing the success of plan
implementation along with any needed additions or modifications to
plan recommendations may be made periodically in conjunction with
plan revisions.

11. Integration and Coordination of the Green Infrastructure Plan with

other County Plans

The implementation mechanisms for the Green Infrastructure Plan will

need to address its relationship to other functional master plans (such
as the Legacy Open Space Plan), the PROS and LPPR Plans, area
master plans and sector plans. Areas of mutual concern and ways the
various plans can complement and mutually strengthen one another
will be assessed.

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PROPOSED MASTER PLAN PROCESS

Proposed Public Outreach Strategy

This Public Outreach Strategy outlines the recommended techniques for

community and intergovernmental agency involvement in the Green
Infrastructure Functional Master Plan process. Several techniques will be used
to coordinate and customize an outreach strategy designed to reflect the unique
character of various communities. The proposed outreach methods will provide
for participation and input from as broad a spectrum of the community as
possible with a strong emphasis on obtaining a wide range of perspectives from
a diverse set of participants.

This section of the Report does the following:

• Identifies the community involvement techniques that will be used.

• Describes how each participation technique will be used.

• Identifies stakeholder groups.

• Identifies strategies for advertising events and recruiting participants.

Several outreach initiatives will be used to obtain input including stakeholder

focus group meetings. Over the next few months, with input from the focus
groups, planning staff will develop various mapping scenarios and conduct a
Public Information Forum to allow interested parties to review and comment on
the scenarios. This will allow stakeholders to identify their concerns and
perspectives in a variety of ways, and provide important input for the
development of a draft Plan.

An informational mailing list (electronic and conventional) will be used to

advertise meetings, focus groups, forums, and publications. The mailing list will
include residents, government agencies, building associations, municipalities,
civic associations, homeowners associations, minority organizations, and other
interested groups and individuals. The combined mailing list will be continually
updated.

Planning staff will make efforts to solicit input from minority populations in
Montgomery County. This will include the use of resources such as email
distribution lists and newsletters that target minorities, as well as immigrant
communities. Staff will also work with community organizations, groups,
individuals, and other agencies, such as the County Executive’s Community
Outreach Office, to assist in the broad reach of the information.

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A variety of media outreach options, including non-traditional and non-English
language outlets, will be used to announce meetings and other events. This
ongoing effort may include information mailings, press releases and briefings,
public service announcements (TV, Cable TV and radio), posters, information on
the Internet, information at public events (Earth Day and County Fair), community
newsletters and community bulletin board locations such as libraries and grocery
stores. A web page dedicated to the Green Infrastructure Plan has been added
to the Park and Planning web site, and will be updated periodically. This
outreach will continue throughout the process.

Other outreach efforts may include additional meetings as needed with local civic
associations, homeowners associations, Chambers of Commerce, Maryland
National Capital Building Industry Association (MNCBIA) and other stakeholders.
Opportunities for outreach to public schools will also be explored.

As the Staff Draft Functional Master Plan is developed, planning staff will
continue to keep stakeholders informed regarding the direction of the plan and on
specific recommendations. A second Public Information Forum will be held to
discuss draft staff recommendations, providing additional opportunity for public
comment. The Planning Board will review the Staff Draft Plan, make any
necessary revisions and will then publish the Planning Board Public Hearing
(Preliminary) Draft Plan. Copies of the Public Hearing (Preliminary) Draft Plan
will be sent to the County Executive, County Council and municipalities and will
be made available to the public. After a minimum of 30 days notice, the Planning
Board will hold a public hearing at which anyone may testify, either orally or in
writing. After the hearing, the Board will hold open work sessions to review the
testimony and to determine whether to make any revisions to the document.

Once the Planning Board has revised the Public Hearing Draft Plan, it will be
transmitted to the County Council and the County Executive as the Planning
Board’s (Final) Draft Plan. The County Council will hold a public hearing at which
anyone may testify, either orally or in writing. At the close of the public hearing,
the County Council will hold open work sessions to determine if amendments to
the Plan submitted by the Planning Board are warranted. After Council approval,
The Maryland-National Capital Park and Planning Commission (the Montgomery
and Prince Georges County Planning Boards) will formally adopt the Plan as an
amendment to the County’s General Plan. After the Plan is approved and
adopted, planning staff will monitor progress in implementing the plan’s
recommendations.

Public Outreach Strategy Outline

Information Distribution
• Create a Green Infrastructure Plan web site
o Provide information on meetings, agendas, meeting summaries,
time lines and links to associated web sites

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 o Provide e-mail address for receiving comments, questions, and
other communication regarding the Green Infrastructure Plan
o Include and promote web site in presentations, fliers and
announcements and news releases

• Mailings
o Compile mailing lists (electronic and conventional) from web site
contacts, focus groups, and public forums
o Send information regarding future meetings and meeting
summaries to participants

Purpose and Outreach Report

• Describe the Green Infrastructure Plan project
• Identify goals, issues, needs, purpose, etc.
• Identify what the plan will address
• Describe the Public Outreach Strategy

Promotion of Green Infrastructure Plan Development

• Distribute informational materials in key public locations to inform the
general public about the plan
• Write and distribute a series of press releases and pitch stories to key
reporters and editors
• Contact key stakeholder groups to solicit participation by interested
individuals in focus groups, forums and communication networks
• Explore opportunities for public school outreach
• Advertise meetings in minority publications

Public Stakeholder Focus Groups

Focus group meetings will be held to inform attendees about the Green
Infrastructure Plan project, to receive input, and to listen to concerns early in
the process. Feedback from these meetings will be used to help
formulate/refine alternative Green Infrastructure mapping scenarios. Potential
participants will include the following:

• Agriculture and forestry interests

• Building industry and Chamber of Commerce representatives
• Citizens and environmental advocacy groups
• Adjacent jurisdictions and public property owners
• Municipalities and large civic groups
• Government agencies

Green Infrastructure Plan Public Information Forums

• A public information forum will be held to present mapping scenarios
and to solicit feedback.
• A second public forum will be held to present the Draft Plan.

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Tentative Master Plan Schedule

A tentative timeframe for the active phases of this master plan process is noted
below. This schedule is subject to change in response to adjusting priorities and
needs as the Commission undertakes internal changes to improve service. For
the latest information on the Green Infrastructure Plan, see the Montgomery
County Department of Park & Planning web site at: www.mc-mncppc.org.

July 2005 – August 2005

Initial Data Collection
Formulate Potential Plan Approach and Methodology

February 2006 – March 2006

Presentation of Purpose and Outreach Strategy Report to the Planning Board
Arrange Stakeholder Focus Group Meetings

March 2006 – May 2006

Focus Group Meetings

May 2006 – October 2006

Formulate Plan Alternative Mapping Scenarios
Preparation for Green Infrastructure Plan Public Information Forum

November 2006
Green Infrastructure Plan Public Information Forum to Present Scenarios and
Gather Input

December 2006 – January 2007

Brief Planning Board on results of the plan Public Information Forum

December 2007 – April 2007

Develop Draft Green Infrastructure Plan
Second Public Forum to present Draft Plan

April 2007 – May 2007

Present to Planning Board/Authorization to Print and Distribute for Comment

May 2007 – September 2007

Planning Board Public Hearing and Worksessions

October 2007 – February 2008

County Executive Review
County Council Review
Public Hearing
Worksessions
Approval and Adoption

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26
 ACKNOWLEDGEMENTS

Montgomery County Department of Park and Planning

Faroll Hamer, Acting Director

Jeff L. Zyontz, Chief, Countywide Planning Division

Environmental Planning/Park Planning and Resource Analysis/Natural Resources

Jorge A. Valladares, P.E., Chief, Environmental Planning

Mary Dolan, Supervisor, Environmental Planning
John E. Hench, Ph.D., Supervisor, Park Planning and Resource Analysis

Project Staff

Mark A. Symborski, Environmental Planning, Project Manager

Contributing Staff

Katherine Nelson, Environmental Planning

David Seydel, Environmental Planning

Technical Staff

Sam Dixon, Design, Community Based Planning

Sheila Sampson, Desktop Publishing, Environmental Planning
Montgomery County Department of Park and Planning
The Maryland-National Capital Park and Planning Commission
8787 Georgia Avenue
Silver Spring, Maryland 20910
www.mc-mncppc.org