Community Services Department
DATE: October 7, 2026
TO: Council Policy and Procedures Committee
FROM: Maureen Grzan-Pieracci, Recreation Supervisor
Colin James, Recreation Manager
Kristine Crosby, Assistant Community Services Director
John R. Marchant, Community Services Director
SUBJECT: Proposed Council Policy K-28 Community-Driven Projects
BACKGROUND
Civic engagement is at the heart of what makes Mountain View a welcoming, vibrant city. When residents, neighborhood associations, and community groups come together to share their time, knowledge, and talents, improve public spaces, steward natural resources, and serve their neighbors, they build community belonging and advance the City's mission of creating livable, sustainable neighborhoods. The City of Mountain View has a long history of supporting such civic engagement.
On June 24, 2025, the City Council adopted the Council Strategic Priorities and Fiscal Years 2025- 27 Council Work Plan. The development of a "City Volunteer Framework" was identified as a project under the City Council’s Strategic Priority of Organizational Strength and Good Governance. The project is described as creating "a framework to support opportunities for volunteer organizations to work with the City.”
In discussing this project, Councilmembers recognized that community members and groups are integral partners in advancing projects that benefit the community. The City Council also recognized that the City did not have established processes to respond to proposals for projects that were initiated by the community and fell outside of City-driven volunteer programs.
Consequently, there were delays in approving community-initiated projects. Councilmembers expressed an interest in creating a clear path for community organizations while appropriately addressing available staff resources, legal and operational risks, and general public access to City property.
Existing City Volunteer Practices and Program
The City established its Volunteer Services Program in 1988 and has operated it continuously since then. The Community Services Department, Recreation Division, provides general oversight
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of the Volunteer Services Program and supports volunteer liaisons in various City departments.
In 2023, the City began using volunteer management software to assist with volunteer registration, scheduling, communication, tracking, and reporting. Volunteer opportunities offered through the program are coordinated and directly supervised by City staff, with established processes for recruitment, assignment, oversight, and administration. Volunteer opportunities are available in the Police, Fire, and Library Departments, Special Events, Mountain View Center for the Performing Arts, Senior Center, The View Teen Center, Deer Hollow Farm, Community Gardens, Summer Aquatics and Camp Programs, Rengstorff House, Sustainability Division, Transportation Division, Multilingual Engagement Program and other City programs. In Fiscal Year 2025-26, more than 1,000 volunteers contributed 42,208 hours to City programs and services.
In addition to the Volunteer Services Program, the City supports volunteerism and communityled efforts through a variety of department-specific programs, stewardship activities, formal agreements, grants, facility access, and community events. These activities are administered through different City processes depending on the nature and scope of the activity. Examples of existing City volunteer and community-support efforts include:
• Environmental stewardship activities at Shoreline at Mountain View, including habitat restoration, invasive plant removal, trail maintenance, litter removal, and Eagle Scout projects;
• “Friends of” organizations that operate through formal agreements and support City facilities, programs, and public resources such as Friends of the Mountain View Library, Friends of Deer Hollow Farm, Friends of Stevens Creek Trail, and the Friends of “R” House; • Neighborhood-led events and Neighborhood Grant Program activities that are financially supported by the Council Neighborhood Committee, including small concerts in parks and neighborhood gatherings;
• One complimentary reservation per year for eligible nonprofit organizations for the Redwood Hall at the Mountain View Community Center and barbecue reservations at either Cuesta or Rengstorff Park; and
• Volunteer Fairs that connect hundreds of community members with over 24 nonprofit organizations twice annually.
Pollinator Habitat Projects
The City has also supported four community-driven pollinator habitat projects. These include; • Cuesta Park Pollinator Habitat with GreenSpacesMV, established in 2021; New Council Policy: Community-Driven Projects
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• Heritage Park Pollinator Habitat with Girl Scouts, established in 2023; • Mariposa Park Pollinator Habitat with the Shoreline West Association of Neighbors, established in June 2024; and
• Cooper Park Pollinator Habitat with a local high school student, established in August 2026.
These projects are envisioned and led by community members and engage residents in planting and maintaining native plants, supporting pollinators, birds, and wildlife, and promoting educational, sustainable, and water-efficient gardening practices. City staff supports these projects through initial planning, location review, interdepartmental coordination, role clarification, irrigation assistance, delivery and supply of mulch, design and installation of signage, water access, and ongoing guidance as needed.
Due to the size, complexity, and ongoing use of City property and resources, these projects have required agreements, including insurance and indemnification. The Santa Clara Valley Bird Alliance serves as the sponsoring organization for the pollinator habitat projects at Cuesta, Mariposa, and Cooper Parks. The Kiwanis Club of Mountain View sponsors the pollinator habitat project at Heritage Park.
The Soil&Water Demonstration Garden
The Soil&Water Demonstration Garden at Heritage Park is another example of an existing community-driven program operated through a formal agreement. Sponsored by the Los Altos Mountain View Community Foundation, the project operates as a large, demonstration garden rather than an individual plot-based community garden or pollinator habitat. The Soil&Water group provides regular hands-on opportunities, workshops, and events focused on gardening, food production, sustainability, and community connection. City staff supports the program with irrigation, coordination and guidance when needed, and delivery of mulch. The garden demonstrates how a City-supported program can provide public benefit while relying on community members for ongoing care, programming, and stewardship.
The pollinator and demonstration garden projects have highlighted the need for a clear process for community-driven projects that fall outside established City programs and processes. Early projects required significant staff coordination to determine the appropriate review process, documentation, roles and responsibilities, and applicable insurance and other requirements. In some cases, individuals or informal groups have also needed to identify an established organization willing to sponsor the project, enter into an agreement with the City, provide the required insurance coverage, and assume responsibility for the project and project participants.
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Through these experiences, staff have developed a more streamlined process and template agreements for these types of complex, ongoing projects. These experiences have also informed staff’s development of an even more streamlined process for smaller, simpler projects. The proposed policy outlined in the Analysis section below provides a path for more timely and consistent review and administration of future community-led projects.
ANALYSIS
Staff’s analysis included a review of existing City practices, benchmarking with other public agencies, and outreach to community stakeholders. This work informed the development of a proposed framework that establishes the role of Community Partners and provides a clear starting point for proposing projects and establishes review and approval requirements appropriate to the scope and complexity of each project. The following sections summarize the analysis, stakeholder feedback, proposed Council Policy and key policy themes, and implementation considerations.
Outreach, Research, and Analysis
Benchmarking with Other Agencies
Staff reviewed how other public agencies manage community-driven projects on public property.
Through this research, staff identified Austin, Texas; Portland, Oregon; and Seattle, Washington, for further review as their approaches included processes, agreements, and requirements relevant to the types of community-driven projects that have been proposed in Mountain View.
Staff also conducted outreach to 17 neighboring Bay Area agencies to better understand local practices. Of the agencies contacted, Santa Clara, Morgan Hill, Cupertino, and San Mateo responded to the inquiry.
The review identified a range of approaches. Austin, TX, uses formal agreements for stewardship and programming activities that define responsibilities and address requirements such as insurance, indemnification, community benefit, and public access. Portland, OR, has an overarching policy governing the use of City property, including liability requirements. Seattle, WA, uses long-term agreements for certain “Friends of” organizations and environmental stewardship activities, supported by defined responsibilities, review processes, and project criteria.
The neighboring agencies that responded generally reported a less formal approach. Santa Clara, Morgan Hill, Cupertino, and San Mateo did not identify a specific policy governing communitydriven projects of this type and instead rely on existing grant programs, agreements, or established partnerships, or other processes based on the nature of the request.
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Overall, the benchmarking indicated that there is no single approach used by public agencies to manage community-driven projects. However, several common elements emerged from agencies with more formalized processes, including clearly defined roles and responsibilities, an established review process, consideration of insurance and liability requirements, and the use of formal agreements when warranted by the nature of the project. These elements helped inform the development of the proposed Community-Driven Projects Council Policy.
Stakeholder Outreach and Feedback
Staff conducted outreach to nonprofit and community organizations that have formal agreements with the City. Because these organizations have direct experience establishing and maintaining formal partnerships with the City, staff sought their perspectives on the existing process and opportunities for improvement. Organizations were invited to participate in an inperson or virtual meeting, or to provide written feedback by email.
Organizations contacted included Friends of “R” House, Friends of Deer Hollow Farm, Friends of Stevens Creek Trail, Los Altos Mountain View Community Foundation, Mountain View Kiwanis Club, Santa Clara Valley Bird Alliance, Second Harvest of Silicon Valley, Sourcewise, Stanford Health Care, Friends of the Mountain View Library, Inc., Pacific Clinics, Soil&Water, and pollinator habitat partners, including Girl Scouts, GreenSpacesMV, and the Shoreline West Association of Neighbors.
Staff received feedback from Friends of Deer Hollow Farm, Soil&Water, Girl Scouts at Heritage Park, GreenSpacesMV, the Shoreline West Association of Neighbors, Second Harvest of Silicon Valley, and Sourcewise.
Stakeholders generally expressed appreciation for the support and responsiveness provided by City staff and indicated that their existing working relationships with the City are positive.
Stakeholders also identified opportunities to provide greater clarity and consistency, particularly for new organizations or community-driven projects that do not fit within an established City process. Feedback included the need for:
• A clearly identified starting point for submitting project ideas; • Greater transparency regarding initial review steps, timelines, requirements, and City staff responsible for review;
• Requirements proportionate to the scope and risk of the proposed activity; • Clear expectations regarding insurance, waivers, maintenance, and organizational responsibilities;
• Ability to enter into an agreement directly with the City instead of under a fiscal sponsor; New Council Policy: Community-Driven Projects
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• A consistent City staff contact during the review process; and • Consideration of project continuity when the Community Partner organizational leadership changes.
This feedback helped inform the development of the proposed Council Policy, including a clear starting point for proposals, an established review process, requirements proportionate to project scope and complexity, clearly defined City and Community Partner responsibilities, and standardized administrative materials where appropriate.
Proposed Council Policy
The proposed Council Policy K-28—Community-Driven Projects (Attachment 1) establishes a consistent process for community-driven projects that are envisioned and led by community members or groups and conducted on City-owned property without direct supervision by City staff. Under the proposed policy, a “Community Partner” is an organization, business, or group that seeks to complete a community-driven project that provides public value to the Mountain View community. Unlike City volunteer programs, in which individuals perform volunteer service under the direction or supervision of City staff, the Community Partner proposes, organizes, and manages the project and coordinates the individuals who participate in its implementation.
These individuals are defined as “Project Participants” and are not considered City volunteers under Council Policy D-1, Insurance Coverage for Volunteers. This distinction clarifies that the Community Partner, rather than the City, is responsible for coordinating Project Participants and complying with the conditions of City approval and applicable project requirements.
The policy is intended to provide a clear and proportionate review process while maintaining safe public access, protecting City resources, addressing operational and risk management considerations, and ensuring consistency with applicable City codes, policies, and adopted plans.
The policy establishes project eligibility, City and Community Partner roles and responsibilities, applicable risk-management requirements, and a defined process for project proposal, review, and approval.
Eligibility
Community-driven projects must provide a clear and direct public or community benefit and be broadly accessible to the Mountain View community. Community Partners must have the resources and organizational capacity to support the proposed project. Projects must be consistent with applicable City goals, adopted plans, policies, and requirements, and must complement, rather than duplicate or conflict with, existing City programs and services.
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The policy does not supersede other applicable City requirements or established processes. If a proposed project issubject to another City policy, program, permit, or approval process, staff will route the request to the appropriate process.
Two-Tier Project Review
Rather than applying the same requirements to every project, the proposed policy establishes two levels of review based on project scope and complexity, City resource needs, and potential risk.
Tier One provides a streamlined, application-based process for smaller-scale projects that can be appropriately managed through staff review, standardized terms and conditions, liability waivers, as applicable, minimal project-specific requirements, and project-specific authorization without a formal agreement. These projects are generally smaller in scope, lower risk, require minimal City resources, and do not involve permanent improvements or significant ongoing maintenance obligations.
Tier Two provides an agreement-based process for larger and/or more complex projects that require additional coordination, legal or risk management review, and clearly defined ongoing responsibilities for the City and Community Partner. These projects may involve ongoing stewardship or maintenance, greater use of City resources, physical changes to City property, larger volunteer groups, higher-risk activities, or other legal considerations. Formal agreements provide a mechanism to address requirements such as insurance, indemnification, liability waivers, maintenance, public access, project scope, City support, modification or termination, and other project-specific requirements. Table 1 below summarizes the two tiers.
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Table 1: Two-Tier Project Review Framework
Tier One – Application-based Tier Two – Agreement-based Type of Project
• Smaller, lower-risk projects that can be
reviewed and authorized through a
streamlined City process.
• Larger, more complex projects requiring
a formal agreement to establish
responsibilities and address operational,
legal, risk management, or maintenance
considerations.
Description
• Small-scale projects and limited scope
• Minimal need for City resources
• No permanent improvements
• Small groups of Project Participants
• Small to moderate public attendance
• No significant ongoing maintenance
obligations
• Larger or more complex scope
• Recurring or extensive use of City
property
• May involve tools, equipment, planting,
or maintenance activities
• Larger groups of Project Participants
• Potential impacts to City operations
• Construction, physical improvements, or
modifications to City property
• Ongoing maintenance responsibilities
• Additional legal or risk considerations
Examples
• Small-scale, one-time park projects,
events or activities
• Holiday decorations or celebrations
• Park or trail cleanups
• Graffiti abatement
• Wellness activities
• Guardian and youth story times
• Pollinator habitat projects
• Public art
• Projects involving ongoing stewardship
or maintenance
• Projects involving physical improvements
or modifications to City property
Requirements
• Community-Driven Project Proposal
Form
• Staff review
• City-prepared Community-Driven Project
Authorization Form
• Applicable terms and conditions
• Community Partner acknowledgment
and signature
• Liability Waivers as applicable
• Community-Driven Project Proposal
Form
• Staff review
• Meeting with Community Partner
• Formal agreement
• Legal review
• Insurance, indemnification, and waivers,
as applicable
• Permits, maintenance requirements, and
project-specific exhibits as applicable
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The examples in Table 1 are illustrative. The appropriate tier will be determined based on the overall characteristics of the proposed project, including its scope and complexity, City resource needs, ongoing responsibilities, and potential risk.
Project Proposal, Review, and Approval Process
All proposed projects will begin with a Community-Driven Project Proposal Form, which will provide the City with basic information about the proposed activity, location, duration, public benefit, anticipated number of project participants and any public attendance, City resource needs, and ongoing maintenance needs. Staff will generally strive to complete the initial review within 15 business days of receiving a complete proposal. The initial review will determine whether the request is subject to the policy, should be routed to another City process, or should proceed as a Tier One or Tier Two project.
For Tier One projects, City staff will obtain any additional information or supporting materials as needed and prepare a Community-Driven Project Authorization Form identifying the approved project details and applicable terms and conditions. The Community Partner will review and sign the authorization, confirming the project information and agreeing to the applicable requirements. Once staff have the information and supporting materials needed to finalize the authorization, staff will generally strive to complete the Tier One approval process within ten business days.
For Tier Two projects, City staff will meet with the Community Partner to review the proposal, discuss City interests and requirements, identify operational or maintenance considerations, and establish an anticipated timeline. Development and execution of a formal agreement may take approximately three months, depending on project complexity, required City review, development of project-specific exhibits or guidelines, and the Community Partner’s timely submission of required documentation, responses to City comments, and obtaining necessary signatures. For project types with established templates or administrative materials, such as pollinator habitat projects, the agreement process may be expedited.
The City will not assess fees for the submission of a Community-Driven Project Proposal Form, the processing of a Tier One authorization, or the execution of a Tier Two agreement under the policy. Any separate fees or charges required under other applicable City policies or processes will continue to apply.
City and Community Partner Roles and Responsibilities
The policy establishes responsibilities for both the City and Community Partners. The City retains ownership and control of City-owned property, decision-making authority regarding project approval and continuation, and the ability to impose conditions necessary for public access, safety, operations, and risk management. Depending on the nature of the project and available New Council Policy: Community-Driven Projects
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City resources, the City may provide project assistance such as checklists, supplies and materials, signage, or access to City utilities.
Community Partners are responsible for designating a primary contact, coordinating and overseeing project participants, ensuring participants understand and agree to applicable City rules and safety requirements, and complying with the terms and conditions of the applicable authorization or agreement. Community Partners will also be responsible for obtaining applicable City liability waivers from project participants when required by the Community-Driven Project Authorization Form or separate agreement.
Implementation
If the proposed Council Policy is adopted, staff will finalize the administrative materials needed to implement the policy, including the Community-Driven Project Proposal Form, CommunityDriven Project Authorization Form, liability waiver forms, checklists, agreement templates, exhibits, project-specific guidelines, and public-facing website information.
The proposed Council policy authorizesthese administrative materials to be developed, updated, and approved by City staff without further City Council approval, provided they remain consistent with the policy. This will allow staff to refine forms, templates, and guidance as the City gains experience administering community-driven projects.
FISCAL IMPACT
There is no direct fiscal impact associated with the adoption of the proposed Council Policy.
Future community-driven projects may require City staff time, materials, operational support, maintenance, or risk management review. Project proposals will be evaluated through the tiered review process established by the policy. Any project requiring additional funding beyond existing City resources would be brought forward through the appropriate budget or Council approval process.
NEXT STEPS
Staff will incorporate feedback from the Council Policy and Procedures Committee into the proposed Council policy. Following the Committee’s recommendation, the proposed Council Policy will be brought forward to the City Council for consideration as a Consent Calendar item, anticipated on December 15, 2026.
CONCLUSION
The proposed Community-Driven Projects Council Policy is intended to provide a clear and consistent process for community members and organizations seeking to carry out projects on New Council Policy: Community-Driven Projects
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City-owned property without direct supervision by City staff. The policy complements existing City programs and other established processes by providing a single starting point for these proposals and a proportionate review process based on the project scope and complexity, City resource needs, and potential risk.
The proposed framework reflects lessons learned from prior community-driven projects, benchmarking with other agencies, and stakeholder feedback. It establishes a streamlined application-based process for smaller, lower-risk projects while providing for agreements when additional operational, maintenance, legal, or risk management considerations warrant greater review and more formal documentation of terms.
RECOMMENDATION
Approve a recommendation to the City Council to adopt Council Policy K-28 Community-Driven Projects (Attachment 1), establishing a consistent framework for the review and implementation of community-driven projects.
ALTERNATIVES
1. Do not recommend the adoption of proposed Council Policy K-28.
2. Provide other direction.
Attachments: 1. Proposed Council Policy K-28 - Community-Driven Projects