SECTION THREE
Conservation Districts – Director Responsibilities
Governance and Support Roles
Conservation district boards serve two primary functions, governance and support, each encompassing distinct responsibilities essential to the effective operation of the district.
Governance Duties
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District directors are entrusted with safeguarding the public interest through sound and transparent governance. Core governance duties include:
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Hiring, supervising, and evaluating the performance of the district manager.
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Reviewing, authorizing, and monitoring contracts, agreements, and other commitments.
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Ensuring compliance with all legal, regulatory, and contractual obligations.
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Overseeing the district’s financial integrity, including the application of internal financial controls and prudent fiscal management.
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Evaluating the efficiency, effectiveness, and impact of the district’s programs and initiatives.
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These governance responsibilities position the board as the accountable body that stands apart from daily district operations while ensuring the district fulfills its statutory mission.
Support Duties
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In addition to governance, directors also contribute to the district’s success through various support roles. These may include:
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Providing specialized expertise in areas such as legal affairs, finance, business administration, natural resources, or communications.
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Acting as ambassadors for the district within the community and helping build constructive relationships with partners, stakeholders, and the public.
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Offering volunteer assistance for district initiatives, programs, and events.
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Through these activities, directors stand with district staff, contributing experience and advocacy to support program delivery and community engagement.
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Balancing Governance and Support
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The distinction between governance and support roles helps clarify the boundary between the board and district management staff. In their governance role, directors stand outside district operations and ensure accountability to the public interest. In their support role, they stand alongside staff to advance the district’s mission and ensure staff have the resources necessary to perform their work effectively.
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Effective performance in both roles relies on cooperation among all members of the district team. Sound, informed decision-making requires accurate, unbiased, and timely information from district staff and partner agencies regarding district programs, operations, policy options, and potential outcomes. Information should be presented with sufficient detail to demonstrate how decisions affect district services, relate to the district budget, and advance mission objectives.
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Directors should clearly communicate their expectations regarding the type, amount, format, and timing of information needed for board decisions. Establishing and maintaining an efficient and transparent information exchange system is a shared responsibility of both the board and district staff.
Responsibilities of Conservation District Directors
As members of a conservation district board, directors carry a fundamental responsibility for the protection, management, and enhancement of natural resources within their county. To effectively fulfill this role, directors must possess a working understanding of district resources, maintain awareness of local conservation challenges, and demonstrate a commitment to identifying and advancing practical solutions.
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Directors are expected to perform a range of duties, several of which are outlined in other sections of this resource. Key responsibilities include:
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1. Understand the Conservation District Law
Become fully familiar with Pennsylvania’s Conservation District Law, including the powers, authorities, responsibilities, and limitations it establishes for conservation districts.
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2. Attend Board Meetings
Participate regularly in all scheduled and special meetings of the district board to ensure informed decision-making and effective governance.
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3. Fulfill Assigned Leadership Roles
Accept and carry out the responsibilities of any board office or committee assignment. Serve actively on committees and provide clear reports regarding committee activities and outcomes.
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4. Engage and Support Cooperators
Assist in enrolling landowners as cooperators and encourage citizen participation in district programs to advance conservation efforts within the community.
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5. Participate in Professional Development and Representation
Attend regional, state, and national conservation district meetings, along with other relevant events, to remain current on emerging conservation issues and program developments. When representing the district, communicate positions that reflect the collective perspective of the board, rather than personal views.
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6. Pursue Funding Opportunities
Explore and support efforts to secure additional financial resources to strengthen district programs and services.
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7. Stay Informed on Conservation Issues
Maintain up-to-date knowledge of conservation issues, laws, regulations, policies, and programs affecting the district and its operations.
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8. Build Collaborative Relationships
Develop and maintain strong working relationships with county commissioners, legislators at all levels, agency partners, and representatives of cooperating organizations to support the district’s mission and initiatives.
9. Understand District Programs
Be thoroughly familiar with the district’s programs, services, and ongoing activities to provide informed guidance and oversight.
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10. Demonstrate Constructive Leadership
Approach district responsibilities with a positive, innovative, and action-oriented mindset that contributes to effective conservation outcomes and continuous improvement.
The Board - Staff Relationship
Background: The Evolving Role of District Staff
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​The earliest conservation district employees served as clerical assistants to the USDA Soil Conservation Service (SCS)—now the USDA Natural Resources Conservation Service (NRCS)— providing administrative support funded locally to complement federal conservation planning and technical services.
As resources allowed, some districts hired technical staff to assist in field operations, with day-to-day supervision often provided by SCS District Conservationists. The emergence of district employees with responsibilities beyond clerical support marked the first full-time, on-the-ground presence for conservation districts, enabling representation at community meetings, providing a local point of contact, and delivering timely information on resource concerns beyond traditional agricultural issues.
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​This expanded presence helped districts cultivate new partnerships, develop additional program areas, and interact more frequently with legislators, funders, agencies, and community stakeholders. As district staff gained expertise and demonstrated the capacity to deliver cost-effective local programs, districts secured increasing numbers of projects, grants, and responsibilities, resulting in substantial staff growth.
These developments underscored the need for a clearly defined board–staff partnership: district employees carry out program delivery and represent district operations, while district boards maintain governance authority. Properly maintaining these boundaries is essential to sustaining the trust, communication, and mutual support necessary for effective conservation district operations.
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As conservation district programs expanded and became more complex, district boards of directors transitioned from performing daily administrative tasks to establishing policies that guide multi-program operations, grant management, and staffing.
This shift created a clear need for professional district managers to oversee day-to-day decisions within defined board-established authorities. Where boards successfully recruited managers whose skills and values aligned with district priorities, district programs advanced rapidly in both scope and effectiveness.
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District professionals assumed responsibility for organizing, condensing, and communicating increasingly diverse program information to support informed policymaking by district boards. As districts addressed local conservation needs through more innovative and proactive approaches, new partnerships and funding opportunities emerged, further accelerating program growth.
This expansion heightened the importance of maintaining shared values and aligned philosophies between district directors and staff to ensure consistent direction and effective local service delivery.
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With a detailed understanding of complex program requirements, district managers often facilitate relationships with agency partners and community stakeholders on behalf of the board. District employees also provide full-time representation of the district and play a critical role as both gatekeepers of essential program information for directors and as the district’s public representatives, analyzing local resource issues and presenting objective information to the board.
Once the board establishes policy direction, district staff are responsible for implementing actions in a manner consistent with board intent and the district’s mission.
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Board Responsibilities: District Staff
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The district board is responsible for oversight of the district’s operations, which include hiring and supervision of staff as well as the development of employee policies. Day-to-day supervision of district staff is the responsibility of the District Manager or Executive Director, but the board’s oversight responsibilities with regard to employees are important in several key areas.
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Boards at independent districts are responsible for establishing total compensation packages for employees, including salary and benefits. The district board is also usually responsible for developing and maintaining written personnel policy. If not already covered under a county’s personnel policy, staff should have clear guidelines on employee expectations, standards of performance and conduct, and other policies and procedures. This responsibility also extends to ensuring district compliance with current employment laws and adherence to legal requirements for employers.
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Annual performance evaluations are intended to clarify expectations, share concerns, and identify continued professional development needs for staff. Performance evaluation of staff should be conducted by the District Manager, but the board should understand the process and review the results.
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Some district boards establish a personnel committee to maintain communication for employee concerns or grievances, to explore employee initiatives, or make recommendations to the board on compensation, policy, or other personnel actions.
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It is important to note that boards at districts with staff who are county employees may have a more limited purview over personnel matters compared to those at independent districts.
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Employment Law for Districts 2025 Reference Guide
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Board Responsibilities: District Manager/Executive Director
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One of the board’s most critical personnel responsibilities is the hiring and regular evaluation of the District Manager or Executive Director. Strong board governance warrants that the District Manager or Executive Director acts as the crucial bridge, translating strategy into action and ensuring information flows between the board and staff. This requires strong communication, mutual respect for boundaries, and collaborative goal-setting for alignment and success. An annual performance evaluation ensures effective leadership, accountability, and progress toward district goals by supporting a manager's professional development, addressing concerns, and contributing to overall job satisfaction.
Manager evaluations should follow a formal, documented process that is fair, consistent, and practical, producing records suitable for future reference. Evaluations should be conducted by a board committee—not an individual director—such as the executive committee, personnel committee, or an ad hoc group familiar with district objectives and managerial responsibilities.
Performance reviews should occur annually and assess progress toward prior-year goals and duties outlined in the manager’s job description. Goals for the District Manager should be clearly tied to the district’s annual work plan and long-term strategic objectives, as established by the board.
Organizational Development and Culture
Organizational development refers to the intentional strengthening of a conservation district board’s structure, governance practices, and operational capacity to more effectively fulfill its mission of conserving local natural resources. It focuses on ensuring the board possesses the appropriate skills, policies, and processes to provide effective leadership, respond to evolving community needs, and address emerging environmental challenges.
Through sound organizational development, boards are able to move beyond day-to-day administrative matters and focus on strategic, long-term leadership that supports the district’s resilience and effectiveness.
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Organizational culture encompasses the shared values, beliefs, expectations, and behavioral norms that influence how board members and staff interact, make decisions, and carry out the district’s mission. Culture represents the collective “tone” of the organization and plays a critical role in board effectiveness, staff retention, public engagement, and overall program success.
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Key elements of organizational development and culture include effective planning, sound policy development, performance assessment, and regular program evaluation. Together, these elements support strong leadership, effective partnerships, and the successful conservation of local natural resources.
District Planning
Planning establishes direction for a conservation district and is a core responsibility of the board of directors. The board’s primary duty is to develop and carry out programs that conserve and protect land, water, and related natural resources.
Effective planning requires directors to identify local conservation needs, set priorities and goals, develop long-range, strategic, and annual plans, ensure implementation, and regularly evaluate program effectiveness. Without intentional planning, financial, human, and material resources are often underutilized or applied inefficiently.
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An effective planning process engages stakeholders beyond the conservation district. Directors should involve landowners, operators, local and county officials, citizen groups, environmental organizations, and other partners in assessing county resource needs. Broad participation strengthens the credibility, relevance, and effectiveness of district plans.
Following this assessment, the board should establish strategic goals that address identified needs and provide a clear future direction. These goals should be realistic, measurable, motivating, and flexible enough to adapt to changing conditions.
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Conservation districts typically rely on three interrelated planning frameworks. Long-range plans (five to ten years) define broad future goals and include a vision, general actions, and key stakeholders. Strategic plans (three to five years) translate long-term goals into specific objectives, timelines, accountability, and evaluation measures and often guide annual goal-setting.
Annual plans detail the actions to be completed within a single year and should include SMART goals (Specific, Measurable, Attainable, Relevant, and Time-bound). Regular evaluation of progress and outcomes is essential to ensure accountability and continuous improvement and to keep district programs aligned with identified conservation priorities.
Building for Tomorrow Strategic Planning Grants Program and Resources
District Policies
One of the core responsibilities of a conservation district board is to provide leadership and operational guidance to directors, staff, and volunteers. Act 217, the Conservation District Law, authorizes district boards to adopt policies and procedures necessary for effective organizational management.
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​Districts are strongly encouraged to adopt a proactive approach to policymaking. Policies should be developed in anticipation of common operational situations and programmatic responsibilities, rather than in reaction to crises. Proactive policies reduce uncertainty, support timely decision-making, and limit organizational risk.
Most operational policies can be developed by addressing three fundamental questions:
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What situations, programs, or procedures require clear guidance?
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What legal, regulatory, or programmatic requirements apply?
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What is the intended purpose and outcome of the policy?
All district policies and position statements must be formally adopted at a public district board meeting. Draft policies should be distributed and discussed at one meeting, with final adoption occurring at a subsequent meeting to allow adequate time for board consideration and public input. Personnel policies should be reviewed by qualified employment law counsel prior to adoption. All adopted policies should be maintained in an official Policy Manual, with copies provided to all directors and staff. Policies applicable to public interaction should be made available when relevant.
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Policy management is an ongoing responsibility. Districts should periodically review policies to ensure alignment with current programs, legal requirements, and operational practices. A policy governing policy development, adoption, and review is strongly recommended. Equally important is training: policies must be incorporated into orientation for new directors and staff and reviewed periodically with existing personnel. In some situations, documented training is a critical factor in demonstrating due diligence and limiting district liability.
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Purposes of District Policies
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Promote efficient internal operations
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Establish a professional public image
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Support orientation of directors and staff
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Save staff and board time
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Meet legal and contractual requirements
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Reduce perceptions of arbitrariness or bias
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Formally capture and preserve board decisions
Common Policy Areas
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Personnel and employment practices
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Use of vehicles, equipment, and electronic communications
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Staff conduct and appearance
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Board roles and procedures
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Fiscal management and internal controls
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Public interaction and communications
Key Policy Principles
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Be proactive rather than reactive
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Ensure policies are written and formally adopted
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Maintain and distribute a Policy Manual
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Make policies accessible when appropriate
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Establish a process for policy review and maintenance
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Provide regular training on policies
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Ensure legal review for accuracy and compliance
Performance Assessment
Performance assessment is a critical component of effective conservation district governance and organizational development. Ongoing orientation of new directors, regular evaluation of board and staff performance, and access to professional development opportunities help ensure that district leadership remains informed, effective, and responsive to changing conservation needs. Training and assessment enable directors and staff to remain current on conservation issues, management practices, and emerging best practices.
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As conservation districts grow in scope and complexity, boards and staff must periodically evaluate both organizational performance and organizational culture. The thoughtful use of evaluation tools strengthens operations, improves communication, and reinforces accountability throughout the district.
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Performance assessment supports district effectiveness by helping to:
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Identify emerging issues while they can still be addressed constructively;
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Recognize and reinforce effective performance;
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Measure progress toward established goals and objectives; and
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Evaluate program effectiveness and adjust strategies as needed.
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Evaluating the Board–Staff Team
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The Board–Staff team is the operational foundation of the district. Clearly articulated expectations, effective communication, and constructive feedback are essential to maintaining a productive working relationship. Staff operate under the authority (and legal responsibility) of the board and are responsible for implementing board policies and objectives. In turn, the board is responsible for clearly articulating its philosophies, policies, and expectations to staff. Mutual understanding of these roles is essential to organizational effectiveness.
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Strong working relationships are built through consistent interaction. One-on-one meetings, retreats, planning sessions, and joint participation in conferences or training events all contribute to improved communication and trust between directors and staff. These settings allow staff to share program details, trends, and operational challenges, while directors contribute community knowledge and strategic perspective. Together, this exchange helps ensure that the board and staff share a common understanding of the district’s mission, priorities, and future direction.
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In an operational context, it is important to regularly evaluate internal communications systems, processes, and procedures. These structures should support accountability and provide a foundation for consistent decision-making by allowing information to flow effectively in both directions. Board members should receive staff reports in a timely and useful format to help them better understand staff program responsibilities.
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Board Development & Self- Assessment
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Another critical area for evaluation is the district board itself. Board self-assessment helps ensure that directors are fulfilling their governance responsibilities, adding value to the organization, and providing effective leadership.
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Regular board self-evaluations can:
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Improve board effectiveness and accountability;
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Identify training and development needs;
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Support smoother transitions during changes in board membership; and
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Strengthen board performance as district responsibilities evolve.
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Board Self-Assessment template
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Succession planning and board recruitment should be aligned with the district’s current and future needs. Boards are encouraged to seek directors with diverse skills, backgrounds, and community connections, including expertise in agriculture, finance, communications, technology, and public engagement. Strategic board development can support increased stakeholder engagement through public outreach and partnership with county nominating organizations and reinforce the district’s role as a trusted local conservation leader. (See section 2: Nomination & Selection of District Directors)
Program Evaluation
Program evaluation is an essential management and governance function that enables conservation districts to assess the effectiveness of conservation plans, programs, and services. Establishing formal processes for regular review ensures that district activities align with stated goals, respond to new information, and adapt to changing environmental, regulatory, and community conditions.
As conservation districts expand their programs, stakeholder networks, and funding sources, program evaluation becomes increasingly important. More complex funding streams, regulatory requirements, and partnerships require districts to demonstrate accountability, effectiveness, and measurable outcomes.
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It is important to periodically assess whether district programs remain relevant, effective, and aligned with community needs—and whether they are being delivered in the most efficient and effective manner.
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Program evaluation allows the board and staff to determine whether:
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District programs are advancing the mission and strategic objectives of the conservation district;
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Resources are being used efficiently and responsibly;
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Programs are meeting the needs of landowners, municipalities, and other stakeholders; and
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Adjustments are needed to improve outcomes or respond to emerging challenges.
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Program goals must directly support the district’s mission and be accompanied by measurable indicators of progress. Regular measurement and review allow districts to determine whether goals are realistic, attainable, and producing desired outcomes.
Through consistent program evaluation, conservation districts strengthen accountability, improve performance, and ensure that limited resources are directed toward activities that deliver meaningful conservation results.
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The National Association of Conservation Districts (NACD) has developed an evaluation framework to assess program effectiveness broadly, and district partner agencies also have resources to assist districts in developing appropriate methods for assessing program effectiveness.
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District Finances
Effective financial management is a fundamental responsibility of the conservation district board of directors and must be clearly understood and regularly evaluated. Adequate internal financial controls are essential to safeguarding public funds, maintaining fiscal integrity, and sustaining the district’s professional credibility.
Internal controls constitute a system of checks and balances designed to ensure accuracy, accountability, and transparency in financial operations. These controls may include dual-signature requirements, separation of financial duties, and periodic or unannounced reviews of financial accounts.
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Internal financial controls reduce the risk of intentional or unintentional misuse of district assets and minimize the likelihood of financial misstatements. While such controls are commonly associated with fraud prevention, they also protect district employees by reducing the risk of unfounded accusations. Auditors can provide valuable guidance in evaluating and strengthening a district’s internal financial control system.
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Funding
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All conservation district funds are public monies, regardless of their source, and district directors are accountable for all expenditures. Detailed and accurate records must be maintained for all funds received and disbursed. Expenditures should be approved by a majority vote of the board at a regular or special meeting. The State Conservation Commission requires districts to complete an annual audit and submit the results by the established deadline. Boards are encouraged to establish a finance committee to oversee financial matters and to maintain communication with the county governing body regarding district finances.
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Financial planning should begin with a clear assessment of funding needs, developed in conjunction with the district’s annual plan. Funding sources may include federal, state, and county appropriations; grants; fees for service; and locally generated income. Many cooperative agreements and grants require matching funds, which may sometimes be met through in-kind services or materials.
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State funding is generally provided through the State Conservation Commission and designated for specific purposes. The Conservation District Fund Allocation Program (CDFAP) allocates cost-share funds for staffing, administrative support, Commission-mandated activities, and approved program elements, using an equitable distribution process. County governments often provide additional support, recognizing the district’s role in land use planning, stormwater management, erosion and sediment control, and related resource management services. Federal funds may also be available for special projects and initiatives.
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Districts may supplement funding through fundraising activities, such as seedling sales, and by establishing fee schedules for allowable services in accordance with Commission policy. Competitive grants are another important funding source, particularly for education, outreach, and demonstration projects. Funding oversight is a major responsibility of district directors, and all appropriate funding opportunities should be pursued in support of district goals and objectives.
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Audits
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As conservation districts have assumed greater responsibilities and visibility, scrutiny of their use of public funds has increased. In response, minimum audit requirements were established by the State Conservation Commission in coordination with the Department of Environmental Protection and the State Comptroller’s Office. Audits are intended to ensure compliance with laws, policies, and sound financial practices and to promote accountability and transparency.
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All required district audits must:
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Include all funds received, maintained, and expended by the district.
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Be conducted by or under the supervision of a Certified Public Accountant (CPA).
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Comply with generally accepted auditing standards and Government Auditing Standards.
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Be completed annually as an independent audit, separate from any countywide audit.
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Be submitted, along with findings and management letters, to the appropriate state and county offices by the required deadline.
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Districts are encouraged to have auditors present audit findings at a board meeting to facilitate understanding and discussion. Directors should be familiar with both annual audit reports and monthly financial statements. Districts are also encouraged to use computerized accounting systems where feasible.
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Failure to meet audit deadlines may result in forfeiture of certain state funds and may trigger additional sanctions. Districts unable to meet deadlines must formally request an extension in accordance with Commission procedures.
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Budgets
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Budget development is a critical component of financial management and should be conducted annually in coordination with the district’s annual plan. District budgets should include projected revenues and expenditures, comparisons to prior-year actuals, and recommended allocations for each budget line item. The board treasurer should provide regular budget status reports at board meetings. Required financial documents must be submitted to the State Conservation Commission by the established deadlines.
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Fiscal Accountability
Conservation districts are public agencies established by state law, and district directors serve as public officials appointed by county government. Directors are accountable to the public, the county governing body, the State Conservation Commission, and funding partners for the stewardship of public funds, property, and equipment.
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Public trust is a critical asset. Boards are encouraged to promote transparency by publishing annual financial statements and reports of district accomplishments. Providing clear and accessible information about district activities and expenditures strengthens public understanding, builds confidence, and reinforces the board’s responsibility to act in the public interest.