It's surely true that the 10K issue was likely the predominant factor, but I would also suspect a lack of persuasive leadership. In my experience, the leaders of this kind of effort really have to go all out to educate the membership before putting something this significant up for a vote. In the successful efforts that I'm familiar with, guest speakers were brought in to talk about the important issues, like tree management programs, bunker improvements, green expansion or contraction and the like. With photo-shop techniques available, a persuasive case can be made with a good slide presentation showing a before and after. Another technique one might attempt is to get authorization to "fix" one hole in the manner that the remainder of the work would be done. Pick a hole that is likely to acquire a "wow" out of reluctant members after the work is done. Then try to sell the rest of the work. I've seen this done successfully on several occasions with difficult memberships.