Direct funding for the Workforce Pre-Apprenticeship Program and a SummerWorks Youth Employment Initiative
WHEREAS, the City of Portland acknowledges the urgent need to provide equitable employment opportunities and accessible career pathways for all community members; and
WHEREAS, investing in workforce development is crucial for fostering economic growth and mitigating workforce shortages in essential sectors; and
WHEREAS, pre-apprenticeship programs play a critical role in enabling individuals to acquire the skills, training, and support required to excel in registered apprenticeship programs; and
WHEREAS, the City of Portland is dedicated to advancing diversity, equity, and inclusion across its workforce; and
WHEREAS, Prosper Portland manages the Community Opportunities and Enhancements Program (COEP), which receives its funding through an intergovernmental agreement between the City and Prosper Portland; and
WHEREAS, the City’s current FY 2024-25 budget allocated approximately $2.6 million for COEP; Council hopes that this funding will continue through FY 2025-26 under that intergovernmental agreement; and
WHEREAS, in 2009, the City helped establish a fund the SummerWorks program, an initiative that places Portland-area young adults in summer jobs, helping them gain vital work experience and fostering skills development; and
WHEREAS, this financial support is essential for construction projects and similar labor-intensive initiatives including the Sidewalk Improvement Project and Paving Program (SIPP), the Interstate Bridge Replacement (IBR), the I-5 Rose Quarter Improvement Project, and the Bull Run Filtration Project; and
WHEREAS, just these construction projects alone are expected to contribute about $15 billion in the city’s infrastructure and economy and generate about 22,000 construction jobs (according to a 2024 Interstate Bridge Replacement Program Infrastructure Workforce Market Study); and
WHEREAS, this projected growth in public projects indicates a demand for 3,800 apprentices, 4,700 workers of color (including both journey-level and apprentices), and 2,500 women workers (including both journey-level and apprentices); and
WHEREAS, the current supply of skilled labor falls short, revealing a deficit of approximately 300 workers of color, 1,100 women workers, and nearly 1,300 apprentices to adequately meet the needs for all trades within the region for public projects; and
WHEREAS, this analysis does not account for any private construction demands that may elevate the need for skilled labor even further; and
NOW, THEREFORE, BE IT RESOLVED that the Portland City Council considers the Community Opportunities and Enhancements Program critical to the City’s mission to provide employment opportunities within the City of Portland and the broader community. COEP should receive enough funding to continue for at least the next several years; and
BE IT FURTHER RESOLVED, Council believes that the SummerWorks Youth Employment Initiative should continue to offer summer and year-round employment opportunities for Portland's youth, helping them gain vital work experience and fostering skills development; and
BE IT FURTHER RESOLVED, Council hopes to allocate funding to SummerWorks in the FY 2025-26 City budget at a level sufficient to meet Portland’s workforce needs in the future;
BE IT FURTHER RESOLVED, the City shall establish objectives for both the COEP and the SummerWorks program. Those objectives include, but are not limited to:
- Delivering high-quality training opportunities across a variety of trades and sectors.
- Assisting participants in obtaining industry-recognized certifications.
- Fostering collaborations with local businesses, labor unions, and educational institutions to enhance the effectiveness of the programs.
- Executing outreach efforts to engage and recruit a diverse array of participants.
BE IT FURTHER RESOLVED, the SummerWorks Youth Employment Initiative will be operated by Worksystems, Inc. and will remain within the Bureau of Human Resources; and
BE IT FURTHER RESOLVED, an advisory committee shall be formed to provide strategic guidance and support for the operations and objectives of the Programs; and
BE IT FURTHER RESOLVED, Worksystems Inc. shall deliver an annual report to Prosper Portland and the City Council detailing the Programs’ accomplishments, demographics of participants, outcomes, and potential areas for enhancement.
Exhibits and Attachments
Impact Statement
Purpose of Proposed Legislation and Background Information
The Workforce Pre-Apprenticeship Program and SummerWorks Youth Employment Initiative represent a transformative investment in Portland’s workforce, bridging critical gaps in skilled labor while fostering equitable economic opportunity. By directly funding these programs, the City of Portland is taking a proactive approach to ensuring that residents, particularly those from historically underrepresented communities, have access to career pathways in high-demand industries.
With over $15 billion in planned infrastructure investments and an estimated 22,000 construction jobs emerging, the demand for skilled workers—especially apprentices, women, and workers of color—far exceeds the current supply. This resolution not only addresses immediate workforce shortages but also strengthens the long-term economic vitality of the region.
The Communities Opportunities and Enhancement Program Workforce and Pre-Apprenticeship Program will provide essential training, mentorship, and employment support, preparing participants for high-paying, sustainable careers in the skilled trades. Simultaneously, the SummerWorks Youth Employment Initiative will ensure young people gain early exposure to professional environments, developing the experience and skills necessary for lifelong career success.
Financial and Budgetary Impacts
Awaiting input from the City Budget Office. Based on past funding levels for these and similar workforce programs, the Financial and Budget Impacts are anticipated to be in the range of $2 to $5 million annually for the next few years.
Economic and Real Estate Development Impacts
Not applicable.
Community Impacts and Community Involvement
Portland communities will benefit from these programs focused on providing youth and young adults good jobs with construction firms and small businesses working on major infrastructure development projects within the City. Additionally, these programs align with the equitable community engagement efforts by the Office of Community & Civic Life.
100% Renewable Goal
Not applicable
Financial and Budget Analysis
Analysis provided by City Budget Office
Regarding COEP: The current IGA with Prosper Portland (who administers the COEP program) is set for $2,598,196.46 in FY 2024-25 and FY 2025-26 based on ordinance 191852. Procurement also supports the program through a staff position and IMS costs, bringing the total CY budget for COEP to $2,883,208. The resolution states that recent city budget proposals have not included funding for COEP. However, the program is funded by a 1% set-aside of eligible costs on all City-owned public improvement contracts over $500,000. Funding for the program varies year to year based on the number of new projects that satisfy COEP's requirements. Total revenue in the COEP program is projected to decrease in future years as cash balance accumulated during a period of legal review and inactivity are drawn down in FY 2025-26 and the program will return to a yearly construction fee revenue. Further conversations are needed around ongoing yearly resource levels to support future operations of the COEP program as currently constructed.
Regarding Summerworks: The program operates out of the Bureau of Human Resources and is not funded with COEP resources. The program currently has $244k of ongoing General Fund resources and $316k of one-time GF resources for a total of $560k in FY 2024-25. The program previously had $560k budgeted ongoing for the program but was temporarily made whole after proposed cuts during the FY 2024-25 budget development process. In FY 2025-26, the Summerworks program is losing $316k of one-time General Fund resources as well as a limited-term duration position supporting the program. In order for the program to continue with existing service level delivery, Council would need to commit at least $250,000 in new ongoing funding for the program and $175,000 for a position to support the program.
Based on known budget information, there should ~$2.8 million designated for these programs totaling COEP and General Fund resources.
Further, the resolution incorrectly cites project costs and workforce expectations from the 2024 Interstate Bridge Replacement Program Infrastructure Workforce Market Study provided as supplemental information. The resolution cites that four projects will contribute about $15 billion to the City’s infrastructure and economy of which two of these projects are overseen by the City. However, per the study, the $15 billion number cited in the resolution comes from 107 public projects over $15 million in the Portland Metro area over the next five years. Out of the 107 public projects listed, 23 belong to the City of Portland. The resolution cites that four projects will generate 22,000 construction jobs. However, per the study, the 22,000 jobs cited in the resolution are a total count spread throughout the study period and “not net new jobs as they may be filled by the existing workforce as well as new entrants.”
Finally, there are unknown costs without more information on what resources and staff are needed to support an advisory committee proposed by the resolution or to increase internship or apprenticeship offering.
Document History
Document number: 2025-156
President's referral: Labor and Workforce Development Committee