2022-23 Parks Levy Annual Report: Executive Summary

View the full 2022-23 Parks Levy Annual Report

City Council unanimously voted to accept the 2022-23 Parks Levy Annual Report and Executive Summary on December 13, 2023. 

From the Commissioner

As the City Commissioner overseeing Portland Parks & Recreation (PP&R), I am pleased to present the 2022-23 Parks Local Option Levy (Parks Levy) Executive Summary. The unwavering support expressed through your YES vote in 2020 has been instrumental in shaping our parks, nature, and recreation system that is tailored to the evolving needs of our diverse community. We extend our sincere gratitude for your trust in our vision, which has been the driving force behind PP&R’s dedication to ensuring equitable access to welcoming spaces, inclusive and playful programs, and services that enhance community well-being and promote environmental conservation and climate justice.

The Parks Levy has played a pivotal role in guiding us towards accessible, playful, inclusive, and sustainable recreation for all Portland residents, with a particular emphasis on historically underserved populations. This commitment ensures opportunities for all Portlanders to engage with nature and access enriching activities.

Year 2 of the Parks Levy witnessed an impressive 373,140 hours of volunteer service, a testament to the collective spirit that energizes Portland’s parks. Initiatives like the Community Partnership Program have nurtured collaborations that broaden our reach, benefiting thousands of youth and embodying the essence of community stewardship.

Our steadfast commitments to deliver Recreation for All, Protect and Grow Nature, and foster Community Partnerships remain unwavering and transparent. PP&R has made significant strides in promoting equity through innovative programs including the Access Pass, which gives people living with low incomes options for financial assistance for PP&R programs and services. This achievement transcends mere operational success; it embodies our shared values and eliminates cost as a barrier.

Looking ahead, we are poised to build upon our successes and expand our offerings, positioning the Portland parks and recreation system as a national model. Our dedication to advocating for accessibility, sustainability, and resilience will ensure safe, welcoming, and enriching experiences for all.

We extend our heartfelt appreciation for entrusting us with the future of your parks, natural areas, recreation facilities, and programming. Together, we will continue cultivating spaces where community connections can thrive, and the vibrant spirit of our city will flourish for generations to come.

I can’t think of a more critical time in my hometown’s history to play into our strengths. Portland Parks & Recreation is one of them.

Dan Ryan

Culture and Livability Commissioner

From the Director

In Year 2 of the Parks Levy, we’re continuing to make progress aligning PP&R services with Parks Levy commitments and the promises we made to voters in November 2020. This critical operational funding source allows PP&R to provide recreation services to all while also helping conserve parks, nature, and clean water.

Just two years in, the Parks Levy is already making a big difference in the lives of Portlanders. To help illustrate impact, in this year’s report, we’re highlighting stories from community members about how the Parks Levy has impacted them on a personal level. The Parks Levy support for delivering services has also gained national recognition. In 2023, Portland’s parks and recreation system moved up two spots and is now ranked ninth out of 100 in the nation’s most populated cities. This is part of the ParkScore Index, a ranking from the Trust for Public Land where parks and recreation systems are assessed on acreage, access, investment, amenities, and equity. I’m proud of the high-ranking Portland achieved, and glad to have the opportunity to share our work nationally. Most importantly, I’m grateful for your investment in PP&R.

With the support of the Parks Levy, this year, PP&R moved forward with our strategic planning framework, Healthy Parks, Healthy Portland (HPHP) and updated our mission, vision, values, and equity and anti-racism commitment. These changes are the result of two years of community listening, learning, and action. Both the Parks Levy and the HPHP framework are centering the people most impacted by inequities in Portland’s parks and recreation system.

In Year 2 of the Parks Levy, we worked towards:

• Recreation for All: By delivering programs Portlanders love while prioritizing equity, PP&R aims to ensure people of all backgrounds, ages, and abilities benefit from their parks and recreation system. Through our Access Pass, we’re reducing cost as a barrier so that programs serve all Portlanders regardless of income. In summer 2022, PP&R hosted the first ever East Portland Summer Arts Festival, headlined by Grammy Award-winning Portland native and artist Esperanza Spalding, which brought new programming into a previously underserved neighborhood. PP&R strives to have everyone learn, play, and discover with our programs and activities.
• Protect and Grow Nature: With Parks Levy funds, PP&R is now providing holistic park tree maintenance for the first time ever. This will help keep our tree canopy from diminishing. We’ve also hired 78 of the over 100 new positions created with the support of the Parks Levy to increase park, natural area, and tree maintenance. As these positions come on board, the increase in capacity will result in cleaner parks and natural areas and increased care for the urban tree canopy.
• Community Partnerships: In FY 2022-23, our Community Partnership Program partners served almost 3,500 youth, helping meet Parks Levy commitments to deliver services to teens and to connect children experiencing poverty to nature. The Early Registration Pilot Program partnered with 54 community organizations to improve access for underserved communities. Programs like the Community Partnership Program and the Early Registration Pilot Program are connecting community members, especially those who have been underserved, and partner organizations to PP&R programs and spaces.

I’m excited about the continued progress PP&R is making toward the Parks Levy voter commitments. As I reflect on the successes of Year 2, I’m thankful for your continued support.

Adena Long

Director, Portland Parks & Recreation

Executive Summary

The Parks Local Option Levy (Parks Levy) was passed by Portland voters in November 2020 to provide Portland Parks & Recreation (PP&R) with crucial operational funding. The Parks Levy is a property tax of $0.80 per $1,000 of Assessed Value. It will raise approximately $48 million per year for five years and supports one-third of the bureau’s operating budget; the tax was implemented in 2021. Year 2 of Parks Levy collection and implementation was fiscal year (FY) 2022-23.

The revenue generated from the Parks Levy is allocated towards park maintenance; enhancing access, equity, and safety; preventing cuts to recreation programs; and proactive care for natural areas and the city’s urban forest. In FY 2022-23 the Parks Levy generated $47.99 million in revenue and PP&R spent $25.82 million Parks Levy funds. Of that total, $25.47 million was spent on programs and services, and $350,242 was spent on reducing financial impact to the Portland Children’s Levy caused by compression under Oregon property tax law. After reimbursing expenditures, $22.17 million in FY 2022-23 Parks Levy revenue remained. Those funds will be rolled over to be spent in future years on Parks Levy eligible service delivery. Total net expenses include reductions from associated revenues such as other funding sources and fee revenues. The Parks Levy supports a portion of the remaining total net expense.

The Parks Levy ballot language included 15 commitments that PP&R is using to measure and report on the success of the Parks Levy. The commitments are grouped under larger service categories: Recreation for All, Protect and Grow Nature, and Community Partnerships. Overall, Year 2 of the Parks Levy has built upon the foundations laid in Year 1 and progress has been made on all 15 commitments.

By the Numbers: Parks Levy Year 2

Recreation for All

PP&R had $26.17 million in total net expenses related to Recreation for All. Parks Levy funding provided $8.98 million toward those expenses.

Voter commitment: Prevent cuts to recreation programs, closures of community centers and pools (C4*).

^{*The fifteen commitments each have a code from their exhibit letter and order in which they appear in the exhibit. Exhibit C and Exhibit D were included in the original resolution (Resolution No. 37498) and voter pamphlet. See end of content for the full list.}

Key actions/programs in FY 2022-23

• Continued recreation programs and operating community centers and pools: Without the Parks Levy, community centers, camps, and pools would be limited in capacity and operations. The Parks Levy provides Recreation Services with financial support for delivering programs, and
  operating community centers and pools. Additionally, the Parks Levy reduced the need for PP&R to charge fees that were historically needed to keep programs and facilities running but were a barrier for many community members. In FY 2022-23, with the support of the Parks Levy, PP&R has increased programing and prevented closures of operating community centers and pools.
• Stabilizing Summer Free for All: Starting in FY 2022-23, Summer Free For All was stabilized with ongoing support from the Parks Levy. Results of this additional support are expected to be 1) an increase in participation by community partners representing low-income areas and culturally diverse groups, and 2) a reduction in service cuts every year due to rising costs and fundraising shortfalls. Parks Levy funding also allows Summer Free For All to align with the bureau’s equity and anti-racism commitment and prioritize partnerships with culturally specific and low-income groups by offering financial assistance to community partners to help cover costs and provide resources.

Funding
Parks Levy funds spent: $2.84 million—a portion of the total $8.27 million net expenses for Recreation facility operations and rentals.

Voter commitment: Deliver recreational programs, including, but not limited to, environmental education and access to nature for youth, summer camps, family-friendly movies and concerts, fitness and arts classes, teen- and senior-focused programs, life-saving swim lessons, and a summer playground program serving free lunches to children experiencing hunger (D2).

Key actions/programs in FY 2022–23

• Increased attendance: In FY 2022- 23, PP&R programs had an estimated attendance of 1,159,801 people—an increase from the previous year. In addition, PP&R served 99,432 free meals throughout the year to youth and families through Free Lunch + Play, SUN Community Schools, and after-school programs.
• Swim lessons: In summer 2022, like nearly all parks and recreation agencies across the country, PP&R experienced staffing challenges that greatly affected the availability of programs and classes. PP&R worked to approve a new labor agreement to increase pay for swim instructors, lifeguards, counselors, attendants, seasonal maintenance workers, and customer service staff. Despite staffing challenges, PP&R increased access to swim lessons in FY 2022-23. Nearly 11,000 individuals were able to access swim lessons, an increase from 8,562 individuals in the year prior. The hours worked by swim instructors also increased from 7,879 to 12,599 meaning that more hours of swim lessons were offered.

Funding
Parks Levy funds spent: $6.14 million—a portion of the approximately $17.9 million total net expenses for recreation programs.

Voter commitment: Remove financial barriers for low-income households by ending current dependence on recreation fee revenues, allowing an equity-focused delivery of community events and programs and reducing the likelihood of further cuts to recreation offerings (D3).

Key actions/programs in FY 2022–23

• Access Pass: In 2021, PP&R piloted two new discount models to reduce cost as a barrier. Feedback from users informed the development of a new Access Pass program that launched in fall 2022. City of Portland residents can register for a free Access Pass to receive an ongoing discount of 25, 50, 75, or 90%. The pass is renewable every 12 months from the date of  enrollment and no proof of income is required. It is suggested that those with a lower income or a higher number of family members consider selecting a greater discount. The Access Pass can be used to reduce the price of admission to community centers and pools; classes, camps, swim lessons, and other registered activities; preschool and after school programs; and  personal training. At the end of FY 2022-23, PP&R had 17,662 users signed up for the Access Pass. Since the start of the Access Pass in October 2022, about 30% of new accounts joining the PP&R system also signed up for an Access Pass. 

Protect and Grow Nature

PP&R had approximately $42.97 million in total net expenses related to Protect and Grow Nature. Parks Levy funding provided $14.74 million toward those expenses.

Voter commitments: Enhance and preserve parks, river, wetlands, trees, and other important natural features in urban areas for the benefit of all Portlanders and wildlife (C1); AND Protect water quality and wildlife habitat, control erosion, remove invasive species in 8,000 acres of natural area (D1).

Key actions/programs in FY 2022–23

• Increasing soft surface trail maintenance and natural area stewardship: PP&R’s Soft Surface Trails team builds new trails, fixes bridges and culverts, and repairs trails after storms. This work is essential to creating and managing year-round access to nature. With the Parks Levy, PP&R added a new stewardship coordinator position to the Soft Surface Trails team to engage with volunteer groups that have a more advanced level of understanding around trails and added a new trail technician to increase the team’s capacity and ability to service trails throughout the city. Thanks to the Parks Levy, PP&R can better achieve sustainable access to nature while preserving and enhancing habitat and ecological health.
• Enhancing Protect the Best capacity: PP&R added two new positions to focus on the citywide Protect the Best program, which helps address invasive plants such as Himalayan blackberry, English ivy, and English holly across the city. This work is aimed at maintaining ecologically healthy areas, supporting wildlife, and controlling invasive plants before they have a chance to damage natural ecosystems.

Funding
Parks Levy funds spent: $1.61 million—a portion of the $4.7 million total net expenses for natural area maintenance.

Voter commitment: Increase opportunities for communities of color and children experiencing poverty to connect with nature (C3).

Key actions/programs in FY 2022–23

• Increased Environmental Education participation: PP&R hosted 5,415 participants in Environmental Education (EE) programming—an increase from the previous year. EE programs include Nature Day Camp, Youth Conservation Crew, Ladybug Nature Walks, Teen Nature Team, and internships. This programming plays an essential role in connecting youth and Portlanders to nature.
• Adding bilingual and culturally specific programming to the Nature Education Program: In Fall 2022, the Nature Education Program (NEP) team expanded programming to include bilingual programs with Head Start classes, preschools, and multiple elementary schools. The NEP team has also partnered with different culturally specific communities within the Immigrant Refugee and Community Organization (IRCO) to lead eight Ladybug Nature Walks, including with Somali, Burmese, Russian, Chuukese, and Ukrainian refugee communities. When possible, interpreters joined educators at these programs to ensure participants were able to connect to nature in their native language.

Funding
Parks Levy funds spent: $448,645 —a portion of the $1.31 million total net expenses for EE.

Voter commitments: Enhance park maintenance to keep parks clean and safe, including litter and hazardous waste removal, restroom cleaning, and playground safety (C5); AND Clean litter and hazardous waste in parks and natural areas, maintain grounds and landscaping, provide safety checks on play equipment, improve preventative and traditional maintenance (D4); AND Keep public restrooms open and cleaner (D5).

Key actions/programs in FY 2022–23

• Increased maintenance staff: In FY 2022–23 PP&R hired 58 of the over 80 approved new park and natural area maintenance-related positions. These new positions will expand PP&R’s capacity to remove litter and waste, clean restrooms, maintain landscaping, repair equipment in parks and community centers, and ensure playground safety.
• Checking and cleaning of open public restrooms: PP&R continued to service open restrooms for daily checks, cleaning, and repair. In FY 2022–23 PP&R staff spent 19,249 hours on park restroom cleaning and care. Maintenance, litter and waste collection, and restroom cleaning continues to be influenced by ongoing pressures faced city-wide such as camping and vandalism.
• Work order prioritization: Park maintenance is prioritized using Equity and Level of Service scores when work is assigned. Equity scores are based on the percentages of youth, residents of color, and households with low-income levels that live near a park. Level of Service scores reflect how well an area is served, highlighting where there are parks with lower servicing than average. Repair and maintenance teams use these scores in addressing maintenance needs to ensure that all parks, particularly those in East and Southeast Portland where Equity and Level of Service scores are lower, are well serviced. This prioritization method helps PP&R reduce inequities and ensure that everyone gets to enjoy the benefits of well-maintained parks.

Funding
Parks Levy funds spent: $10.64 million—a portion of $31 million total net expenses for park and operational maintenance.

Voter commitments: Plant new trees in communities where today canopy coverage is lower, to improve air and water quality, diminish the impacts of climate change, and provide wildlife habitat (D6); AND Protect Portland’s 1.2 million park trees by performing proactive maintenance, safety checks, hazard removal, and replacement of damaged trees in parks and natural areas (D7).

Key actions/programs in FY 2022–23

• Park tree maintenance: In Year 2 of the Parks Levy, PP&R kicked off a new park tree maintenance initiative, made possible by the Parks Levy. This tree maintenance includes structural pruning and hazard abatement to improve tree health, and removal of dead, dying, or dangerous trees to increase public safety, enhance wildlife habitat, and improve tree health. Prior to the Parks Levy, PP&R never had the funds to maintain and care for trees in Portland’s parks and green spaces in this way. The bureau’s work was limited to reactive, emergency work. PP&R has developed a draft Park Tree Maintenance Plan and has started implementing holistic care for park trees.
• More trees planted: PP&R planted more trees in Planting Priority neighborhoods (neighborhoods where canopy levels are lowest and where resources are most needed to address inequities) than the years prior to the Parks Levy. In FY 2022–23 PP&R planted 3,495 trees—2,381 of which were in Planting Priority (www.portland.gov/trees/ planting-priority) neighborhoods.

Funding
Parks Levy funds spent: $2.05 million—a portion of the $5.96 million tree-related total net expenses.

Voter commitments: Modernize data systems to improve internal efficiency (D8).

Key actions/programs in FY 2022–23

• Volunteer management software: In FY 2022–23 PP&R moved forward the development of a new volunteer management database that will support staff and provide metrics about volunteer and partner organizations for analysis and inclusion, resulting in increased engagement with volunteer and partner groups.
• Work order system upgrade: PP&R also continued to move forward a previous $5 million one-time investment, made in FY 2021-22, to upgrade the bureau’s maintenance work order system. This progress included creating a project technical team and a steering committee, moving towards process mapping and requirements gathering, and coordinating around standards and best practices. This is a critical database that tracks both the work done in parks and natural areas and the work that needs to be done, supporting the maintenance of parks, natural areas, trees, pools, and community centers.
• Urban Forestry web app: PP&R built a new internal web app that boasts an interactive map.  Reviewers can turn data layers on and off, measure distances from infrastructure, and see a photograph of the site. Comments are added directly and will be preserved to create a record of bureau decision-making. This technical upgrade has improved communication among work groups, made the internal decision-making process around tree planting much easier, and will allow for more proactive collaboration with other PP&R teams to grow Portland’s urban forest.

Community Partnerships

PP&R had approximately $5.09 million in total net expenses related to Community Partnerships. Parks Levy funding provided $1.75 million toward those expenses. 

Voter commitment: A community oversight committee will be appointed to review levy expenditures and to report annually to City Council. The Measure also directs the Bureau to provide for a performance audit to ensure that services funded by the levy are consistent with voter intent (D).

Key actions/programs in FY 2022–23

• Continued engagement of the Parks Levy Oversight Committee: The Parks Levy Oversight Committee meets quarterly to verify general compliance with the Parks Levy and progress toward the Parks Levy’s purposes, to advise on transparency and communication strategies, and to counsel on the annual report and a future independent audit process. Committee members in FY 2022- 23 were Alescia Blakely, Judy BlueHorse Skelton, Maria Velez, Paul Agrimis, and Silas Sanderson.
• Parks Levy Oversight Committee members for Years 3 and 4 of the Parks Levy are Alescia Blakely, Zay Conant, Mary Ruble, Silas Sanderson, and Tim Williams. They began or renewed their service in July 2023.

Funding
Parks Levy funds spent: $115,546 —a portion of the $336,703 total net expenses for the oversight committee, Parks Levy communications, and other Sustainable Future program initiatives.

Voter commitment: Prioritize services for communities of color and households experiencing poverty, including equity-centered engagement and outreach, community partnership grants, and increased engagement with volunteer and partner groups (D9).

Key actions/programs in FY 2022-23

• Community Partnership Program: PP&R continued to implement the Community Partnership Program, which was established with the support of the Parks Levy and is administered jointly with PP&R’s existing Teen Collaborative Initiative (TCI) grant opportunity. In FY 2022-23, Community Partnership Program (CPP) and TCI grantees served 3,494 youth. CPP opportunities were also expanded in FY 2022-23 with the addition of a soccer grant opportunity, space use grants at the Community Music Center, and an Interstate Firehouse Cultural Center grant and residency program.
• Early Registration Pilot Program: PP&R promotes an early registration opportunity with local partner organizations who serve the communities that PP&R is centering. Partners have the choice to opt into the program and, in FY 2022-23, PP&R partnered with 54 organizations to share information and assistance for early registration. With this pilot program, up to 50% of a registered activity’s capacity are available during early registration. While early registration is intended to improve access for underserved communities, no one is excluded from signing up during the early registration period.
• Equity and Anti-Racism Lens and the Decision Support Tool: PP&R continues to use the Equity and Anti- Racism Lens, available at www.portland.gov/parks/equityhub, in budget and bureau decisions via the Decision Support Tool, a common framework to evaluate budget choices and investment decisions through an integrated lens. By applying the Equity and Anti- Racism Lens to budget decisions, PP&R continues to prioritize investment and services for underserved communities.
• Healthy Parks, Healthy Portland community engagement: Outreach as part of Healthy Parks, Healthy Portland, PP&R’s strategic framework, is intentional in centering specific communities and raising the voices of Black people, Indigenous people, people of color, immigrants and refugees, people with disabilities, LGBT2SQIA+ people, youth, older adults, and people earning low incomes. In 2023, PP&R released new mission, vision, values, and equity and anti-racism commitments. The third wave of engagement took place in summer 2023.

Funding
Parks Levy funds spent: $1.63 million—a portion of the approximately $4.75 million total net expenses for community engagement and equity services.

Voter commitment: Provide park and recreation services to diverse populations including communities of color, seniors, teens, households experiencing poverty, immigrants and refugees, and people living with disabilities (C2).

Key actions/programs in FY 2022–23

• Increased diversity, equity, and inclusion training for PP&R staff: In FY 2022-23, the new diversity, equity, and inclusion (DEI) training analyst and Workforce Development team launched a new, comprehensive DEI training program. The program’s goals are to create a positive learning experience and environment for employees, and to provide inclusive and accessible DEI training opportunities that increase the cultural competency of PP&R staff. Both goals contribute to PP&R’s fulfillment of Parks Levy commitments.
• Updated Cost Recovery Policy: In 2023, PP&R updated its Cost Recovery Policy to include the key message that implementation of cost recovery practices will center underserved communities. The update was made to better align the policy with Healthy Parks, Healthy Portland priorities and feedback, as well as with Parks Levy commitments.
• Programming for diverse populations: PP&R provides services to diverse populations through programs, activities, maintenance in local parks, and more. Examples of how PP&R serves the specific populations listed in the Parks Levy commitment include but are not limited to:
  • Communities of color: PP&R continues to expand and enhance culturally-specific programming to serve communities of color. Some examples include contracting LoveSome Hair to teach the history, meaning, and purpose of braided hair and centering Black women; partnering with Somali American Council of Oregon on free drop-in arts activities centering Somali youth in Southeast Portland; and piloting a new tapestry weaving class at The Rosewood Initiative.
  • Seniors: Lifelong Recreation offers recreational, educational, and wellness opportunities for adults age 60 and older. Activities include excursions and van trips, health and wellness, arts and crafts, music and dance, sports and fitness, hiking and walking, and much more.
  • Teens: TeenForce, which is free for youth between the ages of 10 to 20 years old, is focused on giving young people the programs they need to thrive: help with homework, drop-in sports, field trips, chess clubs, help with resumes, a fun and safe place to hang out with peers, and so much more. In FY 2022-23, TeenForce Passes were scanned 33,460 times. PP&R also works to provide youth with employment through programs like the Youth Conservation Crew, as well as swim instructor and lifeguard opportunities.
  • Households experiencing poverty: The Access Pass offers up to 90% off program fees. In FY 2022-23, PP&R provided $3,003,745 in financial assistance. PP&R also prioritizes offering free programming.
  • Immigrants and refugees: In FY 2022-23, Southwest Community Center offered English as a Learning Language and marketed the program in partnership with Home Forward to reach people earning low incomes who are also in need of English language support.
  • People with disabilities: Adaptive and Inclusive Recreation (AIR) programs offer community-based recreation activities, trips, and leisure services designed for teens and adults with a disability. PP&R also offers inclusion services to provide meaningful access to all PP&R registered classes and activities to people with disabilities.

In Year 2 of the Parks Levy, PP&R continued to make progress on commitments made to voters in November 2020. Community centers, pools, and facilities were able to remain open for community use and programming while significantly growing the availability of financial assistance. Maintenance services and team capacity increased to better serve and maintain parks and natural areas. Expanded partnerships and outreach helped reach diverse and underserved communities. Year 2 has shown continued success on the commitments made to Portland voters.

Ballot Title and Explanatory Statement

PP&R is tracking progress on the fifteen commitments listed in the November 2020 voter pamphlet and approved by Portland voters. Exhibit C and Exhibit D were included in the original resolution (Resolution No. 37498) and voter pamphlet. The fifteen commitments each have a code from their exhibit letter and order in which they appear in the exhibit.

The City of Portland ensures meaningful access to City programs, services, and activities to comply with Civil Rights Title VI and ADA Title II laws and reasonably provides: translation, interpretation, modifications, accommodations, alternative formats, auxiliary aids and services. Request these services online or call 503-823-2525, or for Relay Service or TTY, contact 711.

503-823-2525

Traducción e Interpretación | Biên Dịch và Thông Dịch | 口笔译服务 | Устный и письменный перевод | Turjumaad iyo Fasiraad | Письмовий і усний переклад | Traducere și interpretariat | Chiaku me Awewen Kapas | अनवु ादन तथा वय् ाखय् ा

Portland Parks & Recreation’s developing civil rights page offers information related to making programming more accessible and inclusive.

The information in this report is accurate as of July 31, 2023.