Metro_2019_Parks_Nature_Bond_Local_Share_Program_Handbook.pdf

Metro 2019 Bond Measure to Protect and Connect Nature and People

Local Share Handbook

March 2021

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Metro’s values and purpose

We inspire, engage, teach and invite people to preserve and enhance the quality of life and the environment for current and future generations.

Metro brings together greater Portland to preserve farms and forests, protect water and wildlife, and create communities people want to call home. Led by an elected council, this unique government helps plan for the future and offers places, services and tools that make life better today.

Metro Parks and Nature protects water quality, fish and wildlife habitat, and creates opportunities to enjoy nature close to home through a connected system of parks, trails and natural areas.

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METRO COUNCIL PRESIDENT

Lynn Peterson

METRO COUNCILORS

Shirley Craddick, District 1 Christine Lewis, District 2 Gerritt Rosenthal, District 3 Juan Carlos González, District 4 Mary Nolan, District 5 Bob Stacey, District 6

AUDITOR

Brian Evans

600 NE Grand Ave. Portland, OR 97232-2736

503-797-1700

2019 Parks and Nature Bond Local Share Handbook

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2019 PARKS AND NATURE LOCAL SHARE HANDBOOK

PART 1: BOND INTENT AND PRINCIPLES - 7 -

1 INTRODUCTION - 7 -

2 PURPOSE OF THIS HANDBOOK - 7 -

3 2019 BOND EMPHASIS ON EQUITY - 8 -

4 2019 BOND MEASURE PRINCIPLES - 9 -

PART 2: LOCAL SHARE CRITERIA AND ELIGIBLE INVESTMENTS - 11 -

5 LOCAL SHARE PROGRAM CRITERIA - 11 -

COMMUNITY ENGAGEMENT AND RACIAL EQUITY - 11 -

SUPPORTING RESILIENT COMMUNITIES (PROGRAM CRITERIA 5) - 15 -

6 ELIGIBLE LOCAL SHARE INVESTMENTS - 16 -

NATURAL AREA OR PARK LAND ACQUISITION - 16 -

FISH AND WILDLIFE HABITAT RESTORATION, HABITAT CONNECTIVITY ENHANCEMENTS - 18 -

MAINTAINING OR DEVELOPING PUBLIC ACCESS FACILITIES AT PUBLIC PARKS AND NATURAL AREAS - 18 -

DESIGN AND CONSTRUCTION OF LOCAL OR REGIONAL TRAILS - 19 -

ENHANCED OR NEW LEARNING/ENVIRONMENTAL EDUCATIONAL FACILITIES - 19 -

7 LOCAL SHARE PROJECT-SPECIFIC CRITERIA - 20 -

CLIMATE RESILIENCY CRITERIA - 20 -

ADDITIONAL PROJECT-SPECIFIC CRITERIA - 21 -

PART 3: RESPONSIBILITIES, PROJECT PROPOSALS AND FUNDING - 25 -

8 RESPONSIBILITIES OF METRO AND PARK PROVIDERS - 25 -

METRO - 25 -

COMMUNITY OVERSIGHT COMMITTEE - 25 -

PARK PROVIDERS - 25 -

Table of Contents

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9 DISTRIBUTION OF FUNDS - 26 -

ALLOCATION OF LOCAL SHARE FUNDS - 26 -

ELIGIBLE CAPITAL COSTS - 26 -

10% CAP ON STAFF, OVERHEAD, AND INDIRECT PROJECT COSTS - 26 -

BUDGETING - 27 -

10 PROJECT PROPOSAL AND APPROVAL - 27 -

STEPS FROM PROJECT SUBMITTAL TO APPROVAL - 27 -

PROJECT SUBMITTAL PACKAGE - 28 -

RELEASE OF FUNDS - 29 -

11 TECHNICAL ASSISTANCE - 30 -

STAKEHOLDER ENGAGEMENT - 30 -

EQUITY IN CONTRACTING - 30 -

LAND ACQUISITION - 30 -

LAND STABILIZATION AND HABITAT ENHANCEMENT - 30 -

DEMOGRAPHIC AND PARK USAGE GEOSPACIAL DATA - 30 -

12 MONITORING AND DATA TRACKING - 30 -

TRACKING OUTCOMES - 30 -

REPORTING IMPACTS - 30 -

13 ADDITIONAL RESOURCES - 31 -

14 AMENDMENTS TO HANDBOOK - 31 -

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1 INTRODUCTION

Over the past quarter century, under the leadership of the Metro Council and in collaboration with dozens of partners, the people of the greater Portland metropolitan area have protected, restored and developed a remarkable system of parks and natural areas, with plans to ultimately link them by what is, even today, an extensive trail network. This deliberate and thoughtful effort sets us apart from other metropolitan regions and contributes significantly to our quality of life, matched in few other places.

The success of this collaborative effort is due in no small part to the work of local jurisdictions in placing land in public ownership, connecting communities with their natural environment and providing for the wellbeing of adults and children through outdoor recreation.

Building on this legacy, on November 5, 2019, voters across greater Portland approved Metro’s 2019 Bond Measure to Protect and Connect People to Nature (the “bond measure”), authorizing Metro to issue general obligation bonds in the amount of $475 million (“bond funds”) to fund natural area and water quality protection and to connect people to nature. The bond measure is comprised of six funded programs:

1. Protect and restore land, $155 million

2. Support local projects (local share), $92 million

3. Nature in Neighborhoods capital grants, $40 million

4. Take care of Metro parks, $98 million

5. Create trails for walking and biking, $40 million

6. Advance large-scale community visions, $50 million

2 PURPOSE OF THIS HANDBOOK

This local share program handbook defines the general process Metro intends to use to distribute $92 million dollars of bond funds to the cities, counties and other park providers enumerated in the bond measure for land acquisition and eligible capital projects. The local share program builds upon the success of the 1995 and 2006 bond measures, which distributed $25 million and $44 million respectively to local park providers for land acquisition, water quality and habitat restoration, trail connections, community parks and capital improvements that provide environmental education and connect people with nature.

This local share program handbook describes key overall bond measure and local share program criteria. This handbook is not intended to create or constitute any legally binding obligations, but rather it is intended to describe desired outcomes and provide general guidance to eligible park providers across the region on how to access their local share allocation. It also provides guidance for local share implementation, addressing how bond funds may be administered to ensure delivery of the outcomes described in the bond measure.

PART 1: BOND INTENT AND PRINCIPLES

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3 2019 BOND EMPHASIS ON EQUITY

Metro works to improve the quality of life for greater Portland's 1.5 million residents. Here in the Pacific Northwest, quality of life is often described in terms of access to, and enjoyment of, the abundant natural beauty that defines our part of the planet and the fish and wildlife that grace our lands and waters. Previous bond measures provided the means to acquire today’s network of natural areas, restore habitat and ecological functions to these sites and open them for public enjoyment where appropriate. This bond measure builds upon past accomplishments with an aim to further protect land, water and habitat while supporting and encouraging human connection to nature. This bond does so with a greater emphasis on making access and investments more equitable.

Like most of the nation, the Portland region’s communities are becoming more diverse. It is projected that by the year 2045, communities of color will be the majority. In recent years, a growing recognition of the inequities in our public systems has prompted Metro to step forward to address racial equity.

Racism is a deeply rooted system that continues to perpetuate inequities for Black, Indigenous, and other people of color across every facet of life and, therefore, they experience worse outcomes in every indicator of social well-being. Although these inequities are faced by other historically marginalized groups–people with low incomes, seniors and people with disabilities, people with limited English proficiency, immigrants and refugees, and people who have experienced or are experiencing housing instability–the pervasiveness and systemic nature of racism disproportionately impacts communities of color. It is because of this that Metro has identified racial equity as the measure to ensure that all people who live, work and recreate in the greater Portland area have opportunities to share in and help define a thriving, livable and prosperous region. By addressing the barriers experienced by communities of color, we will effectively also identify solutions and remove barriers for other under-resourced communities.

If we make full use of the opportunities afforded by this bond to break down these barriers, it will make outsized impacts and do far more to meet the complex needs in our region. When park and natural area projects are selected, built, and maintained in a way that seeks to lift up and give power to voices that have been historically marginalized, decisions are ultimately made that benefit everyone. When everyone can enjoy parks and natural areas, they become essential elements of vibrant communities.

Metro embraces its responsibility to help remove the barriers of institutional racism that keep our region from achieving its fullest potential. In 2016, the Metro Council identified racial equity as the lens through which it seeks to identify and remove institutional barriers and increase equitable outcomes for Black and Indigenous communities and other communities of color in greater Portland (See Metro’s Strategic Plan to Advance Racial Equity, Diversity and Inclusion in Section 13-Additional Resources)

Therefore, in developing the 2019 bond measure, Metro reached out to a broader set of stakeholders than it had for previous measures and focused on elevating the voices of historically marginalized communities, including members of the urban Indigenous community and leaders from culturally specific organizations, while tapping the deep knowledge of conservation practitioners and park providers throughout the region.

This expanded group of stakeholders helped shape the structure, content and criteria of the 2019 bond https://www.oregonmetro.gov/node/5490

- 9 -measure. As a result, this parks and nature bond measure is different from those passed in 1995 and 2006. Like past measures, this one focuses on protecting wildlife habitat and water quality, making park improvements and connecting people to nature close to home. In contrast, this bond measure prioritizes serving people of color, Indigenous people, people with low incomes, people with varying abilities and other historically marginalized groups that have not benefited equitably from past investments. It requires that all programs funded by this bond are shaped through meaningful stakeholder engagement, are developed using a racial equity lens and work to make the region more resilient to climate change.

4 2019 BOND MEASURE PRINCIPLES

Based on community and partner engagement and input from stakeholders, the voter-approved bond measure included the following guiding principles in Exhibit A of the bond measure (See Section 13- Additional Resources). Local park providers must apply these principles when selecting projects for local share funding:

Serve communities through inclusive engagement, transparency and accountability.

Continue to build trust and relationships through engagement of the region’s diverse communities in the identification, planning and implementation of all Metro bond-funded projects. Develop tools to evaluate and report on impacts, and adjust course as needed.

Advance racial equity through bond investments.

Set aspirational goals for workforce diversity and use of minority-owned and diverse contractors identified through Oregon Certification Office for Business Inclusion and Diversity (COBID) and work to reduce barriers to achieving these goals. Demonstrate accountability by tracking outcomes and reporting impacts.

Protect clean water for people, fish and wildlife.

Increase the emphasis on water quality as well as quantity in regional land acquisition priorities, including but not limited to protecting headwaters and preventing flooding in urban areas.

Protect and restore culturally significant native plant communities.

Prioritize protection and restoration of culturally significant native plants in partnership with greater Portland’s Indigenous community in regional land acquisition and management plans.

Protect, connect and improve habitat for native fish and wildlife.

Focus on habitat protection for native fish species, such as salmon, trout, steelhead and lamprey, in regional land acquisition and management plans. Restore and enhance habitat for wildlife prioritized in state, federal and regional conservation plans and/or identified as priorities through community engagement. Consider additional opportunities for natural resource protection on working lands consistent with Metro’s commitment to protect the agricultural economy and working lands in the greater Portland region.

Take care of what we have.

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Maintain, update and reinvest in regional and local destinations, particularly those with high visitation and use by communities of color or places/projects identified by communities of color.

Make parks and natural areas more accessible and inclusive.

Increase access for those experiencing disabilities through investments using universal design principles and projects that comply with the Americans with Disabilities Act. Work with communities of color, greater Portland’s Indigenous community and other historically marginalized groups to identify opportunities for culturally responsive public improvements.

Connect more people to the land and rivers of our region.

Provide people with new or improved access to local rivers and streams, natural areas and places for multi-generational activities, healing spaces and community gatherings. Leverage other public and private investments in affordable housing and transportation.

Invest in trails for biking and walking.

Focus on closing gaps and completing ready-to-build projects that fulfill the Regional Trails Plan, particularly those identified as priorities by communities of color. Consider proximity to affordable housing and transit and connections to regional or local parks.

Support community-led parks and nature projects.

Require greater community engagement and racial equity strategies for local, community-led projects funded by the bond. Prioritize projects identified and created by communities of color and other historically marginalized groups. Hold partners accountable for tracking outcomes and reporting impacts.

Make communities more resilient to climate change.

Reduce impacts of climate change through conservation and park development. Emphasize flood control, water quality and availability, urban forest canopy, habitat connectivity, food security and community access to water.

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PART 2: LOCAL SHARE CRITERIA AND ELIGIBLE INVESTMENTS

5 LOCAL SHARE PROGRAM CRITERIA

Every program funded by this bond, including investments made through the local share program, must be shaped through meaningful community engagement and advance racial equity. Park providers should start by considering how they do or will apply community engagement and racial equity criteria and how outcomes from applying these criteria will inform project identification, selection and implementation.

Demonstrating successful integration of these criteria will be a key component of project approval and overall success of the program.

COMMUNITY ENGAGEMENT AND RACIAL EQUITY

Each park provider must select and propose a portfolio of projects for local share funding with the aim of advancing racial equity in our region. All local share program investments must satisfy all six community engagement and racial equity criteria outlined in the bond legislation (See Bond Measure Exhibit A in Section 13-Additional Resources). Program Criteria 1, 2 and 4 below should influence selection and design of projects. Program Criteria 3, 5 and 6 below must guide development of each park provider’s portfolio of local share-funded work.

The six criteria are:

Program Criteria 1: Meaningfully engage with communities of color, Indigenous communities, people with low incomes and other historically marginalized communities in planning, development and selection of projects (addressed in Section 5.1.1).

Program Criteria 2: Prioritize projects and needs identified by communities of color, Indigenous communities, low-income and other historically marginalized groups (addressed in Section 5.1.1).

Program Criteria 3: Demonstrate accountability for tracking outcomes and reporting impacts, particularly as they relate to communities of color, Indigenous communities, people with low incomes and other historically marginalized communities (addressed in Section 12).

Program Criteria 4: Improve the accessibility and inclusiveness of developed parks (addressed in Section 7.2.2).

Program Criteria 5: Include strategies to prevent or mitigate displacement and/or gentrification resulting from bond investments (addressed in Section 5.1.2).

Program Criteria 6: Set aspirational goals for workforce diversity and use of COBID contractors and work to reduce barriers to achieving these goals; demonstrate accountability by tracking outcomes and reporting impacts (addressed in Section 5.1.2).

Meaningful engagement is an important first step in addressing racial equity. A thoughtful, inclusive approach to community engagement lifts up and gives power to voices that have been historically silenced. Because the needs and desires of historically marginalized groups have been overlooked for so long, it makes sense that extra care be given to addressing historic inadequacies in stakeholder engagement that influences investment decisions.

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With its focus on improvements to parks and natural areas, this bond also strives to advance racial equity by making public spaces safe and welcoming for historically marginalized communities. By doing so, park providers make these spaces safe for all park visitors.

MEANINGFUL ENGAGEMENT (PROGRAM CRITERIA 1 & 2)

Most public agencies fulfill some level of stakeholder engagement when planning publicly funded projects. Of Oregon’s nineteen statewide land use planning goals, Goal One calls for "the opportunity for citizens to be involved in all phases of the planning process." Meaningful engagement requires that we go beyond minimums. The International Association for Public Participation, a professional organization that promotes high standards for the practice of public engagement, sets out principles for public participation as follows:

1. Those affected by a decision have a right to be involved in the decision-making process.

2. The public's contribution will influence the decision.

3. Decisions last longer when the needs and interests of all participants are recognized and communicated, including those of decision makers.

4. Those potentially affected by, or interested in, the outcome are sought after and invited to participate.

5. Participants should help design how they participate.

6. Participants are provided the information in a form they need to participate in a meaningful way.

7. Participants are informed of how their input affected the decision.

Meaningful engagement means those who hold power and authority over outcomes share that power and decision making with members of the community who are most impacted by those outcomes. It means ideas and desires are genuinely sought from those interested in a project or whose lives could be affected by, improved or negatively impacted by it. It means communication is designed to take place at the convenience of members of the community. It requires developing creative tools and new approaches that draw people into dialog and working to make the process of designing public projects relevant for regular folks. It means the contributions of those who participate in shaping and evaluating public projects are honored and put into practice where feasible. In the ideal, it means engagement is led by, and decision-making power is ceded to, the community affected by the decision.

The interests of historically marginalized groups, in particular Black and Indigenous communities and other communities of color, have been largely absent from public project deliberations and members of these groups have had limited opportunity to influence outcomes. There are a number of contributing factors. Due to historic well-documented societal actions and government policies that contributed to or sanctioned oppression, erasure, exploitation and genocide, members of historically marginalized communities have been systematically excluded from roles of influence. Oregon has a particularly troubling history of racist policies and actions. Today, these communities may be understandably distrustful, intimidated or reticent to speak out to government representatives or others in power.

Traditional public engagement activities have not been structured to engage these groups. They have required people to participate at times, in processes and under circumstances that pose challenges for groups that already lack access to these opportunities. Yet plans benefit from ideas and scrutiny from the widest possible swath of the community. When specific groups or demographic sectors are excluded,

- 13 -intentionally or not, resulting public projects likely will not serve the needs of those groups or sectors and may lack the color and creativity that would come from broader contributions.

The aim of this bond is to address that historic wrong through deliberate efforts to engage representatives from these groups in a thoughtful and empathetic way, on their terms. By so doing, Metro and partners will open opportunities for people from across the region, from all backgrounds and walks of life, to help shape the features of their communities, to help all members of the community connect with nature close to home, and to make parks and natural areas more welcoming and accessible.

It is anticipated that, if this effort is successful, Black and Indigenous communities, other communities of color, people with low incomes and other historically marginalized communities will have decision-making influence, see how they have directly impacted project outcomes and feel parks were built for them. Black, Indigenous, immigrant and other communities of color will find space for cultural needs and practices. They will see their identities and values reflected in park site selection, design, interpretation and care over time.

LOCAL SHARE ENGAGEMENT EXPECTATIONS

Metro will hold park providers accountable for meaningfully engaging communities of color and other historically marginalized communities and for reporting to Metro how this engagement determined local share priorities, implementation strategies and project impacts. Metro will work with each park provider to consider current efforts and, where needed, identify opportunities to expand and enhance engagement to meet bond requirements.

As park providers consider their engagement with historically marginalized communities, it should be noted that federally-and state-recognized Indian Tribes are sovereign nations and engagement between each city and county and the federally- and state-recognized Tribes with treaty rights to lands and waters within the metro area constitutes government-to-government engagement, as distinguished from interactions with other stakeholders and community groups. There are also community-based organizations representing urban Indigenous communities. Engagement with these community-based organizations, while important and valuable, does not constitute or take the place of formal discussions with the Tribes. Metro is building more formalized relationships with each of the recognized Tribes with historic ties to this region and will share information and insights with park providers as these relationships develop.

As park providers consider how best to meet the needs and desires of historically marginalized communities, the 2019-2023 Oregon Statewide Comprehensive Outdoor Recreation Plan (SCORP) (See Section 13-Additional Resources) may prove a useful beginning technical resource. The only recent region-wide survey on the topic of outdoor recreation that used statistically valid sample sizes for different racial, ethnic, age and income groups, it identified relative popularity of and demand for various outdoor recreation activities and opportunities among these groups.

See Sections 10.2, 11.1 and 12 below for more specific direction on how to meet engagement requirements and track outcomes (Program Criteria 3).

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ECONOMIC EQUITY (PROGRAM CRITERIA 6)

The bond creates an opportunity to promote shared economic prosperity throughout the region by ensuring the participation of underrepresented workers and contractors on capital projects. It is Metro’s goal to work with partner agencies to advance concrete strategies to support female and people of color workers and contractors on bond-funded capital projects. These goals are in alignment with Metro’s Strategic Plan to Advance Racial Equity, Diversity and Inclusion and the Metro Council-adopted Construction Career Pathways Regional Framework.

This bond measure also requires that bond funds be used to advance racial equity by establishing aspirational goals for equity in contracting and contractor workforce diversity. Metro recognizes that each park provider will be starting from a different place and wants to ensure that goals push the boundaries of current processes but are still achievable.

Diversifying the construction industry is a key strategy for addressing the region’s shortage of skilled workers in the construction workforce. If left unaddressed, this shortage will drive up construction costs for decades to come. This bond invests in our collective ability to address these shortages and expand access to well-paying construction jobs for all residents, including women and people of color. Through these efforts, we can strengthen our regional economy and avoid higher construction costs for public projects over time. Metro will work with park providers to incorporate strategies to advance contracting equity and contractor and subcontractor workforce diversity into intergovernmental agreements (“IGAs”) as described below.

LOCAL SHARE CONTRACTING EXPECTATIONS

Local partners that have existing policies that align with the Construction Career Pathways Regional Framework and established utilization goals for contractors certified by Oregon’s Certification Office for Business Inclusion and Diversity (COBID) should apply those policies and goals to bond-funded projects.

Policies that align with the Construction Career Pathways Regional Framework are those that identify a level of project cost for which diversity goals will be applied, in which workforce diversity will be tracked, respectful workplace training will be provided and workforce agreements will be put into practice. Policies that promote the utilization of COBID certified firms are those that establish aspirational goals and tracking systems for the utilization of people of color- and women-owned firms as well as other firms that qualify under the state COBID program.

For park providers that do not have existing policies, Metro will work with partners to rightsize the Construction Career Pathways Regional Framework and equity-in-contracting strategies to accommodate their organization’s individual capacity while also advancing equity goals. Through joint discussions between Metro and park provider staff, Metro will develop thresholds based on total project cost and other factors to guide which components of the Construction Career Pathways Regional Framework must be implemented, including workforce diversity tracking, application of workforce diversity goals, respectful workplaces training and utilization of workforce agreements. Goals will be established prior to development of IGAs and documented in each park provider’s IGA.

Metro recognizes that this is a new approach for some local governments in the region. The goal is to create a pathway for agencies to build the capacity and infrastructure to advance workforce and equity-in-contracting strategies. In order to support agencies in implementing the agreed-upon strategies, Metro expects to provide technical assistance which may include support in collecting and tracking workforce equity data, procurement strategies that advance workforce diversity and implementation of https://www.oregonmetro.gov/node/5490 https://www.oregonmetro.gov/construction-career-pathways

- 15 -respectful workplace training (See Section 11). Metro will also work with park providers to identify utilization goals for certified contractors.

Tracking workforce diversity is a key component of implementing workforce and contracting equity strategies. Metro will work with park providers to identify specific tracking tools and agreements on data sharing and reporting requirements (See Section 12).

The COBID system offers what is currently the best option available for identifying and attracting businesses owned by minorities, women and service-disabled veterans. Park providers should set aspirational goals, some of which could be assistance to contractors versus utilization targets. Park providers should seek contractors through this system while also documenting efforts to help reduce contractors’ barriers to certification and support success of certified firms. Because of the constraints of the current system, this may require effort and creativity. For example, park providers might identify specific COBID-eligible firms and assist them in gaining certification or engage with minority-focused chambers of commerce or circulate notification of upcoming projects to community-based organizations that support historically marginalized communities. It is helpful for procurement managers across the region to share resources and approaches. Metro anticipates holding roundtables where park providers and procurement staff can share ideas, techniques and lessons learned.

SUPPORTING RESILIENT COMMUNITIES (PROGRAM CRITERIA 5)

New parks add so much to neighborhoods and communities. Trees, flowers, pathways and areas to socialize and exercise connect people to nature and boost the livability of neighborhoods. But that can come at the price of equity. When parks and trails are built or improved in historically marginalized areas, ostensibly to serve the local residents, the surrounding neighborhood may see higher housing prices and rent increases. The term “green gentrification” is used to describe this process of housing price increases and influxes of new, wealthier and often white residents in low-income communities of color. Research indicates the threat is real in many cities and can lead to displacement of longtime residents and businesses.

Generally, this is not an issue that parks departments and districts can solve alone. To avoid displacement from gentrification, communities need to identify strategies and implement policies, ideally well in advance of the addition of new amenities such as parks. Local governments have the authority and are best equipped to address this issue holistically through a mixture of policies that keep housing affordable and support better paying jobs, implemented in conjunction with plans for new or improved parks. Ideally, public agencies should work with community-based organizations to identify anti-displacement strategies for areas surrounding parks, trails and natural areas in advance of improvements.

LOCAL SHARE COMMUNITY RESILIENCY EXPECTATIONS

How do you improve access to parks and natural areas but not contribute to this shift in property values and land uses that has potential to detrimentally affect a community?

A few recommendations:

• Projects should reflect the scale, context and needs of the surrounding community. Park improvements should serve the needs of the existing community while maintaining or enhancing

- 16 -its culture and character. This is just one more compelling reason to plan parks in consultation with residents and culturally-focused community-based organizations. Equitably engage community in selecting park, nature and trail projects. Encourage participation of those who may be impacted by parks and nature investments. Prioritize the voices of those who have been traditionally underrepresented.

• Community engagement with local residents and community-based organizations can help raise the local governments’ understanding of challenges residents face and the opportunities for solutions. Assist in the growth of partnerships that can create alliances, identify mutual goals and values, identify financial support, and build relationships with community ambassadors.

• Designing parks and developing displacement-avoidance strategies should go hand in hand and involve collaboration between park, employment and housing organizations.

• Combine the creation and preservation of affordable housing with initiatives to create better paying jobs for local residents. Partner with workforce development agencies and programs to develop job skills within the community around investment areas. Protect locally-owned small businesses through direct contracting with COBID certified businesses.

• Integrate displacement avoidance into policies, laws and funding measures as was done with this bond. Anti-displacement housing- and land-use policies include: inclusionary zoning, density bonuses, developer impact fees, rent control. Support programs that make it easier for low-income homeowners and renters to stay in place: anti-eviction protections, renter education workshops, and property tax freezes or down-payment assistance for low-income homeowners.

• Share successes and failures with colleagues across the region to learn collectively which practices are most effective.

Park providers should be prepared to describe measures their community is taking to prevent gentrification and displacement, particularly as it relates to bond-funded, capital projects. Metro is developing additional anti-displacement direction for all six bond programs and will share results when available.

6 ELIGIBLE LOCAL SHARE INVESTMENTS

The bond measure identified the following five types of capital investments as eligible for local share funding.

NATURAL AREA OR PARK LAND ACQUISITION

Land acquisition includes the purchase (fee title or easements) of regionally or locally-determined significant natural areas, wildlife habitat, trail corridors, neighborhood or community parks, and out-of-pocket capital costs associated with property acquisition. “Stabilization" of newly acquired lands may also be a permissible capital expense and consists of the initial actions exercised after the purchase of a property, typically completed within five years, required to put the property into the condition for which it was purchased. Stabilization activities are often the first steps toward meaningful fish and wildlife habitat enhancement and may include preventing further degradation of natural resource values, vegetation management, tree and shrub planting, replacement, installation or removal of structures such as culverts, gates or fences, protecting property security

- 17 -and minimizing health and safety risks. Each park provider must determine which acquisition and stabilization-related expenses constitute capital costs based on its financial policies and in compliance with state laws. Land banking, defined as acquiring property for a future use, is also permissible. Notwithstanding the forgoing, all properties purchased with bond funds must be maintained for their intended natural area, wildlife habitat, water quality, trail or recreation purpose.

Agreements for local park providers to acquire any interest in land must be negotiated with willing sellers only and local park providers may not exercise their powers of eminent domain in the implementation of this bond measure. Metro has some limited technical assistance capacity available to assist local park providers with real estate transactions (see Section 11.3). For all land acquisitions, park providers must perform a commercially reasonable level of due diligence, as determined by Metro (including, but not limited to, title reviews and environmental assessments) to confirm there are no material restrictions or issues that would impede the park provider’s use of the land in accordance with the intent of the bond and applicable bond criteria. In addition, park providers must obtain an appraisal for each land acquisition to ensure bond funds are being used to acquire property at fair market value.

As referenced above, land acquisition costs that may be paid for with bond funds include the purchase price and all capital costs related to pre-purchase due diligence including appraisals, purchase of options, earnest money for purchase and sale agreements, environmental assessments, and other third-party reports. Metro intends to provide local partners with purchase funds prior to closing, while other due diligence costs will be on a reimbursement basis. The details of funding will be addressed in each provider’s IGA.

The bond measure provides for property and trail acquisition funds through two other bond programs, and local park providers should be aware of how these interrelate with local share funding.

• Within the Protect and Restore Land program (formerly referred to in the 2006 bond as “regional share”) there are several land acquisition target areas, including the urban target area, that overlap with the jurisdictions of local park providers. Metro encourages partnership through the acquisition and management of properties in local park providers’ jurisdictions, and park providers should consider coordinating their proposed land acquisition projects with Metro’s land acquisition staff to leverage expertise and funds in the most meaningful way. Local park providers should note that funds from the Protect and Restore Land program are intended to be used to purchase and restore regionally significant fish and wildlife habitat and not to backfill local priorities that are not funded through local share such as pocket or neighborhood parks.

• As outlined in Section 6.4 below, the Create Trails for Walking and Biking program includes approximately $10 million for acquisition of property for trail easements to fill gaps in regional trail corridors. In past years, this has been funded through the “regional share” program of the bond. As in previous years, Metro intends to continue to negotiate purchase agreements to acquire trail corridors on behalf of local partners and convey these property rights to local park providers at closing. This arrangement will be documented through separate IGAs.

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FISH AND WILDLIFE HABITAT RESTORATION, HABITAT CONNECTIVITY ENHANCEMENTS

Habitat restoration or enhancement can greatly increase the value of existing or newly protected land in providing connectivity, fish and wildlife habitat, water quality and human enjoyment. This is equally or especially true in the more urbanized portions of our region where natural habitat is scarcer, land is more expensive, the human footprint is larger and many more barriers to connectivity exist than in more rural areas. Often, if done thoughtfully, improvements can be incorporated into public access projects, creating important co-benefits. In some cases, restoration may be the only option to bring nature to neighborhoods that are truly nature deficient.

During creation of the bond measure, stakeholders identified several priorities for habitats and species of concern, including: a focus on water quality and quantity; headwaters, wetlands and floodplains;

prairie, savanna and oak; habitat for salmon, steelhead, trout and lamprey and species prioritized by the Indigenous community as well as those identified in federal, state and regional prioritizations.

Many of the same types of actions that improve fish and wildlife habitat and increase scenic beauty are also key to improving our region’s resilience to a changing climate for nature and people. Restoring and reconnecting headwaters, wetlands and floodplains improves absorption of rainwater, reduces flooding, lowers water temperature and enhances late-season flow, benefiting fish and water users alike.

Increased shade cools water and reduces the urban heat island effect. Better connected habitat not only supports healthier fish, wildlife and native plant populations, but allows nature to better adapt to a changing climate without expensive human intervention.

Habitat enhancement work can also be a path to providing economic and stewardship opportunities to Black, Indigenous and other people of color and other historically marginalized communities. Ensuring such benefits do in fact accrue is a focus of this bond measure and requires thoughtful crafting and execution of requests for proposals and bids and similar work that turn restoration ideas into reality. In some cases, investment in restoration and enhancement can provide more economic benefits to historically marginalized communities than land protection due to existing inequities in land ownership.

Bond investments are however, limited to capital projects. While many restoration efforts, such as stabilization, dam removal, floodplain levee de-construction, replacement of culverts with bridges; and placement of large wood in streams could be considered “capital” under a local park provider’s capital policy, other efforts, including ongoing maintenance and general operations would not be considered capital and therefore cannot be paid for with bond funds. Each local park provider receiving bond funds must comply with its own capital accounting policies and confer with local finance staff to determine whether proposed project-related costs are capital and thus eligible for funding.

MAINTAINING OR DEVELOPING PUBLIC ACCESS FACILITIES AT PUBLIC PARKS AND

NATURAL AREAS

Well designed and constructed public access facilities make parks more welcoming, safer and more enjoyable. They should enhance visitors’ connection to nature. These facilities can vary considerably and should be designed with consideration for anticipated future volume of visitation and the intended park or natural area experience. Facilities at less developed sites might include trailheads, natural soft surface trails and benches at key locations. Sites that receive large numbers of visitors might benefit from restrooms, parking at the trailhead and some hard trail surfaces. On sites that include water features such as wetlands, creeks or lakes, extra effort should be made to provide visitors with safe, meaningful and enjoyable access. Depending on the site and the fragility of the natural feature, this might mean

- 19 -providing overlooks, boardwalks and viewpoints or wading areas and paddle launches. Parks and natural areas provide sites for community and family gatherings. This use can be supported with facilities such as picnic shelters. Community gardens provide a different kind of access. They facilitate hands-on engagement with nature, open opportunity for social interaction and education and support climate resilience by expanding access to fresh food and serving as stepping stone pollinator habitat.

While this bond measure can fund a variety of access facilities, the stated purpose of the bond measure is to protect nature and provide people access to nature. As such, bond funds may not be used to fund sports facilities, including but not limited to basketball courts and swimming pools.

DESIGN AND CONSTRUCTION OF LOCAL OR REGIONAL TRAILS

The bond measure includes a $40 million program to “create trails for walking and biking.” It will invest in regional trails, with up to $10 million allocated for willing-seller easements and property acquisitions to be led by Metro, as referenced in Section 6.1. The program also includes a competitive grant program which will award funds to local agencies for regional trail planning, design and construction.

Local share funds can also be applied to trail projects but with greater flexibility. Trail program funds are limited to projects already identified on Metro’s regional trails system plan map. These “regional” trails typically connect multiple cities, are wide, paved, and are designed with bicycles in mind. Similarly, local share funds can be used for regional trails (e.g. a segment of a waterfront greenway that forms part of a longer trail connecting other communities), however they can also be used to fund trails that are not regional in scale. These include local in-park trails or any trails that offer people a way to experience nature close to home. Examples include a new bridge over a creek in a local natural area or a new mountain bike trail network within a local park. Trailhead amenities are also eligible for local share funding. Local share-funded trails do not have restrictions on length, width, surface material or user type (such as bicyclists or pedestrians) as long as they are consistent with ADA guidance.

Park providers who invest local share funds in construction of trails, trail segments and trailhead amenities are responsible for ongoing management of these facilities including costs associated with maintaining and renewing or replacing them. New wayfinding signage along regional trails must follow the Intertwine Regional Trails Signage Guidelines.

ENHANCED OR NEW LEARNING/ENVIRONMENTAL EDUCATIONAL FACILITIES

Offering visitors information and insights about the natural and cultural history of a site helps deepen their experience and sense of connection. Information about nature can be shared with visitors in a variety of ways. Interpretation is a communication process that supports development of emotional and intellectual connections between the interests of the audience and the meanings of the site and its features and history. It involves translating technical language into terms and ideas that people who don’t have technical knowledge can readily understand and it provides opportunity for the audience to form their own intellectual and emotional connections with the place and its features. It can take place anywhere and tends to make use of signs, videos, kiosks, art and presentations. Environmental or nature education is more of a curriculum-based structured program offered in a specific setting to students over a longer period of time. Often its goals and specific learning objectives are tied to a state’s learning standards. Environmental education facilities may include classrooms, labs, presentation settings and designated outdoor sites equipped for learning specific objectives such as outdoor learning laboratories and outdoor museums.

Both interpretive and environmental education facilities qualify for local share investment. The https://www.oregonmetro.gov/sites/default/files/2018/07/18/2018_Regional_Trails_System_Plan.pdf https://www.oregonmetro.gov/sites/default/files/2018/01/05/2017-Intertwine-Trail-sign-guidelines.pdf

- 20 -investments must be capital. If a proposed facility will be shared for other uses such as meeting space or outdoor equipment rentals, local share should fund the percentage of the facility budget focused on nature education and connection. Kiosks, displays and interpretive signs must be designed using ADA access standards, with attention to cultural perspectives and for a variety of learning styles and sensory capabilities. Signs should be accessible to people of different ages and heights and to people in wheelchairs.

7 LOCAL SHARE PROJECT-SPECIFIC CRITERIA

In addition to satisfying required community engagement and racial equity program criteria described above, each project proposed for local share funding must meet at least one of the climate resiliency criteria below as well as at least one of the additional project-specific criteria below. These criteria intertwine and park providers are encouraged to identify projects that meet multiple criteria.

CLIMATE RESILIENCY CRITERIA

REDUCE IMPACTS OF CLIMATE CHANGE THROUGH CONSERVATION AND PARK

DEVELOPMENT.

We are witnessing effects of climate change in more extreme wildfires and weather events that threaten our biological and human communities. In response to guidance from climate scientists and climate modeling for the Pacific Northwest, we must anticipate hotter, drier and longer summers, winter rains that come in fewer but stronger storms, a reduced snowpack and, in general, more volatile weather.

While Metro and partners work to systematically reduce our collective impact on the earth’s climate, we need to take steps to adapt to the anticipated changes we will face in our own communities in the intervening years. Climate resilience is the capability to anticipate, prepare for, respond to, and recover from significant threats with minimum damage to social well-being, the economy, and the environment. Climate scientists are in overwhelming agreement that the fundamental approach to increasing landscape-scale resilience in our natural ecosystems is having a connected network of well-managed natural areas that enable systems and species to self-adapt to climate change.

This bond measure identifies a variety of avenues for parks and natural areas to help buffer the effects of climate change, helping protect both our ecological systems and our built environment. Many actions supporting climate resilience provide multiple benefits that help meet other regional objectives also identified in this bond. Land protection provides opportunities to improve and connect habitat, and provide access for people. Native plantings in parks provide habitat while also saving water by reducing need for supplemental summer irrigation. Protection of wetlands and riparian areas also can help connect people to the waterways of the region and serve as low-impact flood storage.

Trails used for human transportation, if located and designed well, may also serve as wildlife corridors allowing species to migrate as needed. Pollinator gardens and bird-friendly plantings provide “stepping stone” habitat for these flying species while providing wildlife viewing and educational opportunities for park visitors.