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Historical Context
The Clackamas County Parks System is rooted in the County's long-standing connection to its natural landscape, which includes mountains, rivers, forests, and lakes that have shaped settlement patterns, recreation, and community identity. The County began acquiring land in the early twentieth century, laying the foundation for what would later become a formal system of public parks and recreation areas.
Development of the Clackamas County Parks System accelerated in the 1960s, influenced by the federal Great Society movement. In addition to advancing civil rights and addressing poverty, the Great Society emphasized environmental protection and public access to natural spaces as essential to quality of life and social well-being. This national policy context helped frame parks and open space as public infrastructure and positioned conservation and recreation as core public responsibilities.
Initial funding for the County Parks system during this period was supported by the federal Great Society initiatives, enabling land acquisition and early park development. Since that time, the County has continued to expand and invest in its parks through a combination of acquisitions, improvements, and evolving management practices. The most recent property acquisition occurred in 2020 (See Appendix A for a detailed timeline of park events and property acquisitions).
This historical evolution reflects a consistent commitment to conserving natural resources while providing public access to recreation opportunities. It also underscores how broader social, environmental, and policy movements have shaped the County's approach to parks, setting the stage for the regulatory and governance framework that guides the system today.
Regulatory Drivers Influencing Clackamas County Parks
Clackamas County Parks operate within a multi-layer regulatory framework that shapes how parks are planned, funded, managed, and prioritized over time. This framework includes County ordinances and policies that directly govern park operations, state statutes and administrative rules that establish authority and coordination requirements, and federal regulations that influence capital investment, accessibility, environmental stewardship, and eligibility for external funding. Together, these layers create both constraints and opportunities that affect service levels, operational flexibility, and long-term system sustainability.
County-Level Regulatory Drivers
County ordinances and policies provide the most direct influence on the day-to-day management of Clackamas County Parks. Clackamas County Code Title 6, Chapter 6.06 establishes the County's authority to regulate activities within County parks, forests, and recreation areas. These provisions are intended to protect public health, safety, welfare, and natural resources, and they define enforceable standards related to conduct, permitted uses, and violations. Parks staff educate visitors on Parks rules. Enforcement authority is coordinated through the Sheriff's Office under County Code administration and enforcement provisions.
Governance and advisory processes further shape County park decision making. The Parks Advisory Board (PAB) is a long standing advisory body created by the Board of County Commissioners in 1955. PAB provides input on park policy, management, development, acquisitions, and other significant matters. This advisory structure introduces additional review and coordination requirements, but it also provides continuity, transparency, and community input into parks decision making.
County planning policies reinforce the role of parks within broader land use and community goals. The County Comprehensive Plan includes an Open Space, Parks, and Historic Sites chapter that frames parks and open space as core components of countywide quality of life. This policy context is important for setting investment priorities, coordinating park planning with land use decisions, and supporting the justification for capital improvements.
State Statutory and Coordination Drivers
State statutes establish the legal authority under which counties designate and manage public parks and recreation areas. Oregon law allows counties to designate county owned lands as parks, forests, or recreation areas, while requiring coordination with cities when those lands are located within city limits. These requirements can add complexity to acquisition and designation processes, particularly in urbanizing areas, but they also encourage early coordination with cities and support more deliberate integration of parks into local land use and service frameworks.
State law also establishes park and recreation districts and defines their powers. In Clackamas County, park services are provided by a mix of County Parks, park and recreation districts such as North Clackamas Parks and Recreation District (NCPRD), cities, and state and federal agencies. This shared service environment can create overlap in responsibilities and differing service standards, and challenges in system wide prioritization. At the same time and it creates meaningful opportunities for intergovernmental agreements, shared funding strategies, coordinated programming, and regional trail and access connections that extend beyond County owned facilities.
In addition, Oregon administrative rules related to statewide recreation planning and guidance from the Oregon Parks and Recreation Department (OPRD) shape expectations for public recreation systems. While not always directly binding, these standards can influence facility planning, design, and management approaches. They may constrain flexibility in certain contexts, but they also provide useful benchmarks and support consistency with statewide recreation goals.
Funding and Revenue Framework
Funding mechanisms function as a regulatory influence because revenue sources are typically accompanied by specific eligibility requirements, restrictions, and reporting obligations. The County's annual budget process is a key driver in shaping park priorities and investment decisions. County revenues include a mix of taxes, grants, and dedicated state or federal funds, each with its own use restrictions and accountability requirements. These constraints can limit discretionary spending and require parks to compete for limited resources. However, transparent budget governance provides an opportunity to clearly articulate funding gaps, demonstrate stewardship of existing assets, and align park investments with Countywide priorities and community values.
Federal Compliance
Federal requirements influence parks primarily through capital projects, employment practices, procurement, and grant funding. ADA accessibility, civil rights, environmental protection, and cultural resource regulations can increase project costs and timelines, particularly for improvements in sensitive areas. However, strong compliance reduces legal and financial risk, improves competitiveness for external funding, and supports values-based prioritization related to equity, access, safety, and environmental stewardship.
Previous Planning Efforts Related to County Parks
The updated Parks System Plan will be built on the foundation created by and for past, present, and future work related to County Parks. The following related planning efforts are relevant to the Clackamas County Parks System Plan update:
- Clackamas County Parks Plan 2000
- Clackamas County Parks Master Plan 2004
- Clackamas County Forest Management Plan 2018
- Clackamas County Climate Action Plan (draft) 2023
- Clackamas County Transit Development Plan 2021
- Walk Bike Clackamas Plan 2025
- Clackamas County Public Health Division Strategic Plan 2025-2027
- Blueprint for a Healthy Clackamas County 2020-2025
- Clackamas County Public Health Division Climate and Health Adaptation Plan 2025
- Barton Park Complex Master Plan
- North Clackamas System Plan 2025
- Sunrise Corridor Community Vision Plan 2025
Throughout these planning efforts, several themes and values repeatedly arose. These are important themes to consider and reflect on in the Parks System Plan as they are a holistic representation of community values, both in relation to the parks and beyond. Identified themes include the following (those in bold appear in the most recent Clackamas County Parks System Plan):
- Accessibility
- Accountability
- Adaptability
- Collaboration
- Connection
- Environmental Education
- Equity
- Health
- Preservation of Natural Environment
- Safety
- Stable Funding
- Sustainability
Previous planning efforts present a variety of focuses and perspectives that can help inform the updated Parks System Plan. Past Clackamas County Parks System Plans (Clackamas County Parks Plan 2000 and Clackamas County Parks Master Plan 2004) showed the historic growing demand for outdoor recreational opportunities and began to position the county to better coordinate and align parks and recreation resources. Additionally these plans guided County Parks by establishing guiding values and putting forth the mission statement:
"The mission of the Clackamas County Parks Department is to acquire, develop, and operate high quality, family-oriented recreational areas for present and future users. The parks are to be safe and tranquil and preserve the natural environment." (Clackamas County Parks Master Plan 2004 and Beyond, pg. 11).
Parks often serve as a gateway to the natural environment in Clackamas County. Most County Parks are heavily forested and both their health and visitor experiences are directly tied to climate conditions. Climate and forestry plans (Clackamas County Forest Management Plan 2018 and Clackamas County Climate Action Plan, draft, 2023) provide an up to date look into the local stewardship of the environment.
- The Clackamas County Forest Management Plan 2018 details how different land categories should be managed and shows that many forest stands within County Parks are marked as "Category 1", meaning "managed so they are aesthetically pleasing, safe, accessible, and in some cases, educational for the recreating public" (Clackamas County Forest Management Plan 2018, pg. 2).
- The Climate Action Plan outlines "goals and objectives for addressing climate change, as well as the strategies to achieve the goal of carbon neutrality" (Clackamas County Climate Action Plan, draft, 2023 pg. 8). This draft plan presents scientific evidence and modeling for how to meet County goals of lowering carbon emissions. County Parks and the natural environment can play a crucial role in helping meet these goals.
Parks are also intended to serve their community, and as such they must be accessible and meet community needs. Several recent planning efforts have been undertaken to establish goals to better meet the needs of the community in regards to mobility and public health (Transit Development Plan, Walk Bike Clackamas Plan, Clackamas County Public Health Division Strategic Plan 2025-2027, Blueprint for a Healthy Clackamas County 2020-2025, and Clackamas County Public Health Division Climate and Health Adaptation Plan). These plans were reviewed to identify where future mobility improvement projects could be located and what funding might be available to advance these projects. This is important to take into account for the County Parks Plan update to ensure that visitor accessibility is supported and maximized. Additionally, public health plans lay out goals to achieve a healthier and more resilient community. They also identify underserved populations that are important for the updated plan to reach. The goals and objectives in these plans can inform the framework of the updated Parks Plan, serving in tandem rather than opposition.
Planning efforts from the broader county (Barton Park Complex Master Plan, North Clackamas Parks & Recreation District System Plan 2025, Clackamas County Comprehensive Plan, and Sunrise Corridor Community Vision Plan 2025) provide context for the other past, present, and future developments that are underway in and around the county. They reflect the current goals and input of the community and detail the approaches and outcomes that have been done. The North Clackamas Parks & Recreation District System Plan 2025 in particular provides a look at how neighboring jurisdictions have handled their parks and recreation system plan updates, and the Clackamas County Comprehensive Plan provides the countywide vision framework that this County Parks Plan will need to promote and uplift.
Appendix A: County Parks System Timeline, with Property Acquisitions
Appendix A: County Parks System Timeline, with Property Acquisitions
| Year | Events | Acquisitions |
|---|---|---|
| 1919 | Wagon Wheel, 9.74 acres | |
| 1928 | Wagon Wheel, 15.0 acres | |
| 1934 | Eagle Fern, 172.36 acres | |
| 1941 | Hoodland Park, 3.99 acres | |
| 1943 | Billy Goat Island, 18.76 acres | |
| 1944 | Barlow Wayside, 26.6 acres | |
| 1946 | Barlow Wayside, 78.05 acres Hoodland, 11.18 acres | |
| 1957 | Metzler Park, 116.38 acres Feyrer Park, 16.0 acres | |
| 1959 | Barton Park, 102.46 acres | |
| 1960s | County parks development begins using federal funds available as part of the federal Great Society initiatives. | |
| 1962 | Ed Latourette, 36.47 acres | |
| 1967 | Hebb Park, 34.0 acres | |
| 1970 | Barton Park, 12.96 acres | |
| Early 1970s | Park development continues | |
| 1975 | Wilhoit Springs, 18.21 acres | |
| 1976 | Parks close due to lack of funding | |
| Summer 1977 | Parks reopen | |
| Late 1970s | Parks operations continue, but most park maintenance is deferred due to fiscal constraints and high inflation | |
| 1980 | Clackamas County acknowledges the need for and benefits of parks and open space in the Planning Background Report: Parks, Open Space, Historic Sites. | Wagon Wheel, 0.2 acres |
| 1983 | Feyrer Park, 10.58 acres | |
| Mid-1980s | Forest Advisory Board established. Parks trust fund set up to use revenue from timber harvest to augment county parks and forest budget. | |
| 1986 | Feldheimer, 0.71 acres | |
| 1987 | Barton Park, 6.91 acres | |
| 1988 | Hoodland, 9.1 acres Metzler, 18 acres | |
| 1989 | Clackamas County Park Rehabilitation Six Year Plan, which identifies specific capital improvements needs throughout the parks system, approved by Board of Commissioners, identified specific capital improvements needs throughout the parks system. | |
| 1989-95 | Parks Department implements almost all the recommendations in the 1989 plan. | |
| 1990 | Voters in North Clackamas County approve a bond measure to establish and support the North Clackamas Regional Parks and Recreation District – now known as the North Clackamas Parks and Recreation District (NCPRD). This first regional park and recreation district in Clackamas County is created in recognition of the County's and the cities' inability to provide adequate neighborhood and community parks and facilities in an urbanizing unincorporated area. Clackamas County Parks no longer has jurisdiction or responsibility for providing recreation lands and facilities in the NCPRD area. | |
| 1991 | Clackamas County Market Survey conducted by Clackamas County Parks. Findings include the following:
| Boones Ferry Marina, 0.92 acres |
| 1992 | Boones Ferry Marina, 1.46 acres | |
| 1994 | Carver Boat Ramp, 1.38 acres | |
| 1995 | Clackamas County Parks Plan 2000 developed and adopted – described as Clackamas County's first parks master plan, anticipated to last for five years. It states the mission of County Parks is… to acquire, develop, and maintain high quality and family oriented recreational areas, while preserving the natural environment and develop activities with safety and tranquility for present and future users. | |
| 1996 | Great flood event. Most master plan work delayed as work focused on repair/rehabilitation and maintenance of flood damaged parks. | Carver Boat Ramp, 3.65 acres |
| 1999 | Madrone Wall Park, 43.99 acres Boring Station Trailhead, 7.0 acres Springwater Corridor Trail, 2.25 miles | |
| 2000 | New master plan – Beginning the New Millenium, 2000 – with emphasis on revenue stabilization and development of a public golf course. | |
| 2002 | Completion of Stone Creek Golf Course. | |
| 2003 | County becomes owner of Stone Creek Golf Course after completing planned buyout of other investors. | |
| 2004 | Publication of Parks Department Master Plan, 2004 and Beyond -- produced part way through the time period covered in the last master plan (2000-2006), because the successful development of the County-owned Golf Course, which was an important and primary goal of the last plan, warranted a new look at the master plan. The plan includes an updated County Parks mission statement: to acquire, develop and operate high quality, family oriented recreational areas for present and future users. The parks are to be safe and tranquil and preserve the natural environment. | |
| 2005 | Barton Park, 8.13 acres | |
| 2008 | Fishermen's Bend, 17.05 acres Knight's Bridge Park, 17.1 acres | |
| 2010 | Boring Station Trailhead, 0.24 acres | |
| 2011 | Billy Goat Island, 1.88 acres | |
| 2013 | Springwater Corridor Trail opens | |
| 2017 | Madrone Wall Park opens | |
| 2020 | In the County's updated strategic plan, the purpose of the County Parks program is described as …"to provide outdoor recreation, camping, and land stewardship services to residents and visitors so they can experience clean, safe and healthy recreation and natural resource opportunities in rural Clackamas County." | Wetten property, 12.86 acres |
| 2023 | In the County's updated strategic plan, the mission of County Parks is described as "Provide outdoor recreation and camping, and land stewardship." | |
| 2020-24 | Annual surveys conducted of people/organizations that made reservations in county parks over the past year. |
