TO: Mayor and City Council
THROUGH: Krishna Namburi, City Manager
FROM: Gretchen Bennett, Acting in Capacity Community Services Director
SUBJECT:
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Salem Parks and Recreation Advisory Board Recommendations - Seasonal No-Mow Management and Related Actions for the Upper Oak Grove at Bush’s Pasture Park.
Ward(s): Ward 2
Councilor(s): Nishioka
Neighborhood(s): CANDO
Result Area(s): Natural Environment Stewardship; Welcoming and Livable Community
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SUMMARY:
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The Salem Parks and Recreation Advisory Board (SPRAB) recommends that City Council continue implementation of the seasonal “no-mow” management strategy within the Upper Oak Grove area of Bush’s Pasture Park to advance long-term restoration and preservation goals identified in the Bush’s Pasture Park and Deepwood Estate Gardens Cultural Landscape Management Plan (CLMP). SPRAB further recommends that Council direct staff to identify and develop designated picnic areas within subarea 13c (Picnic and Playground), as identified in the CLMP, to balance recreation and restoration objectives, and to undertake public education efforts-through signage and other communication tools-to promote understanding of the intentional management of the oak grove and its ecological and cultural importance.
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ISSUE:
Shall City Council direct staff to continue implementation of the seasonal no-mow management strategy and related actions for the Upper Oak Grove at Bush’s Pasture Park, as outlined in this report and described in the attached letter from the Salem Parks and Recreation Advisory Board?
RECOMMENDATION:
recommendation
Direct staff to continue implementation of the seasonal no-mow management strategy and related actions for the Upper Oak Grove at Bush’s Pasture Park, as outlined in this report and described in the attached letter from the Salem Parks and Recreation Advisory Board.
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FACTS AND FINDINGS:
On August 25, 2025, City Council approved a substitute motion directing the Salem Parks and Recreation Advisory Board (SPRAB) to review the seasonal no-mow/restoration program for the Upper Oak Grove at Bush’s Pasture Park and provide recommendations.
SPRAB reviewed the seasonal no-mow program at its September 11 and October 9, 2025 meetings, incorporating public testimony and staff input.
The Upper Oak Grove, located in the southwestern corner of Bush’s Pasture Park, is a culturally, historically, and ecologically significant area identified in the Bush’s Pasture Park and Deepwood Estate Gardens Cultural Landscape Management Plan (CLMP).
Beginning in 2025, the City implemented a seasonal no-mow strategy in the CLMP management subareas 13a (Oak Refocus & Stabilization) and 13c (Picnic and Playground), expanding a no-mow strategy previously applied in 13b (Oak Woodland Restoration) for more than five years. A map identifying the location of all CLMP management areas, including subareas 13a and 13c, is included as Attachment 1.
The CLMP identifies management objectives for the Upper Oak Grove that include promoting native vegetation, reducing soil compaction, protecting tree roots, and restoring a more native plant system. The plan specifically identifies conservation of the Oregon white oaks as the primary management objective for this area of the park and recommends delaying mowing until mid-summer or later to promote and protect native plants, minimize soil compaction, and promote an increase in the duff layer beneath the trees. Duff is the natural layer of decomposing leaves, twigs, and organic matter on a forest floor that helps trees by conserving soil moisture, moderating temperature, and enriching the soil with nutrients.
Many of the Oregon white oaks in the Upper Oak Grove are well over 100 years old, and excessive foot traffic and removal of leaves has contributed to soil compaction and poor soil quality. The seasonal no-mow approach is intended to mitigate these impacts and support long-term forest health, as part of an effort to stabilize the health of the oak trees and to further manage the oaks on a spectrum from stabilization to restoration.
SPRAB received both supportive and critical public input. Concerns raised included:
• Reduced accessibility for traditional family picnics and gatherings.
• Perceptions of unsightliness or “unkempt” appearance.
• Perceived increase in wildfire risk due to taller, dry grass.
As a result of their review, and as detailed in the letter from SPRAB included as Attachment 2, the advisory board recommends:
• Continuing the seasonal no-mow policy in CLMP management subareas 13a and 13b.
• Identifying and developing designated picnic areas within subarea 13c and revitalizing the playground to balance recreation and restoration objectives.
• Implementing public education efforts to explain the purpose of the no-mow strategy and highlight the ecological and cultural significance of the oak grove.
In preparation for the 2026 growing season, staff is already exploring interim steps to begin transitioning toward more defined and sustainable picnic areas within the oak grove. This may include a limited number of picnic tables secured to the ground to keep them generally stationary, placed in areas that are either regularly mowed or mulched to suppress grass growth and improve usability, with operational signage to guide visitors. These actions would represent modest, early efforts to balance public access with habitat protection. However, moving toward more formal, developed picnic facilities will require a future Capital Improvement Plan (CIP) project to ensure that accessibility and site design meet current standards and that the City fulfills its obligations under Title II of the Americans with Disabilities Act.
Implementation Actions
In addition to the three recommendations included in their letter, SPRAB has proposed that Council direct staff to implement five specific implementation actions:
1. Evaluate subarea 13c for potential designated and developed picnic areas.
2. Consider a CIP project(s) within area 13c for accessible picnic area improvements, such as covered and reservable shelters.
3. Consider a CIP project(s) within area 13c for playground renewal.
4. Identify partnerships or other avenues for creating and posting signs educating park patrons about the ecology of oak groves, and the schedule, purposes and results of the seasonal no-mowing efforts.
5. Evaluate budget proposals for these efforts and present them to Council.
The staff recommendation does not explicitly direct staff to implement these actions. These items are consistent with ongoing Parks and Recreation Program objectives and would be pursued as capacity and resources allow. However, if City Council directs staff to move forward with these actions, it would establish a clear priority for implementation, enabling staff to reallocate resources and initiate planning activities sooner. Advancing this work as a near-term priority may accelerate delivery of improvements and implementation of additional and enhanced educational programs and signage within the Upper Oak Grove but could also require adjusting timelines for other planned park enhancement projects. The following steps and considerations would guide this implementation work if Council direction were provided.
1. Continuation of Seasonal No-Mow Policy and Public Education: Staff would continue implementation of the seasonal no-mow approach in subareas 13a (Oak Refocus & Stabilization) and 13b (Oak Woodland Restoration). Existing City resources would be redirected to bolster public education efforts. This would include but not be limited to additional staff effort to develop signage, web content, and interpretive materials to highlight the ecological and cultural significance of the Upper Oak Grove, explain the purpose of the no-mow strategy, and address potential misconceptions about park appearance and safety.
2. Picnic Areas, Playground Renewal, and Expanded Capital Planning Opportunities: This effort presents a strong opportunity to leverage local funds as match for an external grant, bolstering resources to renew the playground, enhance picnic areas, and improve connectivity within subarea 13c (Picnic and Playground). Parks Planning staff would lead this initiative, focusing on the creation of designated picnic areas compatible with the surrounding oak stand and the revitalization of the playground. Safety considerations-such as potential limb drop-would guide the siting of picnic and play elements. Designated oak grove protection areas could also be established using split-rail or similar fencing to discourage foot traffic, reduce tree failure risk, and promote understory growth and oak regeneration.
To advance SPRAB’s implementation recommendations, an additional planning-focused CIP project could be added to the upcoming annual planning cycle to include:
• Feasibility and conceptual design for playground, pathway, and picnic facility improvements, with the intent of producing a schematic design broadly supported by engaged community members.
• Preliminary cost estimates, including probable construction costs and anticipated operational and maintenance budget impacts.
Identification and pursuit of grant opportunities to match local funding and expand project scope through state or federal programs.
These planning and design efforts could be coordinated with the 2022 Safety and Livability Bond-funded restroom replacement and path rehabilitation. Bond proceeds are expected to fund a new restroom near the top of the Soap Box Derby Track (within the Upper Oak Grove), with design work scheduled to begin in January 2027, with construction in summer 2028. Path rehabilitation and repaving included in the bond could be coordinated with this project to enhance the surrounding trail network within the Upper Oak Grove.
These local bond-funded investments could also serve as the required match for external grants to deliver a larger, integrated project-including the restroom, paths, picnic areas, and playground renewal-as many grant opportunities require a local match, typically 50% of the overall project cost.
3. Community Engagement and Accessibility Considerations: Planning and design efforts would incorporate robust community engagement, including outreach focused on identifying existing and potential barriers to user access and use, including physical, cognitive, cultural, and socioeconomic barriers. Public input would inform placement, design, and functionality of picnic and playground facilities. Socioeconomic considerations could include the potential impact of reservable picnic areas that require fees to reserve.
4. Partnerships and Collaborative Opportunities: City staff would seek out and welcome partnerships to advance implementation of these actions. Potential collaborators could include community-based organizations such as the Mission Street Parks Conservancy, as well as professors, students, and academic programs at Willamette University with expertise in ecology, cultural landscape preservation, and community engagement.
Partnerships could also include Tribal governments with which the City has established Memoranda of Understanding, as well as organizations and individuals connected to descendant communities of the First Peoples of the Willamette Valley and the area now known as Salem. These collaborations would help ensure that management, interpretation, and educational materials honor the deep cultural and ecological history of the oak grove landscape.
Together, these partnerships could support volunteer stewardship, applied research, interpretive programming, and public education initiatives-enhancing community understanding and investment in the ongoing care and restoration of the Upper Oak Grove.
An initial step would be to include a planning project in the upcoming CIP. This project would evaluate the feasibility of improving the playground, pathways, and picnic areas, and include community and stakeholder engagement to help shape the design. The planning effort would also produce concept plans and cost estimates to guide future construction and restoration. Completing this work would provide a coordinated, cost-effective foundation for future park improvements that balance ecological restoration, recreation, and cultural preservation goals. The planning and engagement project could move forward once funding is identified and scheduled within the City’s five-year CIP.
BACKGROUND:
Bush’s Pasture Park is a prominent park in Salem, classified in the Comprehensive Park System Master Plan as an ‘Urban Park,’ that contains resources of ecological, cultural, and recreational importance.
In 2021, the City Council approved the Bush’s Pasture Park and Deepwood Estate Gardens Cultural Landscape Management Plan (CLMP) to guide long-term stewardship, ecological restoration, and sustainable recreational use of the park.
At the August 25, 2025 Council meeting, Councilor Nishioka moved to continue the seasonal no-mow/restoration program and implement a modified mowing approach in the southwest picnic and recreation area. Following discussion, Councilor Varney’s substitute motion was approved, directing SPRAB to review the program and provide recommendations for an annual no-mow program consistent with the CLMP. The motion passed with Councilors Tigan, Vang, and Nishioka voting Nay. Mayor Julie Hoy was marked absent.
Rob Romanek
Parks Planning Manager
Attachments:
1. CLMP Management Area Map
2. Letter from the Salem Parks and Recreation Advisory Board