Building the Required Match for an ORLP Grant

The Outdoor Recreation Legacy Partnership (ORLP) grant requires a 1:1 non-federal match. This means the applicant must provide 50% of the total project cost through cash, land value, or in-kind contributions. Eligible match sources include municipal funds, state grants, private donations, and the value of donated professional services or volunteer labor documented at market rates.

Key takeaways

ORLP requires a minimum 1:1 match from non-federal sources, covering exactly 50% of the total project cost.
The value of land already owned by the applicant cannot be used as a match unless it was acquired specifically for the project within the grant period.
In-kind contributions like professional design services or volunteer labor must be documented with specific hourly rates and timesheets.
State grants can often serve as the non-federal match, provided they do not originate from federal pass-through programs like the LWCF state-side assistance.
Maintenance and operation costs are never eligible for the match; funds must be dedicated to capital construction or acquisition.
Documentation of the match must be secured at the time of application to be considered a 'ready-to-go' project.

What sources of funding qualify for the ORLP match?

The ORLP program allows for a variety of match types to ensure urban communities can leverage different assets. These generally fall into three categories: cash, land value, and in-kind contributions. All match sources must be non-federal. You cannot use funds from another federal agency, such as CDBG or USDA, to match an ORLP grant unless specifically authorized by federal statute.

Cash Contributions

Cash is the most straightforward match. This includes municipal general funds, bond revenues, and private donations from foundations or local businesses. When using cash from a park grant proposal, the funds must be liquid and available within the performance period of the grant.

Land Value and Acquisitions

The value of land can serve as a significant portion of the match. However, there are strict rules. If the land is being donated by a third party for the project, its appraised fair market value counts. If the municipality is purchasing land specifically for the park, the purchase price counts. You cannot use the value of a park the city has owned for decades as a match for new equipment or renovations.

In-Kind and Donated Services

Donated professional services, such as engineering, architectural design, or legal work, are eligible. These must be valued at the professional's standard billing rate. Volunteer labor is also eligible but must be valued at the local rate for unskilled labor unless the volunteer is performing a specialized trade they are professionally qualified for.

Eligible vs. Ineligible Match Sources

Source Type	Eligible as Match	Ineligible as Match
Government Funds	City/County General Fund, State Grants	CDBG, USDA, LWCF State-Side
Labor	Volunteer hours, Donated Pro-Bono Design	Existing City Staff Salaried Time
Real Estate	New Land Donations, Recent Acquisitions	Existing Park Land Owned for Years
Equipment	Donated New Equipment	Used Equipment Transfers

How do you document the match for federal reviewers?

Documentation is the leading cause of application rejection. Reviewers need to see a grant-ready project budget that clearly aligns every dollar. For cash matches, a resolution passed by the city council or a letter of commitment from a foundation is required. These documents must state the specific dollar amount and the intent to use it for the ORLP project.

For in-kind services, you must provide a memorandum of understanding (MOU) or a letter of intent from the service provider. This letter should detail the scope of work, the estimated number of hours, and the hourly rate. Documentation for volunteer labor should include a plan for how hours will be tracked using sign-in sheets and verified by a project manager.

If land value is used, a professional appraisal compliant with the Uniform Appraisal Standards for Federal Land Acquisitions (Yellow Book) is typically required. This ensures the valuation is objective and meets federal standards for real estate transactions.

Match Documentation Checklist

Signed City Council Resolution committing specific cash funds
Letters of Commitment from all private donors
Official appraisal for any land value being claimed
Detailed breakdown of in-kind service rates and hours
State grant award letters (if applicable)
Project budget showing 50/50 split between federal and non-federal

How do ORLP match rules differ from standard LWCF?

While ORLP is funded through the Land and Water Conservation Fund (LWCF), the match requirements are often scrutinized more heavily due to the urban focus and the competitive national selection process. Unlike the standard LWCF state-side program, where states might have their own nuanced rules, ORLP is a direct federal-to-local competition managed by the NPS.

One major difference is the emphasis on underserved communities. If your match includes private partnerships, this often strengthens the grant project narrative by demonstrating broad community buy-in. Projects that exceed the 1:1 match (e.g., providing 60% match) may be viewed more favorably in terms of project viability, though it does not technically increase the score in all categories.

When must the match funds be spent?

Timing is a critical compliance factor. Match funds must be spent during the period of performance defined in the grant agreement. Any money spent before the grant is officially awarded and the agreement is signed is considered "pre-award costs." While some pre-award costs like design and engineering can sometimes be reimbursed or used as a match, this requires prior written approval from the NPS.

It is best practice to align the expenditure of the match with the federal drawdowns. For example, if you are purchasing a dog park package or fitness equipment, you should document the payment from the match account at the same time you request the federal portion for other site work. This keeps the 50/50 ratio consistent throughout the construction phase.

What are the common mistakes in building an ORLP match?

Many applicants fail by including ineligible "soft costs." For instance, the time city employees spend managing the grant is generally not an eligible match unless it is specifically tracked as direct project labor and is not part of their standard salaried duties already covered by other federal funds. Avoid these common grant application mistakes to ensure your budget remains valid.

Overvaluing Land: Using an outdated appraisal or an informal estimate from a real estate agent.
Federal-on-Federal: Attempting to use CDBG funding as a match without verifying the specific statutory exception.
Unsecured Pledges: Including "anticipated" donations that do not have a signed letter of commitment.
Maintenance Costs: Including the future cost of mowing or repairs as part of the construction match.

Frequently asked questions

Can I use state grants as a match for ORLP?

Yes, state-funded grants are one of the most common sources for the ORLP match. However, you must ensure the state grant is not actually a pass-through of federal funds. For example, some state recreation grants are funded by federal programs; these would be ineligible. Always confirm the original source of the state funds with the granting agency before listing them as your match.

Is the value of donated equipment eligible for the match?

Yes, if a local business or manufacturer donates new equipment for the project, the fair market value of that equipment can count toward your match. You must provide a formal invoice or letter from the donor stating the retail value. Note that used equipment is rarely accepted as a match due to the difficulty of establishing an accurate, depreciated market value that meets federal audit standards.

How do I value volunteer labor for the grant application?

Volunteer labor should be valued using the 'Independent Sector' rate for your specific state, which is the standard recognized by federal agencies. If a professional, such as an electrician, is donating their specific professional skill, you can use their standard professional billing rate. In both cases, you must maintain signed timesheets and a description of the work performed for every hour claimed.

Does land I already own count toward the match?

Generally, no. The value of land already owned by the municipality (held in the public domain for years) cannot be used as a match for a new development project. Only land acquired specifically for the project within the grant's performance period, or land donated by a third party for the express purpose of the project during the grant period, is eligible for the match.

Can I use CDBG funds as a match for ORLP?

In most cases, no. Federal law generally prohibits using one federal grant to match another federal grant. However, Community Development Block Grant (CDBG) funds have a specific statutory provision that sometimes allows them to be treated as non-federal funds for matching purposes. You must consult with your HUD representative and the NPS to ensure your specific CDBG allocation meets the criteria for this exception.

What happens if my match falls through after the grant is awarded?

If a committed match source fails to materialize, you must find a replacement non-federal source immediately. Failure to provide the full 1:1 match is a violation of the grant agreement and can lead to the forfeiture of the federal funds or a requirement to repay the grant. You must notify your NPS project officer immediately if there are any changes to your match funding plan.