Maine – Innovative Travel, Tourism, and Outdoor Recreation Case Study

The below case study was developed through a NGA partnership with Oregon State University’s Center for the Outdoor Recreation Economy to research and assess the Travel, Tourism and Outdoor Recreation award program at the U.S. Economic Development Administration. Read the full report here.

Project Overview

Grant: Construction Improvements for Enhanced Whitewater

Grant recipient: Town of Skowhegan (Somerset County), Maine

Type of grant: Competitive TTOR Project

EDA funding: $4,889,600

Total project funding, including estimated private investment: $6,112,000 ($37,750,000 estimated private is TBD)

Project status: Due to the uniqueness of this project, some relating to design and some relating to permits, the project is delayed. Environmental permits are expected in the fall of 2024. Construction is expected to begin in 2025. Fundraising continues for other elements of the park.

What is unique, innovative: Long-term work toward completion of a Skowhegan River Park includes construction of a whitewater recreation area in and around the Kennebec River Gorge in Skowhegan, known as “the downtown portion,” of the larger planned Skowhegan River Park. A 2022 EDA investment of close to $4.9 million involves redeveloping the industrial downtown river gorge into an accessible outdoor recreation asset with enhanced whitewater. The whitewater portion of the river park will feature adjustable wave infrastructure and rapids, creating a high- quality outdoor recreation opportunity and will be one of only two whitewater parks in the Northeast. The infrastructure for the river park is being planned and undertaken in three phases:

• Phase 1 – The Northeast’s first adjustable wave for paddling and river surfing, with river access and a south bank viewing area.
• Phase 2 – A riverfront promenade and river access via a set of stairs from the north side of the gorge.
• Phase 3 – Construction of two additional non-adjustable wave features, as well as expansion and enhancement of Skowhegan’s trail network.

The $4.9 million awarded from EDA’s Travel Tourism & Outdoor Recreation (TTOR) program is funding the construction of Phase 1, the subject of this case study. Phase 1 will include construction of one wave – the “adjustable waveshaper” – and access into the river, with some viewing areas on the south bank. Phase 1 is the cornerstone of the vision for the river park and the primary economic driver for a series of construction plans centered around whitewater enhancement. This includes:

• Excavation of existing river and riverbank bedrock.
• In-river construction of the waveshaper controlled by an adjustable metal plate at the bottom of the river to enhance wave performance and increase attributes such as water velocity and drop.
• Wave tuning, once operational.

Although not supported by the EDA TTOR funding, Phases 2 and 3 are discussed in this case study given their close connection with the overall story about community and economic development. The total estimated cost of construction for the first two phases is approximately $17.1 million.

Phase 2 will include a downtown riverfront promenade or walkway, river access via a stairway from the north bank, overlooks and additional viewing areas. A $2 million grant from the U.S. Department of Housing & Urban Development’s (HUD) Community Project Funding will be used to partially fund Phase 2. The town of Skowhegan and project partner Main Street Skowhegan are currently fundraising and waiting to hear about another federal grant that could help fund the remainder of Phase 2.

Phase 3 will involve the construction of two additional non-adjustable wave features — one in the downtown area near the adjustable wave and the other a half-mile downstream for even more enhanced whitewater. These waves will be accomplished by constructing new river rock outcroppings and a divider island for water constriction, and more reshaping of the river bottom to increase drop and velocity. Phase 3 also includes a focus on downtown-adjacent trails and trail accessibility enhancements. The additional wave features and the trail construction work will take place as funding is raised.

Takeaways on What’s Replicable: The three planned construction phases are connected to a number of closely related economic and community development initiatives that are already beginning to benefit the community, such as free outdoor recreation opportunities. The package of related outdoor recreation infrastructure projects includes:

• A welcoming riverfront.
• Improved river access.
• A natural river channel for tubing.
• Fishing in an excellent fish habitat.
• Enhanced whitewater waves for surfing and kayaking.
• Whitewater event infrastructure.
• 50+ miles of 4-season trails.

According to Skowhegan’s identified transformation strategies, enhanced outdoor recreation is a key brand pillar. Since the current project was first initiated in the early 2000s, the expanded vision above has evolved in recent years. Community transformation through outdoor recreation includes not only the above new outdoor infrastructure, but also free outdoor recreation programming and skills clinics, and free gear and equipment for residents and visitors. The new infrastructure plan, programming and clinics, and available gear and equipment will bolster the regional economy by positioning Skowhegan as a tourist destination attracting visitors, businesses, and new residents — in addition to benefiting current residents.

Background on the Project

The Kennebec River in Maine runs through Somerset County and the town of Skowhegan, Maine. Skowhegan is the county seat of Somerset County and is a large Maine town, with a population of more than 8,600, according to the 2020 Census. The Kennebec River is one of Skowhegan’s greatest assets, although the portion of the river that runs through the downtown area has been largely inaccessible to the public over time. One area resident said, “I’m excited to see the riverfront developed into something more than just chain-linked fences and dumpsters.” Skowhegan’s historic downtown and commercial district is on one side of the river. A manufacturing district is on the other side of the river, which includes such well-known manufacturers as New Balance and Sappi North America which are considered the anchor institutions in the area along with the General Hospital.

In 2016, Main Street Skowhegan led a community-wide collaborative process to craft the Skowhegan Strategic Plan for Community Transformation (and an abridged version) which was officially adopted by the community at a town meeting in June of 2016. The town’s goal is to make the area a thriving economic, cultural, and recreational destination where residents enjoy a high quality of life. The strategic plan includes innovative strategies for economic and community development and articulates projects and initiatives for the town — with specific action steps to excite and inspire the community.

Community transformation through outdoor recreation will be accomplished through free outdoor/civic infrastructure; free outdoor recreation programming and skills clinics; and free gear and equipment – all discussed in this section.

Free outdoor infrastructure: The EDA-funded whitewater enhancement is the cornerstone of the vision for the overall river park and the primary economic driver of the TTOR construction and related package of initiatives. The adjustable wave will ultimately enhance recreational quality especially for kayaking and surfing. However, the area’s attraction is not just the whitewater portion of the river. The greater vision for the river park, which will be free and open to all, will include a natural river channel for tubing and fishing as well. In all, the outdoor infrastructure includes the whitewater park and riverfront development, along with a trail network.

In addition to the Kennebec River, Skowhegan is also known for being a gateway to the Great North Woods. There are an estimated 28 current miles of trails in the town. A Trails Master Plan provides analysis, recommendations, and concept plans for an estimated 64 total miles of trails in Skowhegan. Partners of Main Street Skowhegan have already been using the trail plan to start related outdoor projects and initiatives. Main Street Skowhegan plans to commission more substantial designs for the downtown-adjacent trails since the trail network will incorporate the riverfront promenade, overlooks and viewing areas. The intent is to be able to access nearly all the trails via downtown through different connector routes.

Free outdoor programming and skills clinics: To help achieve community transformation through outdoor recreation, offering programming and skill-building workshops is perceived as being critical. Initiated by the nonprofit Main Street Skowhegan, the Skowhegan AmeriCorps Outdoor Recreation Program offers free outdoor activities and whitewater trainings for community members – such as kayaking clinics and biking camps. The free outdoor programming also includes outdoor yoga, cross country skiing, mountain biking, and more. The enhanced river gorge will also serve as a venue for hosting major paddling competitions and whitewater events that draw paddlers and surfers from around the country, and other visitors who will shop, eat, and stay locally.

Free gear and equipment: The Skowhegan Outdoors “Community Gear Lending Library” known as Basecamp provides more than 200 items of gear (canoes, stand-up paddle boards, camping gear, etc.) for use during programming and for community members to borrow. Its location within a coffee shop downtown makes it convenient for people to walk in and borrow for several days at a time. Somerset County residents can borrow as much gear as they want for free, year-round; those outside of Somerset County are asked to pay a $50 flat rate annual membership fee.

Project Actors – State leaders, champions, stakeholders

Stakeholder Organizations: In addition to the Town of Skowhegan itself, a major driver for the Skowhegan whitewater park has been the nonprofit Main Street Skowhegan, which is affiliated nationally with Main Street America; the National Main Street Center, a subsidiary of the National Trust for Historic Preservation; and the Maine Downtown Center, a program of the Maine Development Foundation. Main Street Skowhegan identified the outdoor recreation sector as a primary area for economic growth in Skowhegan in the coming years and, for some time now, has been partnered with the town’s “Run of River” Committee on a major capital campaign for the river park.

Local Champion: Kristina Cannon, the president and CEO of Main Street Skowhegan and a returning Central Maine native, as well as the project manager of the EDA TTOR project, is a central coordinator of the region’s strategic projects. She spends much of her time managing and fundraising for the river park, as well as the trail network and riverfront promenade, and has raised more than $8 million for these projects to date. She was named the 2023 Maine Outdoor Industry Leader of the Year, and serves on the Maine Outdoor Brands Membership Committee, on the steering committee for Maine’s 10-Year Outdoor Recreation Economy Roadmap initiative, as Marketing Committee chair of the Kennebec Valley Tourism Council, and as a member of the Committee for Skowhegan’s Village Partnership Initiative through the Maine Department of Transportation.

State Champions: Main Street Skowhegan partnered with the Maine Office of Outdoor Recreation (part of the Maine Department of Economic & Community Development, DECD, headed by Commissioner Heather Johnson) along with the Roux Institute at Northeastern University and others, to host an Outdoor Rec & Tech Summit in April 2023, culminating the last day with a $3,000 pitch competition for outdoor recreation and technology startups.

The Maine Office of Tourism, also part of Maine DECD, awarded Main Street Skowhegan the 2019 Governor’s Conference on Tourism Award for Marketing & Promotion based on the organization’s work to promote the town and region during a 2018 Festival in Skowhegan. Main Street Skowhegan was recently awarded $484,500 from the Maine Office of Tourism to develop a destination development plan and brand strategy for the region.

The Maine Outdoor Heritage Fund (MOHF) also awarded Main Street Skowhegan a set of grants that use proceeds from the sale of a dedicated instant lottery ticket (currently “Ca$h Lines”) to support outdoor recreation and natural resource conservation projects across the state. In Skowhegan, these grants supported continuation of the permitting process for the whitewater infrastructure construction when it ran into issues that needed addressing.

Congressional Champions: U.S. Senators Susan Collins and Angus King secured a $2 million grant to support river park construction in the FY2022 Transportation and Housing Appropriations bill. Skowhegan is using this funding to partially fund Phase 2 infrastructure improvements such as the riverfront promenade, paved walkways, access to trails, and shoreline seating. The grant is supporting a design firm’s creation of the Final Design and Engineering for the promenade and stairs from downtown to the river on the north side.

Partners: Certain partners of the town of Skowhegan and Main Street Skowhegan are noteworthy for their work on the river park and are helping to ensure equitable access to the programming, skills clinics, and gear and equipment. They include these actions:

• The Skowhegan Outdoors AmeriCorps Program was launched in 2019 in partnership with Volunteer Maine, the Outdoor Sport Institute based in Maine, and additional local organizations. The program offers free guided outdoor activities and gear. The river- adjacent half of the first floor of the 3,000-square-foot Basecamp gear library features a community gathering place where Skowhegan Outdoors AmeriCorps members host free outdoor-focused workshops indoors or on the river-facing outside deck.
• The American Canoe Association offers official paddling certifications and plans to be active with events in the Skowhegan River Park. The growing list of paddle sports includes kayaking, canoeing, rafting, paddleboarding, and other small watercraft sports.

Economic Benefits

Due to its special characteristics of adjustable waves and rapids, the whitewater park in Skowhegan is expected to become a destination and national events venue. The whitewater portion of the river park will especially contribute to kick-starting the regional economy, thereby improving the quality of life for the existing residents. Access to the downtown river park, promenade, and trail network will attract new residents who will strengthen the workforce, and entrepreneurs who will start businesses in Skowhegan. As a result, Skowhegan community members will benefit from new jobs and increased property values, and a more diversified tax base.

As the EDA-funded whitewater construction project is embedded within a regional development strategy, it will be difficult to attribute outcomes and outputs to it alone. However, the whitewater construction portion will clearly contribute to the overall goals of the regional strategy listed below and, as such, it serves as a model for other cities and counties with similar goals and objectives, including: 1) Helping to drive visitation, 2) Supporting business growth and retention, 3) Attracting new entrepreneurs and residents, 4) Spurring private investment and job creation, and 5) Diversifying the tax base, resulting in a stronger and more resilient regional economy.

Certain offices in the town of Skowhegan are already collecting baseline economic data at this time. For example, the town pulls public data from its downtown businesses. Main Street Skowhegan collects outdoor program participation and gear rental data via the Skowhegan Outdoors AmeriCorps Program, as well as additional business data through its Skowhegan Center for Entrepreneurship. Early indicators of success include:

• Skowhegan Outdoors hosted 202 free outdoor programs and served 1,810 area participants in 2023.
• It is anticipated that 40 jobs will be created from this EDA funding and 136 jobs retained locally.
• New outdoor recreation businesses (e.g., handling transportation for tubers or renting watercraft) are anticipated.
• Local economic impacts — from the 2016 Whitewater Park Economic Impact Study — are estimated to be (this study of local economic impacts is in the process of being updated in the summer of 2024):
  • An estimated $4.6 million increase in spending statewide in just the first year of operation of the River Park.
  • $1 million in labor income in the base year in Somerset County.
  • The potential for $19 million in increased spending by year 10 as a result of the River Park as it draws thousands of people annually.

Other Benefits

Health Benefits: In a recent Maine Community Health Needs Assessment, Somerset County ranked 14th out of 16 counties in health outcomes and last for health factors. Nearly a quarter of Somerset County adults lead a sedentary lifestyle. Outdoor recreation provides an alternative to unhealthy distractions, and the impact of a healthier lifestyle would likely include improved mental and emotional wellness. According to a recent Maine Integrative Youth Health Survey, only 46% of youth in the Somerset region feel like they matter to people. With activities and trainings geared specifically to local youth, it is anticipated that the younger population will feel more of a community connection and a sense of value. The community is already starting to see this through two summer youth interns and a number of repeat youth attendees at programs.

So the river park will contribute to combatting obesity, sedentary-lifestyle rates, improved mental health, and poverty rates in one of the least healthy and poorest counties in the state. Through their initiatives, the town of Skowhegan and Main Street Skowhegan are helping to catalyze a shift toward healthier and more active lifestyles accessible to all area residents.

Resiliency Benefits – Strategy to Encourage Startups: Main Street Skowhegan launched the Skowhegan Center for Entrepreneurship and hired a Director of Entrepreneurship to bolster economic growth and business support — strategies of Skowhegan Strategic Plan — and in response to the need for more economic resiliency and as a precaution against future economic shocks. The Center provides business planning support and programming as part of a regional hub-and-spoke entrepreneurial ecosystem partnership. The director runs a business pitch competition through a boot camp for entrepreneurs called Business Lab, a free fast-paced, interactive program of 8 classes held over 8 weeks, followed by a pitch competition. It is designed to help both aspiring entrepreneurs as well as existing entrepreneurs and small business owners looking to evaluate new ideas.

Challenges

Over the 20-year history of developing the Skowhegan River Park, certain roadblocks have been encountered and addressed such as land ownership regulations. For example, to do the construction work, the town secured necessary easements from all adjacent property owners who would be impacted by in-river construction. The easements needed to be secured prior to moving forward with permitting — involving, for example, the U.S. Fish & Wildlife Service which has jurisdiction over the river because there is an endangered species present (the Atlantic Salmon).

The town of Skowhegan and Main Street Skowhegan have put together a variety of funding and financing schemes to accomplish their overall goal of developing a river park. In the past, some river park project match funding has come from Tax Increment Financing (TIF) with Sappi when the company was expanding its industrial complex in Skowhegan. At least $1 million of the increased property taxes collected from Sappi during a previous company expansion were pledged for future river park construction. Based on past success, this economic development mechanism may be used again with future company expansions.

Key Findings and Lessons Learned

Based on research site visits to at least 8 whitewater river parks across the country, the project implementers and stakeholders have learned that whitewater river parks are proven tools for economic development. However, the immense success of these parks can be coupled with some unintended consequences, described here, along with how Skowhegan is addressing them.

There is a need to plan for, and invest in, additional community infrastructure in conjunction with whitewater park development or similar kinds of economic development attractions. These include the following being addressed in Skowhegan:

• Housing: The region already has a need for housing, particularly workforce housing, and now some $5.4 million is being planned for affordable housing apartments in Skowhegan at 9 or more locations. The town is also projecting a need for hotel rooms for visitors. As an example of how a project such as the whitewater park can attract private investment, a developer has started redeveloping an old 80,000-square-foot yarn and textile mill in Skowhegan to include a boutique hotel, tap room and restaurant, and 45 apartment units — a $20+ million investment.
• Transportation, Parking, and Walkability: Skowhegan is located about 90 minutes north of metropolitan Portland, Maine. Two major state roads merge in Skowhegan connected by a one-way rotary in the middle of town: Route 2 provides east-west access to the rest of Maine, while Route 201 connects the town going south (as I-95) and north to the Canadian border. The town engaged the Maine Department of Transportation (MDOT) Village Partnership Initiative to help develop a village master plan that will assess traffic congestion, parking, and bike and pedestrian safety.
• Tourism Product Development and Branding: Utilizing the aforementioned $484,500 grant from the Maine Office of Tourism, Main Street Skowhegan is leading, in collaboration with partners in Waterville, development of a destination development plan and regional brand strategy. Once complete, this work will guide regional tourism product and experience development and narrative economics, while providing a cohesive look and feel for signage and marketing campaigns to generate awareness for the region and attract visitors, businesses, and new residents.
• Sustainability: The town and stakeholders are considering how to address an anticipated increased need for safety and emergency response as well as operations and maintenance of the river park and trail system.

The town and its stakeholders are continuing to work through these interconnected issues, as they take time. The timeline that led to this EDA funded whitewater river project starting in the early 2000s is presented in Appendix F.

Momentum is currently building in the region. Some local mottos being adhered to include: Think Regionally (i.e., don’t compete for resources); Build your network (local, regional, state, national); Engage the media (for reciprocal relationships), and Build your brand (because storytelling is important!).

Time Factors, Any other Guidance Necessary for Replication

Skowhegan’s River Park development has been in an extended planning stage for 20 years. Some key milestones over the 2-decade timeline are:

2004

• The town’s road commissioner commissioned a $24,000 feasibility study and found that there is enough drop and velocity in the water to sustain whitewater adjustment.
• Subsequently, a design group collected and analyzed additional river data and developed a $81,000 Preliminary Design.

2016

2022

2023

• Fundraising continues for construction of the river park amenities related to the EDA TTOR whitewater portion, such as river accessibility via stairs and a ramp. As of 2023, more than $7 million had been raised.
• December 2023 – A regional coalition led by Main Street Skowhegan secured an EDA Distressed Area Recompete Pilot Program Phase 1 Strategy Development Grant of $425,000 to create and connect people to good jobs which will incorporate outdoor recreation career pathways, including river and whitewater guiding.

2024

Spring 2024

• Out of more than 500 applicants, the Recompete regional coalition was invited by EDA as one of 22 national finalists to apply for up to $50 million in Phase 2 Implementation funding.
• As of this time frame, the town was seeking contractor qualifications for preconstruction services.
• Permitting delays centered around Brookfield Renewable, owners of the hydropower facility upriver from the river park site, the Federal Energy Regulatory Commission (FERC), Federal Emergency Management Agency (FEMA), and the Endangered Species Act. FERC regulates the hydropower industry and needs to sign off on any project that is within their project boundary of the hydropower dam. The whitewater project is projected to slightly impact the flood plain, and the Town was required to submit a CLOMR (Conditional Letter of Map Revision) to FEMA. In addition, U.S. Fish and Wildlife and U.S. Army Corps of Engineers changed the Endangered Species Act Section 7 Consultation from an informal review to a formal review.

Spring/Summer 2024

• The town hired a contractor for $18,755 for preconstruction services and to help work through in-river construction planning.
• $567,000 final design is underway with a Colorado-based whitewater architect and engineer finalizing design of Phase 1, including the adjustable wave feature and river access.

Fall 2024

• Anticipated federal and state permits in-hand.
• Final design and construction plans complete; final costs assessed.

Anticipated 2025, Spring/Summer

• Access road construction expected to begin; in-river work anticipated to start July 15, 2025.
• Because the town went through an EDA-approved, qualifications-based selection process for selecting its pre-construction services contractor, the town is able to engage the same contractor for construction, provided the cost estimate for construction is within 10% of the engineer’s opinion of cost.

Read the full report on Innovative Travel, Tourism, and Outdoor Recreation Awards, or additional case studies from: Colorado, Hawai‘i, Indiana, North Dakota, and West Virginia.

Disclaimer: This document was prepared by the National Governors Association using Federal funds under award ED22HDQ3070131 from the Economic Development Administration, U.S. Department of Commerce. The statements, findings, conclusions, and recommendations are those of the author(s) and do not necessarily reflect the views of the Economic Development Administration or the U.S. Department of Commerce.