Recreation Economy at USDA 

Economic Development Resources 

for Rural Communities

Together, America Prospers
Table of Contents

Background 3

Recreation Economy 4

Factors to Consider in Building the Recreation Economy 5

U.S. Forest Service 6

USDA Rural Development 7

National Institute for Food and Agriculture (NIFA) 

Land Grant Universities 8

How USDA Agencies Partner to 

Provide Recreation Economy Assistance 9

Highlighted Recreation Economy Resources at USDA 10

Additional Resources 13

Planning for a Recreation Economy 14

Business Development in The Recreation Economy Sector 18

Infrastructure Development to Support the Recreation Economy 21

Conservation/Easement Initiatives 22

Front cover: Ravens Rock at Coopers Rock State Park, W.Va.

Photo courtesy of Nick Brolin
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Background

USDA’s Forest Service (FS), Rural Development (RD), and the National Institute for Food and Agriculture (NIFA) have 

developed this resource guide for rural communities to identify resources that develop the recreation economy.

Growing and maintaining a healthy recreation sector that 

benefits residents over the long term requires balancing 

natural resource management, conservation efforts, 

infrastructure investment, business development and 

many other factors. It also requires active stakeholder 

engagement, a robust understanding of potential 

challenges and opportunities, collaboration among various 

levels of government and landowners and a strong plan 

for the region’s future. These efforts present unparalleled 

economic opportunities—to revitalize main street, 

preserve cultural heritage, support entrepreneurship and 

small business growth, reinvest in communities and more.

According to the National Forest System Trails 

Stewardship Act, understanding the economic value 

of national forests and the importance of strategic 

partnerships to efficiently use existing resources, 

directs the Secretary of Agriculture to increase the 

role of volunteers and partners in National Forest 

System trail management. The importance of strategic 

partnerships, coordination and tracking their impact is also 

highlighted in the revised 2012 Forest Service Planning 

Rule, the 2016 Outdoor Recreation Jobs and Economic 

Impact Act and the Native American Tourism and 

Improving Visitor Experience (NATIVE) Act.

The U.S. Department of Agriculture Forest Service 

November 2016 report, “Federal Outdoor Recreation 

Trends: Effects on Economic Opportunities” states that 

“outdoor recreation is an important driver of economic 

activity in rural communities”. The report shows that the 

number of U.S. participants in 50 nature-based outdoor 

recreation activities increased 7.1 percent between 1999-

2009. Activities like wildlife viewing and photographing 

nature are among the fastest growing, and off-highway 

vehicle driving realized a 34 percent increase in 

participation. The report forecasts that interest in outdoor 

recreation will continue over the next 30 years.

© Feverpitched | Dreamstime.com
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Recreation Economy

USDA has enrolled a record number of private working 

lands in conservation programs and implemented 

new strategies, such as landscape-scale efforts, to 

restore our forests and clean our water supply. Through 

economic development investments, USDA is also 

supporting the creation of private-sector jobs, protecting 

and rehabilitating our forests and wetlands and providing 

increased opportunities for outdoor recreation and enhanced 

tourism opportunities. America’s 193 million acres of 

public forests and grasslands supply drinking water for 60 

million Americans, support more than 200,000 full- and 

part-time jobs and contribute more than $13 billion to 

local communities each year. At the same time, new 

conservation markets are enhancing the value of our 

nation’s farmlands, while also supporting conservation 

practices, improving farmers’ bottom line and ensuring a 

cleaner planet for future generations.

Outdoor recreation is an economic powerhouse in the 

United States; each year generating $646 billion in 

consumer spending and 6.1 million direct jobs. In many 

rural places, hunting, fishing and wildlife watching have 

boosted rural tourism, spurred business growth and 

contributed to strong land-value gains. The brightest 

prospects, though, still lie ahead. Rural communities 

fortunate enough to have other amenities to complement 

their natural resource base are in the best position to reap 

new economic benefits from this booming industry.

The national forests and grasslands provide the greatest 

diversity of outdoor recreation opportunities in the world, 

connecting people with nature in an unmatched variety of 

settings and activities. Opportunities include hiking, biking, 

horseback riding, driving off-highway vehicles, picnicking, 

camping, hunting, fishing, navigating waterways, viewing 

wildlife and scenery and exploring historic places. Visitors 

can glide through powder at world-class alpine resorts and 

challenge themselves on primitive cross-country ski or 

snowmobile routes.

Outdoor recreation is fun—and so much more! It provides 

physical challenges, requires the development of life-long 

skills, provokes interest and inquiry and inspires wonder 

and awe of the natural world, creating the next generation 

of America’s public land stewards. It contributes greatly 

to the physical, mental and spiritual health of individuals, 

bonds family and friends, instills pride in heritage and 

provides economic benefits to communities, regions and 

the nation. Indeed, outdoor recreation is an essential part 

of our American culture. 

Trails and greenways create opportunities in construction 

and maintenance, rentals (for example, bicycles, kayaks 

and canoes), services (such as, shuttle buses and guided 

tours), historic preservation, restaurants and lodging. 

Today, community leaders and planners are including 

access to public lands as an important part of their overall 

strategy for economic revitalization to build and strengthen 

local businesses, as a healthful approach for community 

engagement, and to enhance quality of life.
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Factors to Consider in Building 

the Recreation Economy

Rural communities should consider the following factors 

when developing and implementing a regional plan that 

supports or incorporates the recreation economy:

• Connect local and regional communities and 

economic development planning and natural 

resource planning. A successful recreation economy 

requires the integration of policies and projects taking 

place both within forests and natural areas and in 

adjacent communities. Conducting a community inventory 

can help identify both natural and human resources 

available to support a local recreation economy.

• Identify critical issues. Public concerns, natural 

resource management challenges, assets, opportunities 

and threats should all be identified through collaborative 

stakeholder involvement.

• Meet legal and regulatory requirements. There are 

numerous federal, state and local laws and regulations 

regarding the use of natural resources. Notably, 

the 1969 National Environmental Policy Act which 

established the President’s Council on Environmental 

Quality. It requires environmental assessments and 

environmental impact statements for any project 

receiving federal funding.

• Implement best available practices. It is both a 

legal requirement and professional imperative to duly 

consider the best available science and expertise in 

planning and implementation.

• Incorporate “SMART” goals and strategies.

A SMART goal is one that is specific, measurable, 

assignable, realistic and time-based. The clear objectives 

and direction laid out by SMART goals and strategies are 

most likely to result in meaningful progress.

• Be inclusive. Any economic or community development 

plan should involve actions that gather stakeholders, 

government agencies, educational institutions, 

community-based organizations, natural resource 

managers, environmental and other nonprofit groups 

and the private sector.

• Be clearly assigned. Assign the plan’s recommended 

actions to specific responsible parties and hold those 

parties accountable for implementing their items. 

Responsible parties should periodically evaluate and 

report to the public and relevant leadership on progress 

and accomplishments to date, factors affecting the 

plan’s implementation and changes pending or made to 

the approved plan.

• Be responsibly budgeted. Specify plan implementation 

costs and identify funding sources. In this way the plan 

is a tool to prepare and justify annual budgets, allocate 

budgets, guide annual work priorities and facilitate the 

scheduling and sequencing of projects.

Some communities might want to consider applying the 

“Triple Bottom Line” (TBL) approach to evaluate projects 

proposed for the local recreation economy. TBL refers to 

reviewing the economic impacts, environmental impacts 

and social impacts of a company or a project. The goal is 

to earn financial profits but also improves people’s lives 

and the planet. The TBL approach to business planning 

and financing asks the user to consider a range of factors 

on how to conduct and grow successful businesses and 

add value to their surrounding community. It may also 

help identify niche businesses that might be overlooked 

when profit is the only consideration.

Some examples of issues to consider, using TBL 

standards, when identifying a new corporate partner or 

a grant or loan candidate in a recreation economy are:

• Numbers and the impacts of the end users

• How will the impacts be mitigated to support long-term 

sustainability of the environment?

• Benefits for the local community and businesses

• Working with socially- and 

environmentally-responsible suppliers

• Whether the business will hire local employees 

(perhaps those with disabilities or other underemployed 

groups) and pay employees a living wage

• How will day-to-day operations impact the natural environ 

• Will the business or project use a portion of its income 

(or capacity) to invest back into the community and/or 

the natural or cultural resources?

• Will the project enhance community involvement 

and engagement?
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U.S. Forest Service

The U.S. Forest Service’s (FS) mission is to sustain the 

health, diversity and productivity of the nation’s forests 

and grasslands to meet the needs of present and future 

generations. FS is a multi-faceted agency that manages 

and protects 154 national forests and 20 grasslands in 43 

states and Puerto Rico. FS consists of an elite wild land 

firefighting team, the world’s largest forestry research 

organization and experts who provide technical and 

financial help to a variety of stakeholders to help protect 

and manage privately owned forests and associated range 

and watershed lands.

Headquarters and Agency Leadership

The Washington office is led by the chief, who reports to 

the undersecretary for natural resources and environment. 

The chief’s staff provides broad policy and direction for 

the agency, works with the president’s administration 

to develop a budget to submit to Congress, provides 

information to Congress on accomplishments and 

monitors the activities of the agency.

Regions and Regional Foresters

FS has nine geographic regions that encompass broad 

areas. A regional forester oversees each region. Regional 

office staff coordinate activities between national forests 

and grasslands, monitor activities on those lands to 

ensure quality operations, provide guidance for forest 

plans and allocate budgets to the forests.

National Forests/Grasslands and 

Forest Supervisors

A forest supervisor directs the work of district rangers on 

an individual national forest/grassland, and reports to the 

regional forester. Forest supervisors are responsible for 

coordinating activities between districts, allocating the 

budget and providing technical support to each district. 

Each national forest has several ranger districts.

Ranger districts and District Rangers

FS consists of more than 600 ranger districts that are 

each staffed with 10 to 100 people depending on size. 

Districts vary in size from 50,000 acres to more than 1 

million acres. A district ranger leads activities at the district 

level and reports to the forest supervisor. The district 

ranger directs many on-the-ground activities, including trail 

construction and maintenance, operation of campgrounds 

and management of vegetation and wildlife habitat.

District Rangers often have the closest 

connection to local communities and 

on-the-ground activities.

How does FS interact with the public?

FS interacts with the public through public 

meetings and workshops, public comment periods, 

targeted outreach efforts to federally-recognized 

tribes, youth, new audiences, permittees and 

neighboring landowners and coordination with 

state governments and other entities. The local FS 

office also provides guidance on special use permit 

authorization (for a permit, lease or easement), both 

for private and commercial purposes.

FS Data Available to Assist with 

Recreation Planning:

The FS Geodata Clearinghouse provides a 

mapping data set on natural resources and local 

user use in any region of the country.

The FS National Visitor Use Monitoring Program: 

The NVUM program produces estimates of 

the volume of recreation visitation to National 

Forests and Grasslands and produces descriptive 

information about that visitation, including activity 

participation, demographics, visit duration, measures 

of satisfaction, and trip spending connected to the 

visit. The information is updated from 2005.

How to contact FS Staff?

Visit the Forest Service’s National website to find 

FS staff in the closest ranger district. All national 

forests/grasslands also have their own website, with a 

list of key staff and contacts. Another possible avenue 

for collaboration is the Office of Cooperative Forestry 

(within the branch of State and Private Forestry) 

which works with states, private landowners and 

other partners to promote healthy forests and livable 

communities throughout the United States. For more 

information, and regional offices and contacts, visit 

the Cooperative Forestry office.
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USDA Rural Development

Rural Development’s (RD) mission is to increase 

economic opportunity and improve the quality of life for 

all rural Americans. That mission touches every facet of 

rural America throughout the country. RD has more than 

40 loan, grant and technical assistance programs to create 

opportunities in housing, business, and infrastructure. 

RD serves as a catalyst to improve conditions in rural 

America by increasing the flow of capital through leveraged 

partnerships that help make prosperity and better living a 

reality in rural America.

Rural Housing Service (RHS)

The Rural Housing Service offers a variety of programs 

to build or improve housing and essential community 

facilities in rural areas. We offer loans, grants and loan 

guarantees for single- and multi-family housing, child 

care centers, fire and police stations, hospitals, libraries, 

nursing homes, schools, first responder vehicles and 

equipment, housing for farm laborers and much more. 

RHS also provides technical assistance loans and 

grants in partnership with nonprofit organizations, Native 

American and Alaskan native tribes, state and federal 

government agencies and local communities.

Rural Business-Cooperative Service (RBS)

The Rural Business-Cooperative Service offers 

programs to support business development and job 

training opportunities for rural residents. RBS programs 

help provide the capital, technical support, educational 

opportunities and entrepreneurial skills that can help rural 

residents start and grow businesses or access jobs in 

agricultural markets and in the bio-based economy.

Rural Utilities Service (RUS)

The Rural Utilities Service administers programs 

that provide critical infrastructure or infrastructure 

improvements to rural communities, including water and 

waste treatment, electric power and telecommunications 

services. All of these services play a critical role in helping 

to expand economic opportunities and improve the quality 

of life for rural residents.

Rural Development Innovation Center (IC)

The Innovation Center (IC) explores new and better ways 

of delivering programs to best serve rural America. The 

center is equipped with specialized expertise across its 

three divisions of data analytics, regulations management 

and partnerships that work together to provide tools, 

services and inspiration to drive data-driven, forwardthinking, action across Rural Development.

How to contact RD staff?

RD delivers programs through a network of more than 

400 area offices and 47 state offices, a customer service 

center and finance office in St. Louis, Missouri, and its 

headquarters in Washington, D.C. Visit RD’s Contact Us

section of the website for national, state and local contacts. 

At the state level, RD staff may provide assistance with 

planning, financing and training projects. Innovation Center 

staff can also provide assistance with planning, financing 

and training resources for project development.
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National Institute for Food and Agriculture (NIFA) 

Land Grant Universities

The National Institute for Food and Agriculture (NIFA), 

part of USDA’s research, education and economics 

mission area, uses an integrated approach to ensure 

scientific discoveries reach the people who can put 

them to use. Through partnerships with the Land-Grant 

University System and government, private and nonprofit 

organizations, NIFA delivers research, education and 

extension programs that provide solutions to those who 

need them.

The 1862 Morrill Act created the Land-Grant University 

System to provide individuals in every state opportunities 

to receive education in agriculture, science, military 

science and engineering. Land-grant universities provide 

affordable educational opportunities for those lacking 

extensive financial resources.

Each of the 50 States is home to a land-grant university. 

The District of Columbia and six U.S. territories also have 

land-grant institutions. The 1890 Morrill Act extended the 

Land-Grant System to include 18 separate land-grant 

institutions for African-American students. Further, in 1994, 

29 tribal colleges and universities became land-grant 

institutions. This number has since expanded to 32. Access 

NIFA’s map of all land-grant colleges and universities.

Cooperative Extension System

The 1914 Smith-Lever Act expanded the mission of the 

Land-Grant University System, creating the Cooperative 

Extension System. The Extension System has broad 

resources to help with planning associated with the 

recreational economy. A national network of extension 

professionals has worked to bring resources to a single 

website for easy cross-state sharing. Visit the online 

network, National Extension Tourism (NET), for a 

multitude of resources.

Regional Rural Development Centers

There are four Regional Rural Development 

Centers that link the important work done at 

extension centers within their respective 12-13 

state regions. These centers help connect initiatives 

to expertise within the region to provide specific 

technical assistance. For example, extension 

staff throughout the nation coordinate with 

USDA Rural Development regarding broadband, 

community capacity building and regional economic 

development planning with communities across 

the nation.

A few examples of the extension’s work with the 

recreation economy are below. Communities 

considering economic development options may 

find additional resources by reaching out to their 

local Extension Service and/or their respective 

regional Rural Development centers for help.

• Vermont Tourism Research Center,

the University of Vermont

• West Virginia University Extension 

Service Rural Tourism Development

• North Carolina State University 

Tourism Extension Program

• University of Tennessee Extension, Center for 

Profitable Agriculture Agritourism Program

• University of California Cooperative 

Extension Agritourism Conversations

• Oregon State Extension Tourism

• University of Minnesota Tourism Center

• Michigan State University Tourism Extension
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How USDA Agencies Partner to Provide 

Recreation Economy Assistance

In order to sustainably manage the National Forest System, while bringing economic opportunities to forest-adjacent 

communities, FS, RD and NIFA/land-grant universities have many opportunities to partner. Here are some examples:

Planning/Partnership

In 2012, FS updated its land management planning 

requirements with a new planning rule. Because of the 

importance of sustainably managing the National Forest 

System with the help of the public and other stakeholders, 

this rule emphasizes FS’s responsibility to engage with 

the public and to work more closely with state, local and 

tribal governments when national forest managers amend 

or revise their land management plans. Economic impact 

analysis and planning is an important component of the 

planning process. Since RD, NIFA and land-grant universities 

have the expertise and vested interest in economic 

development, the agencies can coordinate and collaborate 

at various stages of planning and implementation processes. 

For example, planning efforts that at the outset involve land 

managers, economic development authorities, RD, NIFA, 

land-grant universities and Cooperative Extension may also 

bring technical assistance to the table to support coordination 

and implementation.

Financing for Infrastructure and 

Business Development

RD has a loan portfolio of about $225 billion that is 

financing infrastructure and business development 

projects. RD has staff in every state to provide grants, 

loans and loan guarantees that help rural communities 

become stronger and more vibrant. RD is an agency that 

continues to create job opportunities in rural America 

through investments in rural businesses and cooperatives. 

At the same time, RD provides loans, grants and loan 

guarantees to support reliable and necessary services 

such as water, energy, housing, broadband, schools and 

hospitals. Collectively, these investments support families 

that call rural areas home. RD is focused on leveraging 

the strengths of rural areas, building new markets to 

increase regional competitiveness and continuing to 

expand investment opportunities that create prosperous, 

sustainable communities. When rural America thrives, all 

of America thrives.
Highlighted Recreation Economy 

Resources at USDA

USDA programs can support technical 

assistance, infrastructure, business development 

and conservation / easement projects.
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Program Agency Eligible Applicants Authorized Purposes Typical Funding Amount

Community 

Facilities Guaranteed 

Loan Program

RHS

Lenders: Banks and 

credit unions

Borrowers: Public bodies, 

community-based nonprofit 

corporations, Federally 

recognized Tribes.

Improve, develop, or finance 

essential community facilities 

for rural communities in rural 

areas and cities and towns of 

fewer than 50,000.

Example: This program can 

be used to develop museums, 

public restrooms, and multi-use 

trails in recreation areas.

$100,000-$5 million

Water and Waste 

Loans and Grants RUS

State and local government 

entities, private nonprofits, 

Federally recognized Tribes.

Build, repair and improve 

public water systems and 

waste collection and treatment 

systems in rural areas and cities 

and towns of fewer than 10,000.

Example: This program has 

been used in a historic mining 

town and tourist destination to 

build a wastewater treatment 

plan and new water systems.

Long-term, low-interest loans.

Grants may be available to keep 

user costs reasonable.

Rural Business 

Development Grants RBS

Towns, state agencies, 

nonprofit corporations, 

authorities, Federally 

recognized Tribes, rural 

cooperatives.

Targeted technical assistance, 

training and other activities 

leading to the development 

or expansion of small and 

emerging private businesses 

in rural areas. Feasibility 

studies or economic impact 

studies for a recreation activity 

may be eligible.

Example: This program can 

help small towns develop an 

economic impact analysis to 

evaluate the area’s capacity 

to become a recreational 

destination.

$10,000-$500,000

Rural Cooperative 

Development Grant RBS

Nonprofit organizations, 

institutions of higher 

learning.

Provide support to centers 

for cooperatives. Eligible 

work plans can include trail 

development/maintenance, 

feasibility studies, marketing, 

lodging development, 

business development, 

strategic planning.

Example: Nonprofit 

organizations can use this 

program to develop a business 

plan for a cooperative focused 

on recreational activities such 

as rock climbing, guided 

tours, mountain biking, skiing, 

and hiking.

Maximum-$200,000

Community Connect 

Grants RUS

Most state and local 

governments, Federally 

recognized Tribes, 

nonprofits, for-profit 

corporations.

Helps fund broadband 

deployment into rural 

communities as anchor sites 

for rural communities. 

Example: Rural libraries and 

tribal computing centers can 

use this program to provide 

internet service and computer 

access to their residents.

Minimum: $50,000

Maximum: $1 million

Amounts are published in 

Notices of Funding Availability 

and may vary.
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Program Agency Eligible Applicants Authorized Purposes Typical Funding Amount

Telecommunications 

Infrastructure Loans 

and Loan Guarantees

RUS

State and local government 

entities, Federally 

recognized Tribes, 

nonprofits, for-profit 

businesses.

Financing to construct, 

maintain, improve and expand 

telephone service and 

broadband in rural areas.

Example: Rural broadband 

providers can use this program 

to expand services into remote 

and underserved areas.

Refer to the rules for loan and 

terms and conditions.

ReConnect Program 

Grants and Loans RUS

State and local government 

entities, Federally 

recognized Tribes, 

nonprofits, for-profit 

businesses.

Financing to construct, 

maintain, improve and expand 

telephone service and 

broadband in rural areas.

Example: Broadband 

e-Connectivity can help 

individuals access wireless 

internet while participating 

in outdoor activities like 

hiking a trail or touring a rural 

community. 

Availability may vary for 100 

percent loan, 50 percent 

loan / 50 percent grant, or 

100 percent grant. Given the 

varying closing dates for each 

funding type, applicants will 

be limited to ONE application 

for this Funding Opportunity 

Announcement.

Business and 

Industry Guaranteed 

Loans

RBS

Lenders: Banks and 

credit unions

Borrowers: For-profit 

businesses, nonprofits, 

cooperatives, Federally 

recognized Tribes, public 

bodies, individuals.

Business conversion, 

enlargement, repair, 

modernization or development; 

purchase and development of 

land, easements, rights-of-way, 

buildings, or facilities.

Example: Lodges and hotels 

can use this program to 

upgrade facilities and improve 

visitor experience.

$1 million-$25 million

Rural Economic 

Development Loans 

and Grants

RBS

Former RUS borrowers, 

nonprofit utilities, current 

RUS borrowers.

Funds business incubators, 

community development 

assistance to nonprofits and 

public bodies, start-up venture 

costs and business expansion.

Example: This program can 

provide zero percent loans 

to utility companies that can 

be relent to businesses to 

support creating and retaining 

employment.

Grants: Up to $300,000

Loans: Up to $1 million

Rural

Microentrepreneur 

Assistance Program

RBS

Organizations eligible to 

become Microenterprise 

Development 

Organizations including 

nonprofits, Federally 

recognized Tribes, higher 

education institutions

Microloans for microenterprise 

startups and growth through 

rural microloan revolving 

funds.

Example: This program 

can provide loans to small 

rural businesses, such as 

restaurants, dry cleaners, or 

automotive repair shops.

$50,000-$500,000

Intermediary 

Relending Program RBS

Nonprofits, cooperatives, 

Federally recognized 

Tribes, public agencies

Provides 1 percent low-interest 

loans to local intermediaries 

that re-lend to businesses and 

for community development 

projects in rural communities.

Example: This program 

can provide funding to 

intermediary providers who 

relend the funds in rural 

communities.

Up to $2 million for the first 

financing; $1 million at a time 

thereafter; total aggregate debt 

may not exceed $15 million.
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Additional Resources

• U.S. Forest Service, the Northern Border Regional 

Commission and the Environmental Protection Agency’s 

Recreation Economy for Rural Economies guide. Provides 

planning assistance to communities interested in boosting their 

economies by capitalizing on outdoor recreation opportunities.

• e-Connectivity @ USDA Broadband Resources for Rural 

America -This toolkit presents USDA resources that support 

e-Connectivity and aims to help customers navigate the 

agencies within our Department to find the opportunity that 

best fulfills their need. From grants and loans, to partnerships 

and in-person consultations, USDA can support a wide 

variety of project types for a diversity of customers.

• The U.S. Forest Service Tribal Partnership Resource Guide.

• Collaborating for Prosperity with American Indians and 

Alaska Natives is a guide by USDA Rural Development’s 

Innovation Center featuring numerous programs available 

to tribes, tribal families, children, and communities. 

• Listing of Rural Development’s Summary of Major Programs

• A regional community planning curriculum, developed in 

partnership with Rural Development and the Southern 

Rural Development Center at Mississippi State University, 

is also available.

• Alaska Community Tourism Handbook

• U.S. Forest Service Forest Legacy Program

• Environmental Protection Agency: Environmental Projects 

for Rural Economies Grant is a planning assistance 

program to help communities develop strategies and an 

action plan to revitalize their Main Streets through outdoor 

recreation - https://www.epa.gov/smartgrowth/recreationeconomy-rural-communities

• Environmental Protection Agency: Local Foods, Local 

Places helps cities and towns across the country protect 

the environment and human health by engaging with 

local partners to reinvest in existing neighborhoods as 

they develop local food systems. In 2019, the program 

is sponsored by the U.S. Department of Agriculture 

(USDA), EPA, and the Northern Border Regional 

Commission.: Local Foods Local Places Program

• Headwaters Economics Profile System

• Federal Interagency Council on Outdoor Recreation: 

Jobs and Income Report

• Food and Nutrition Service Grants Information
- 14 -

Planning for a Recreation Economy

Success Stories

Monogahela National 

Forest (MNF) Shared 

Regional Economic Vision

Using the principles of ecotourism, the Monongahela National Forest (MNF), in 

partnership with West Virginia University and RD, is bringing diverse stakeholders 

together to create a shared recreation vision for each county and the greater region 

surrounding the MNF. In 2018, project partners established a steering committee, 

conducted visioning and action planning meetings in 11 gateway communities, 

developed a Mon Forest Towns partnership agreement, developed an ARC GIS online 

recreation economies asset map and created a regional identity They furthermore 

conducted community assessments, trained Certified Interpretive Guides, completed 

an application to become an International Mountain Bike Association Ride Center, and 

submitted funding proposals for mountain bike trail development and maintenance and 

gateway community signage. Additional capacity building and project implementation 

funding is being requested to sustain the project in addition to developing collaborative 

alliances with the Wayne National Forest and George Washington / Jefferson National 

Forest to support recreation economy development in Central Appalachia.

Oakridge, Oregon—

Transition from Timber 

Empire to Mountain 

Bike Capital

Historically dependent on the timber industry, the communities of Oakridge and Westfir 

identified the increasing popularity of its trails by mountain bikers as a saving grace 

to their economies when approximately 1,600 jobs were lost following the closure of 

local sawmills. Through partnerships with the Forest Service, trail groups, bicyclists, 

hikers and equestrians and the community at large, the Oakridge-Westfir Community 

Trails Plan was developed in 2008. USDA Rural Development supported regional 

infrastructure and business development through its Water and Waste Disposal 

Loan Program, Business and Industry Guaranteed Loan Program and Intermediary 

Relending Program. The community has successfully marketed the location to 

a specific type of recreation, helping small businesses supporting this industry 

thrive, as well as attracting an increasing number of new residents and tourists. 

For example, one major mountain bike event alone generated more than $1 million 

in visitor spending. In 2011, the International Mountain Bicycling Association 

designated Oakridge as one of its first Silver-Level Ride Centers; Oakridge achieved 

gold status in 2015. Through local leadership and partnerships with volunteer 

groups, the region is planning to keep stewarding existing trails and connecting the 

trail systems with nearby recreation areas.

Rural Jobs Accelerator in 

Southwest Virginia

The Appalachian Spring initiative in Southwest Virginia (SWVA) established two 

goals to impact the region: to brand SWVA as an international outdoor recreation 

destination and create an outdoor recreation industry. Through this 3-year project, 

the region has developed stakeholder groups committed to making improvements in 

eight key outdoor recreation anchor areas, developed plans to connect communities 

to their natural assets, developed a regional destination brand and supported more 

than 130 entrepreneurs. Appalachian Spring worked with eight communities to 

revitalize their downtowns into outdoor recreation gateways. Partnerships with local 

planning districts, state and federal agencies, individual communities and other 

nonprofits have been essential to its success.
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Regional Food Production in 

Forest County, Pennsylvania

Forest County, Pennsylvania, received technical assistance through EPA’s 

Local Food Local Places in 2015 to develop a plan to renovate the Marienville Depot 

and make it a regional trail hub with a micro-retail business incubator and a rail-totrail connected to the Marienville Area Library. Since then, with a grant from Lumber 

Heritage, the community completed a conceptual drawing of the trail hub and has 

applied for grants to construct a walking trail, trail connector and a parking lot and 

station. Jenks Township and other community members have committed financial and 

in-kind contributions to the project. The county is developing a façade improvement 

grant program for downtown Tionesta, and a community kitchen at the Forest Folk 

School. The rail corridor was purchased by private developer Headwaters Group of 

Dubois, promising additional economic development opportunities. For a full list of 

awarded projects please click here.

Farmers Market Promotion 

Program in Montana

Alternative Energy Resources Organization (AERO) in Helena, Montana, which 

received $100,000 to enhance the Abundant Montana Directory listings and their 

accessibility, developed a public calendar system for local foo d events, created a 

local food marketing campaign, researched and collaborated on agritourism, and 

developed an online agritourism resource. For a list of similar awarded projects 

please click here.

Increasing Community 

Livability Through 

Recreation and 

Economic Development

The Federal Lands Livability Initiative was launched in 2013 to improve the 

livability of gateway communities—places adjacent to public lands that attract 

visitors and residents looking for unique recreational and cultural experiences. 

The Conservation Fund, a national nonprofit organization focused on ensuring 

that conservation works for America’s communities, collaborated with the Federal 

Lands Livability Workgroup, comprised of the Federal Highway Administration, 

the U.S. Fish and Wildlife Service, the National Park Service and other land 

management agencies to engage four pilot communities in Colorado, Michigan, 

Oregon and South Carolina. In Sweet Home, Oregon, recommendations on how 

to strengthen livability led to several action plans and on-the-ground results. The 

community expanded the existing bus transit system used by workers, college 

students and senior citizens to provide weekend transit service from the city to 

summer recreation areas. In addition, the Forest Service and more than 30 private 

and public groups signed a declaration of cooperation to create the South Santiam 

Community Forest Corridor, a community recreation destination with a network of 

trails as well as maintain the working forest landscape. The group is also working 

with local tribes to protect the privately-owned Cascadia Cave that has early Native 

American wall paintings and has been used as a gathering place for thousands of 

years. The region is also seeking to meet the needs of all residents and visitors 

through additional economic opportunities to address the community’s high rate of 

under-resourced people. Ten percent of Sweet Home’s population relies on social 

services, and a sizable number of youth are homeless.
- 16 -

Planning for a Recreation Economy

Success Stories

Regional Planning—

Northern Neck, Virginia

Through a regional planning effort, Eastern Virginia’s Northern Neck, an Economic 

Development Administration-designated Economic Development District, developed 

a 5-year regional economic development plan. Building entrepreneurship and 

sustainable tourism, improving infrastructure and jobs skills were the main goals 

identified in the plan. Since then, through funding obtained from USDA RD’s 

Rural Business Development Grant (RBDG), the region has established the VA 

Watermen Heritage Tour Program to assist watermen and women improve their 

entrepreneurial skills and encourage business development. The Northern Neck 

Artisan Trail was also established in partnership with the Artisan Center of Virginia 

to form strategic alliances with artisans, venues, galleries and retailers across the 

state. They also seek to connect points of interest, restaurants and accommodation 

locations in the related communities to boost regional tourism. Through USDA and 

other partner funding, the region is implementing downtown revitalization projects in 

Montross and Colonia Beach to create cultural hubs in downtown areas. Since 2013, 

the Northern Neck region has leveraged more than $17 million in federal, state and 

private resources to implement its vision, and has seen a 2.7 percent increase in 

tourism-related employment.

Partnering with Higher 

Education to Develop 

Certification 

Program—Hawaii 

Ecotourism Association

To promote sustainable tourism, the Hawaii Ecotourism Association (HEA), a 

nonprofit, collaborated with the University of Hawaii at Manoa to develop a sustainable 

tour certification program. In 2016, the Hawaii Tourism Authority recognized HEA’s 

success and funded efforts to triple the number of operators in the certification 

program. HEA began including tours of agricultural operations in the program 

because agritourism is important across the state to help agriculture producers 

increase the profitability of their operations. Additionally, the International Union for the 

Conservation of Nature (IUCN) is considering ways to improve ecotourism standards 

to help ensure sustainability as a long-term outcome. Alaska and Hawaii are the only 

states in the U.S. with certification programs for businesses in the tourism sector.

Green Mountain, Vermont 

National Forest

When the Green Mountain National Forest was revising its Forest Plan in 2002, the 

University of Vermont Extension assisted with the planning process by facilitating 

opportunities for public input. To ground the discussions in science, a series of 

meetings on different topics were organized where leading scientists presented the 

latest research and addressed questions from the public. The topics of wildlife, acid 

deposition and silviculture were selected because they were especially controversial 

aspects of the Forest Plan. Research on the impacts of the public meetings indicate 

that participants gained a better understanding of the subject matter discussed and 

some shifts in perspective occurred. Direct interaction with scientists appeared to 

be a key component of participant learning. Given the need for credible science 

in policy and planning processes, this research has important implications for 

management of stakeholder engagement. (More information is available in the 

journal article: Chase, L.C., K. Norris, and C. Ginger. 2008. Does science matter? 

Resource planning in the Green Mountain National Forest. Society and Natural 

Resources 21(4):345-353.)
- 17 -

Local, State, Federal 

Partnerships in Cherokee 

National Forest, Tennessee

Surrounded by 360 degrees of mountain views, Unicoi County, Tennessee is 

known as the “Valley Beautiful.” It is host to the Cherokee National Forest, the 

Appalachian Trail and whitewater paddling. Not too long ago, the community was 

divided about the possibility of additional conservation of the largest unprotected 

tract of land in the Southern Appalachians; 9,800 acres of scenic wilderness known 

as Rocky Fork. With the assistance of the Conservation Fund and its Balancing 

Nature and Commerce training and technical assistance, local leaders embraced 

a new course, realizing how Rocky Fork’s natural assets could lead to additional 

economic opportunities by establishing the region as a nature-based recreation and 

tourism destination. Along the way, the community and the Cherokee National Forest 

transformed their relationship, recognizing their shared interest in cultivating success 

for the region. The results included FS’s action to work with the county on revitalizing 

a popular mountain overlook, improving access to recreational facilities and natural 

features and sponsoring community events including running and mountain bike 

races on public lands. Simultaneously, the county encouraged entrepreneurism, 

with early successes including a farmer’s market, a welcome center that houses 

the Tanasi Artisan Center where local artists sell their wares and a community 

kitchen for aspiring businesses. In October 2012, Tennessee Governor Bill Haslem 

and Senator Lamar Alexander announced that the final 2,000 acres of the Rocky 

Fork property would become Tennessee’s newest state park, further coupling 

conservation with additional economic opportunity for the community.

Western Juniper Alliance 

in Oregon

Over the last 100 years, a lack of management has turned the native Western 

Juniper into an aggressive invasive that threatens the health and well-being of 

Oregon’s rangelands and the communities and wildlife that depend on them. 

From an ecological perspective, there is strong agreement that this invasive tree 

needs to be removed from public and private lands. But harvesting Juniper also 

has tremendous potential to create jobs and provide new economic opportunities 

to the timber and wood products industries throughout the state. In July 2013, 

Oregon Governor John Kitzhaber launched the Western Juniper Alliance (WJA), a 

collaborative effort managed by Sustainable Northwest. WJA has coordinated with 

over 50 government partners, business leaders and other organizations to create 

jobs in Juniper supply and market chains in rural communities. With the help of RD 

business grants, this collaborative effort has turned a challenge into an opportunity 

for restoration and economic growth. USDA funding supported initial founding and 

organizing, market and supply chain development, product testing and network 

coordination. WJA now sustains restoration, manufacturing and retail businesses 

employing more than 70 full time and seasonal staff. By using Juniper, these 

businesses are improving grazing conditions, discouraging the spread of invasive 

weeds, increasing water supplies, decreasing wildfire risks and restoring habitat for 

sensitive species, all while creating local jobs.
- 18 -

Business Development in 

The Recreation Economy Sector

Success Stories

Motivating Entrepreneurship 

Through Contest “Get On 

The Trail” Pennsylvania

Motivating Entrepreneurship Through Contest “Get On The Trail” Pennsylvania

In order to encourage and accelerate small business opportunities for business 

owners and entrepreneurs, the Oil Region Alliance (ORA) of Venango County, 

kicked off a “Get on the Trail Business Plan Contest” in May 2015. Following the kick 

off, ORA provided two training seminars and coordinated a “Best Business Plan” 

contest in partnership with Clarion University. Prize-winners received cash awards 

and marketing technical assistance through this initiative. Within the first year of 

operation, a $55,000 investment to implement this project leveraged $205,000 in 

private investment, $16,000 in public investment, created seven jobs, retained 18 

jobs and assisted nine businesses.

A Region Inventing Itself—

Saint-Raymond, Quebec

Once dominated by the timber industry, the Saint-Raymond region of Quebec is 

busy reinventing itself as an adventure and ecotourism-based economy—but on 

its own terms. Founded in 2002, Vallée-Bras-du-Nord is a cooperative of land 

owners (providing rights of access), local businesses (offering tourism services), 

and workers (employed in the tourism industry). All three of the co-op’s membership 

classes share a desire for sound management and quality development as the 

region creates the infrastructure for mountain biking, hiking, snowshoeing, canoeing, 

kayaking, backcountry skiing and camping. The region is one hour north of Quebec 

City, and about five hours from Boston.

More than $5 million has been invested in building trails, developing hospitality 

infrastructure, acquiring equipment and staging events. In the process of building 

infrastructure, the co-op has put community members back to work. Every year they 

hire a dozen at-risk youth and offer them a few months of work in what the co-op 

calls “a different kind of school”—the great outdoors. The youth build and maintain 

the trail system. Co-op members believe this approach helps the participants 

adapt to adverse conditions, develop patience, tolerance, discipline, teamwork, 

determination and perseverance.

Using Technology to 

Promote Tourism—

Washington State 

Insider App

Using Technology to Promote Tourism—Washington State Insider App 

The power of the road trip is alive and well, thanks to a group of students and new 

technology from a mobile marketing entrepreneur in Washington State. Calling it 

“ProjectWA,” this group of eighth-graders designed a way to reward people for seeking 

out and sharing information on historic places around the state. The Washington State 

Insider app created by the Lopez Island students offers discounted admission to the 

Washington State History Museum as its user reward. The app went live in June 

2016 with nearly 100 sites. Within a month, it had been downloaded nearly 2,000 

times, generating significant media attention across the state for both ProjectWA 

and the off-the-beaten-path rural sites it was designed to promote.
- 19 -

America’s First and Only 

Skier-Owned Mountain—

Mad River Glen, Vermont

Mad River Glen became one of Vermont’s first major ski areas back in 1948 when 

a single chair carried skiers to the top of General Stark Mountain. Ranked by Ski 

Magazine as the most challenging terrain in the east, its motto boasts, “Ski it if you 

can.” In 1995, skiers came together to remain independent and preserve a brand 

of skiing that exists nowhere else, forming the Mad River Glen Cooperative to 

preserve low skier density, the natural terrain and forests and the friendly community 

atmosphere. About 1,800 skiers are member-owners of the Mad River Glen 

Cooperative. Nearly $4 million has been invested in capital projects, with another 

$500,000 planned for the coming five years.

Promoting Horizontal 

Linkages to Support 

Tourism—Virginia

The Artisans Center of Virginia and ‘Round the Mountain, Southwest Virginia’s 

Artisan Network, are using the internet to support the region’s vibrant artisan 

community, local shops, and food producers found along its scenic roads and 

mountain vistas. According to a benchmark 2016 study, artisan visitor spending 

totaled more than $250 million, with the average visitor spending $260 per-person, 

per trip. In the same study, the Virginia Tourism Corporation indicated nearly 700,000 

travelers had visited Virginia’s artisan attractions and businesses. Together, the 

Artisans Center and ‘Round the Mountain are coordinating efforts to connect, brand, 

promote, and celebrate these artisan assets - both online, and through workshops, 

training, and exhibits. A similar initiative—the Crooked Road—was created in 

support of the Heritage Music Trail, a network that promotes old-time string bands, a 

cappella gospel, blues, and bluegrass musicians across Southwest Virginia.

Analyzing The Economic 

Value Of Restoration 

Activities—Central Idaho

Using USDA Rural Development funds, Salmon Valley Stewardship (SVS) 

conducted an analysis of the economic value of restoration activities in Central 

Idaho. The assessment encompassed 137 projects undertaken between 2008 and 

2013 in the Upper Salmon River Region, along with 14 conservation agreements on 

working ranches in Custer and Lemhi counties. The study found that local workers 

and companies earned more than $17.2 million of $39.6 million spent on restoration 

and mining reclamation. It also concluded that, on average, restoration activities 

directly supported 47 jobs, and that regional industry realized an average annual 

growth of about 14 percent.

Using initial findings from the study, SVC produced a form to track economic 

impacts of the emerging restoration and stewardship segments. This form is used 

by federal and state agencies, county governments, and nonprofit organizations. 

The Idaho Departments of Labor and Commerce have committed to analyzing 

the data and producing annual reports. SVS also created a restoration services 

directory to help raise awareness of emerging restoration-sector businesses in the 

region. Finally, the firm created a guide describing how the U.S. Forest Service and 

Bureau of Land Management impact business interests tied to public land access, 

sharing case studies of successful examples from other regions, and offering initial 

recommendations for citizen involvement.
- 20 -
- 21 -

Infrastructure Development to 

Support the Recreation Economy

Success Stories

Local Partnerships 

Driving Recreation 

Success—Marquette 

Michigan

Marquette, Michigan, in Marquette County is on the southern shores of Lake 

Superior. Historically known for mining and shipping iron ore, today Marquette is 

flourishing as one of Michigan’s premier recreation-based economies. Marquette 

was listed as one of CBS’s 10 best places to retire in 2012, one of the 10 top 

mountain bike towns in the U.S. according to the Active Times in 2013, and the 

8th best small city (out of 1,300) in America according to Nerdwallet in 2015. With 

10 miles of paved trail, Marquette received a silver Bicycle Friendly Community Award 

from the League of American Bicyclists in 2014. Besides its natural beauty, water-front 

location and four distinct seasons, which maximize year-round appeal, the area has 

benefited from a core group of knowledgeable, creative, dedicated and passionate 

advocates who executed a clear vision for their area. The formation of a recreation 

authority to manage the Iron Ore Heritage Trail, and ongoing collaboration with Travel 

Marquette, has been critical. Visually distinctive signage along the trail describes 

the mining heritage of the area and adds unique character to the user experience, 

contributing to a sense of place among residents and visitors alike. Building 

relationships with local people and businesses, and actively seeking and showcasing 

ecotourism destinations, have also contributed to Marquette’s continuing success.

Diversifying Economy 

Through Tourism—Town 

of Thomas, West Virginia

The remote, rural town of Thomas in West Virginia, a coal-dependent economy 

since the 1880s, is using tourism to diversify its economy. New Historic Thomas 

was formed as a nonprofit community group to revitalize the town by preserving 

its unique history, cultural heritage and resources. The nonprofit began to focus 

on developing cultural amenities that would complement outdoor recreation 

opportunities. The cornerstone of the recreational trail opportunities adjacent to 

Thomas is the Blackwater Canyon Trail. A partnership with the U.S. Forest Service’s 

Cheat-Potomac District was established to further development the recreational use 

of the former rail grade along the Blackwater River. FS is continuing to work with 

private owners to conduct trail maintenance and promote recreational assets which 

benefit Thomas and can attract considerable numbers of recreational trail users.
- 22 -

Conservation/Easement Initiatives

Success Stories

Public Private Partnership 

for Restoration

USDA and the Coca-Cola Company’s ground-breaking partnership achieved an 

ambitious milestone and is on track to double that commitment by 2018. Through 

a partnership between FS, the National Forest Foundation, Coca-Cola and other 

federal and local partners, and a total investment of $4.5 million, restoration of 

damaged watersheds and meadowlands returned more than a billion liters of 

water to the National Forest System which provides drinking water to more than 

60 million Americans. This project also restored 1,200 acres of land and restored 

and maintained more than 70 miles of trail.

Dry Forest Investment 

Zone in Oregon And 

Northern California

The Dry Forest Zone project was a 5-year initiative to support forest stewardship 

and economic development in Eastern Oregon and Northern California. With support 

from RD and the U.S. Endowment for Forestry and Communities, a core team 

of four organizations collectively leveraged their strengths and networks to take 

innovations in community-based forestry “to scale.” A regional nonprofit organization, 

two community-based organizations and an applied research group led the project. 

The project has supported at least 72 full-time equivalent jobs, directly treated 

8,843 public and private acres, analyzed 214,350 acres, increased planning efforts 

on more than 4 million acres, and implemented several policies and programs that 

support sustainable forest stewardship. By working at all levels from local to national, 

the team not only affected changes at a local level.
Key Contacts

USDA Rural Development Innovation Center

RD Innovation Center email: Rd.innovation@osec.usda.gov

RD Innovation Center website: www.usda.gov/rdinnovation

U.S. Forest Service

Toby Bloom: toby.bloom@usda.gov

Alice Ewen, Cooperative Forestry: alice.ewen@usda.gov

U.S. Forest Service website: www.fs.fed.us

USDA National Institute for Food and Agriculture

Brent Elrod: richard.elrod@usda.gov

NIFA website: www.nifa.usda.gov

University Extension

Douglas Arbogast: douglas.arbogast@mail.wvu.edu

RD200002 

Last Revised June 2021
USDA is an equal opportunity provider, employer and lender.