Small Rural Town Revitalization in Maine: Test Pilot of the SEED Model

by Nory B. Jones and Manuel Wörsdörfer
Note: a shorter version of this paper is published in the Maine Policy Review.

Abstract: The Sustainable Ecosystem Economic Development (SEED) model is a methodology designed to facilitate revitalization in small towns and rural communities. During the 2023–2024 academic year, our team of faculty advisors and students served as project champions to implement a pilot test of this model, leveraging the unique expertise and resources of relevant stakeholders to support a small town in rural Maine. The approach included communication and relationship-building with the town manager and stakeholders, a knowledge summit to identify needs and capabilities, an iterative process of resource-needs mapping, and the delivery of deliverables aligned with the town’s requirements, with sustainable practices. 

Keywords: Sustainable Ecosystem Economic Development Model; Small-Town Revitalization; Socio-Environmental Sustainability; Entrepreneurship and Innovation; Project Champions.

Introduction

The primary goal of economic development is to create vibrant, thriving communities with a high quality of life, characterized by decent jobs, sound educational and healthcare systems, a lively town with shops, restaurants, and interesting cultural venues, as well as good infrastructure (Koirala et al. 2023). One of the primary questions in this context is: How can a declining small rural town reverse its fortunes and become a thriving community that attracts businesses and residents?

The literature is replete with research on models and theories to accomplish this reversal. Some focus on the impacts of government assistance, such as tax incentives, grants, or zoning. Others focus on the quality of life and community factors. Recently, several studies have addressed the issue’s complexity, including socioeconomic, regulatory, and sustainability issues. Much research explores the role of ecosystems in encompassing all those factors into continually evolving systems (Brenton and Slawinski 2023; Nimick and Ndu 2024). Furthermore, the issue of sustainability has been studied in greater depth, as climate change and the significance of the triple-bottom-line elements are recognized as significant contributors to the potential well-being of small rural towns (Gila Herald, 2025, Hemingway-Jaynes, 2023, USDA, 2011).

Our pilot test aimed to explore the role of sustainable ecosystems in the economic development of a small rural town in decline (i.e., Fort Fairfield, Maine) using the Sustainable Ecosystem Economic Development (SEED) model.[i] The SEED model integrates the knowledge and expertise of relevant stakeholders from various areas, including government agencies (federal, state, and local), for-profit and nonprofit organizations, communities, and project champions, who are similar to traditional project managers, focusing on planning, communication, facilitation, and implementation.

Our research questions were

  • What is the role and responsibility of a project champion in the management and success of town revitalization efforts?
  • How crucial is socio-environmental sustainability in fostering economic development for a small rural town experiencing decline?
  • Can the SEED model effectively aid in revitalizing a small rural town in decline (in our case, Fort Fairfield)?

Importance of Small Towns

Rural areas have historically been the foundation of the United States and its culture. As the country’s economy has evolved from one based on agriculture to one based on industry and, more recently, high-tech and digital industries, small towns in rural areas have undergone different transformations. Some small rural towns successfully adapted to these changing trends, while others stagnated. Many still have not overcome the barriers of inadequate broadband Internet infrastructure or a lack of expertise and resources needed for revitalization. Many have faced a downward spiral when large industries, such as paper mills in rural areas like Maine, close, and the towns struggle to fill the significant job gap that results (EPA, 2025, Peters, 2024, Shepard, 2025). Consequently, many residents leave to seek decent jobs, while small businesses close, and towns deteriorate (White 2022). According to Johnson (2022), over the period from 2010 to 2020, more than two-thirds of all rural areas in the United States experienced population loss. 

Similarly, the departure often includes small, community-oriented businesses such as restaurants, shops, and lodging, which are essential for generating revenue and creating jobs within the community. Towns deteriorate due to a chicken-and-egg situation, where they lack the necessary infrastructure to attract new residents, and small businesses are hesitant to invest because of a lack of potential customers. Other common challenges include a lack of financial resources for small businesses and entrepreneurs, as well as inadequate broadband Internet (Gaetano, 2019, Pipa, 2024, Small Business Majority, 2021, Valentín-Sívico et al., 2023.)

Research indicates that rural areas can benefit from developing a vibrant small business and entrepreneurial community, as this fosters job creation and generates wealth that remains within the community, often enhancing the social fabric and revitalizing the town (Love and Powe 2022). Many small rural towns have abundant natural resources with excellent nature-based tourism activities, representing significant potential to entice tourists. Thus, they have the potential for revitalization strategies essential for the social, cultural, and economic well-being of rural areas. Again, overcoming this chicken-and-egg situation is the main challenge. White (2022) suggests that small rural towns can create synergistic ecosystems by attracting creative and entrepreneurial individuals who appreciate natural outdoor resources, thereby promoting town growth. A more detailed examination of small-town revitalization is presented in the appendix.

Project Champions, Ecosystems, and Collaborations

A significant tenet and unique aspect of the SEED model is the vital role of the project champion (another crucial part is ecosystems or collaborations among relevant stakeholders). Like a traditional project manager, a project champion is critical to facilitating the ecosystem’s development, logistics, and successful implementation. The term project champion differs from the traditional project manager in the psychological aspect of becoming the chief cheerleader for the project.

Research has shown that many entrepreneurs and small business owners lack awareness of the resources needed to survive, grow, and prosper. One study found that about 50 percent of small business respondents were unaware of the organizations available to help them with their business. 91 80 percent indicated they did not receive assistance to start their businesses. Studies also found a correlation between education and the success of small businesses and entrepreneurs (Nimick and Ndu 2024). This correlation infers the need for a project champion to manage the stakeholder ecosystem—i.e., develop and implement the project’s communication, logistics, and implementation—to support small businesses and town revitalization efforts (Masuda et al. 2021).

Regarding ecosystems, the term creative abrasion refers to creating an ecosystem of people with differing expertise, perspectives, ways of thinking and analyzing, and knowledge to facilitate innovation. This diversity in thought and understanding leads to creative synergies, new ideas, and thus innovation and more successful outcomes. Therefore, a significant part of our SEED model relies on creating diverse but highly engaged stakeholders to create greater value from their contributions (Leonard and Straus 1997).

Challenges and Opportunities

At the beginning of the SEED model test project (when conducting the SWOT analysis), Undiscovered Maine sent a questionnaire to Fort Fairfield’s town manager, asking him about the town’s strengths and weaknesses and his goals and priorities during his tenure as manager. Among the latter were growing the economy and tax base; stabilizing the budget and rebuilding faith/trust in local government;  supporting and strengthening town employees’ connection with the community and role competency; investing in critical infrastructure and seeking out improvements to enhance the quality of community life; seeking opportunities to increase the housing stock and population; expanding broadband; and developing additional attractions and events to draw more visitors.

When asked about what citizens of Fort Fairfield want or need in terms of economic growth and sustainable development, the town manager replied that there is a “strong desire to see industrial development,” reduce tax burdens, and increase job opportunities. He also mentioned that it is essential to “strike (the right) balance between tax burden and the need for public services” such as police and fire departments, emergency medical and management services, and public works. He also wants to “see Main Street come back to life with a mix of businesses, shops, and restaurants” and to continue investing in schools and public education.

According to the town manager, Fort Fairfield’s strengths include Main Street, schools, proximity to Aroostook County population centers and Canada, the Aroostook River, abundant farmland and water resources, outdoor recreation opportunities, and reasonably priced homes and land.

Additionally, the town manager mentioned opportunities worth exploring, such as creating more access points to the Aroostook River for fishing and recreation, incubating businesses on Main Street, using less productive land for other agricultural uses (beyond the large-scale potato industry), and promoting housing development.

Like other rural areas in the United States, Fort Fairfield also faces several challenges including, climate change, the ongoing AI revolution, and the so-called digital and social divide, as well as the medium- to long-term effects of the COVID-19 pandemic.

Climate change poses significant challenges for all major tourism destinations. In the case of Aroostook County and Fort Fairfield, global warming will (most likely) decrease snow cover and ice formation, which will negatively affect many winter outdoor recreation activities, such as snowmobiling and skiing. Ticks and mosquitoes are also expected to thrive in a warming climate, which might cause diseases and affect people’s physical and mental well-being (Arnold et al., 2024). Climate change adaptation and planning are thus crucial, especially for Maine’s tourism areas dependent on natural assets vulnerable to climate change. The goal must be to reduce climate change vulnerabilities and enhance the adaptive capacity and resilience within nature-based tourism destinations, which means reducing the carbon footprint of the outdoor/recreation industry while simultaneously fostering sustainable economic development (Horne et al. 2022).

 The AI revolution and the COVID-19 pandemic present both opportunities and challenges for Fort Fairfield. Like many other rural communities, Fort Fairfield also faces the challenge of attracting talent, entrepreneurs, and businesses. In theory, plenty of opportunities for remote work exist in the Aroostook region, especially given the (relatively) low living and housing costs. Yet, the town lacks an adequate (technological) infrastructure, including reliable, high-speed internet access. Financial capital needs to be invested in local infrastructure to not only close the digital and social gap (Wörsdörfer 2018), but also to realize local ideas and transform such areas into thriving communities. Universities such as the University of Maine and the University of Maine at Presque Isle could also play a vital role in this community development process, transforming rural assets and building a rural innovation economy. That is, technology transfer from local universities could (ideally) lead to rural (tech) startups (Hardy 2024).

Sustainability Issues

A recent study by the Maine Climate Council revealed that the past four years, from 2020 to 2023, were the warmest on record, characterized by increased precipitation and more frequent weather extremes. They state, “The past four years in Maine (2020-2023) have ranked among the ten warmest on record (page 9.) They suggest that warming will impact agriculture, health and safety with increasing mosquito and tick-born diseases, and economic and social impacts. (Arnold et. al, 2024).

Climate change is already causing problems in Fort Fairfield. A significant part of their winter revenue comes from snowmobiling tourism. A study Hathaway et al. (2020) showed snowmobiling contributed $606 million to the state economy during the 2019 season. However, according to an interview with the Fort Fairfield town manager, during the 2023–2024 winter season, snowmobile registrations declined from 90,000 to 60,000 . He also stated that the lack of snow had significantly reduced visitor numbers and, consequently, town revenues. Similarly, ski areas, especially those in southern Maine, have seen significantly less snow, which has negatively affected their revenues.  Revenues from ice fishing are also negatively affected. The famous annual Can-Am Crown International Sled Dog Races were canceled in 2024 due to insufficient snow, exacerbated by heavy rainstorms (Ramirez 2024; Russell and Overton 2024).

Sustainability can help mitigate the negative impacts of climate change and is critical in revitalizing small rural towns. Sustainable rural development involves the balanced development of the triple-bottom-line elements: economic, environmental, and social sustainability (Elkington, 1997). Special responsibility rests with the project champion, the local community, and other stakeholders (Rakitovac et al. 2021). A more detailed exploration of the different aspects of sustainability can be found in the appendix.

Methods

Undiscovered Maine—A 91 Student Club

Undiscovered Maine is a University of Maine/Maine Business School (MBS) student club founded in 2012 by Nory Jones. The club’s goal is to increase tourism and economic development in underrepresented or underserved regions of Maine. It aims, in particular, to have a positive impact on rural communities in distress by building a solid social media presence and fostering partnerships with regional businesses and other stakeholders. In doing so, students learn valuable skills in digital marketing and social media, web portal management, project and organizational management, strategy, and outreach.
Figure 1 below shows the Organizational Structure of Undiscovered Maine

Organizational structure of Undiscovered Maine

At the center of the club’s 2023–2024 activities was the SEED model pilot test project with the town of Fort Fairfield. Club members conducted a SWOT (strengths, weaknesses, opportunities, threats) analysis of Aroostook County and Fort Fairfield and organized a knowledge summit with government agencies, nonprofits, and businesses. The students also revised the Undiscovered Maine website, created a marketing plan, and identified opportunities for nature-based tourism in and around Fort Fairfield. These efforts supported the town’s revitalization efforts and raised awareness for the project and promoted the club’s work.

The club’s work was supported throughout the academic year by various stakeholders including government agencies (federal and state), nonprofits, and small- and medium-sized enterprises.  Notable federal agencies included the USDA Rural Development and the US Small Business Administration. More details on these stakeholders are available in the appendix. The club’s engagement with the various stakeholders and partners followed the steps outlined in LISC (2021), starting with identifying and organizing the stakeholders, setting shared intentions, mapping the small-business ecosystem of Fort Fairfield, mobilizing targeted action (and developing an action plan), building both internal and external capacity, fostering and managing the community of practice, developing shared accountability systems, developing social capital partnerships, and integrating the work with broader economic development efforts.

To test and implement the SEED model in Fort Fairfield, Undiscovered Maine focused on two projects and goals: (1) fostering nature-based tourism, e.g., via leveraging the Aroostook River and other nature-based assets such as the International Appalachian Trail; and (2) supporting the ongoing revitalization efforts of Fort Fairfield’s Main Street.  The details of this implementation are provided in the appendix.

Understanding Fort Fairfield

is a small town in Aroostook County, Maine. It is situated along the US-Canada border (bordering New Brunswick) and, according to the 2020 census, has a population of roughly 3,300.[i] The town is known for its annual Maine Potato Blossom Festival and County Bluegrass Festival. Other places of interest include the Blockhouse Museum, which displays artifacts from the Aroostook War of 1838–1839 over the international boundary between New Brunswick and Maine, the Historic Friends Church, the Fort Fairfield Railroad Museum, the McIntosh One-Room School House, the Riverside Pavilion and Park overlooking the Aroostook River, the Aroostook Valley Country Club, a golf course that spans Maine and New Brunswick, and the International Appalachian Trail.[ii]

Like many rural US towns, Fort Fairfield has its town councilor(s), manager, and an Economic & Community Development department The council also collaborates closely with the Maine Department of Economic and Community Development, Aroostook County Tourism, and the Northern Maine Development Commission, all of which are part of Undiscovered Maine’s stakeholder partners. Lastly, Fort Fairfield boasts a thriving Amish community that offers a diverse range of handmade crafts, furniture, baked goods, and more.[iii]  Additional information on Fort Fairfield can be found in the appendix.

[i]       

[ii]        ; ; ; https://iat-sia.org/

[iii]       https://www.fortfairfield.org/live-here/visitor-information/amish-community/

Results

Project Champions and Small-Town Revitalization

The results of this project demonstrated the need for a project champion to plan, organize, facilitate, communicate, and implement a sustainable ecosystem for small-town revitalization. These stakeholders brought necessary financial and other resources, capacity, knowledge, and expertise to the revitalization project to create a coalition or ecosystem of relevant stakeholders. Thus, the project champion played a vital role in developing this crucial collaborative.

According to the Institute for Project Management, communication is essential for project success (Minois 2024). Results from this project support this assertion. As the project champion, our role was to maintain consistent communication with stakeholders. We communicated with them individually at the beginning and as needed throughout the project. We sent weekly update emails, responded to questions, communicated regularly with the town manager, coordinated and communicated with all stakeholders for major meetings, provided follow-up notes and addressed queries, and maintained open communication throughout the process. This level of communication would not have happened without our team acting as the project champion. As project champions, we also used consistent communication to determine goals, scope, time management, logistics, and deliverables.

Environmental and Social Sustainability

The Aroostook River Region encompasses a river, numerous islands throughout its meandering channel, and extensive floodplains. It uniquely combines natural (marine) ecosystem communities, wildlife habitats, and rare animal species and plants (Maine DIFW n.d.). From a sustainability perspective, the area provides several ecological and economic services. Among its ecological services, the river region provides habitat for sensitive or rare species, including state-endangered plants (Fries’ pondweed), reptile species of special concern (wood turtles) and globally rare dragonflies (pygmy snaketail), as well as for natural communities and ecosystems that support regional biodiversity.  Among its economic services, the area attracts nature-based tourism such as bird watching, paddling, hunting, and fishing.

Aroostook River Region Opportunities for Conservation and Sustainability

  • Educating stakeholders, including recreational users, about the socioeconomic and ecological benefits provided by the area[i]
  • Establishing nature-based youth and recreational programs
  • Organizing guided bird watching and paddling tours
  • Encouraging best management practices for agriculture, forestry, and logging around vegetation removal, soil disturbance, and construction activities
  • Maintaining or restoring intact and healthy forested buffers along the river to protect water quality and conserve valuable wildlife habitat
  • Maintaining or restoring the area’s natural hydrology
  • Working with public and private landowners to encourage sustainable forest management practices and to secure a permanent conservation status for unprotected significant features in the area
  • Collaborating with regional, state, and federal agencies to realize the Sustainable Development Goals (e.g., offering consultancy and funding opportunities for nature-based tourism).[ii]

[i]        Raising awareness and sensitizing stakeholders (e.g., making river shore communities and other local groups aware of the potential threat of invasive animal and plant species).

[ii]        Maine Business School has created its own Social Impact Plan. The plan focuses on goals 8 (decent work and economic growth) and 11 (sustainable cities and communities) of the UN’s Sustainable Development Goals (https://sdgs.un.org/goals). It thus aims to promote rural economic well-being, provide education, research, and outreach activities relevant to rural contexts, and prioritize engagement on the role and impact of sustainability in businesses. The Undiscovered Maine project with Fort Fairfield fits neatly into this description as it helps promote goals 8 and 11.
For more information on possible conservation opportunities, see Maine Department of Inland Fisheries and Wildlife, Beginning with Habitat (https://www.maine.gov/ifw/fish-wildlife/wildlife/beginning-with-habitat/index.html) and Maine Department of Environmental Proctection, Natural Resources Protection Act (https://www.maine.gov/dep/land/nrpa/).

In addition to its natural resource assets, Fort Fairfield possesses significant social capital, understood in terms of community cohesion and trust. It has a rich local culture and history. Culture as an asset (i.e., the cultural identity of the town and region) could complement nature-based tourism and outdoor recreation (Hardy 2024).     

Fort Fairfield is also home to the International Appalachian Trail (IAT). The IAT is a geographically widely dispersed network of (loosely connected) walking trails worldwide. Hiking the trail allows people to enjoy the scenic landscapes of Aroostook and the neighboring counties, to boost their physical and emotional well-being, and to learn new things about the regional ecosystem and culture. Fort Fairfield could consider creating more detailed physical and digital maps, brochures, and road signage for the IAT to market the trail better. It could also brand itself as the gateway or entrance to American leg of the IAT (as seen from a Canadian perspective). Integrating the trail into local events and festivals or combining it with other river activities (such as The First Fort Fairfield IAT River Race) might also boost the local economy and attract more visitors.

Effectiveness of the SEED Model

One of the main goals of the SEED model test project was to use the expertise and resources of the various stakeholder partners, which we did by gaining support and commitment from highly experienced representatives from relevant government agencies, for-profit and nonprofit organizations, and the Fort Fairfield town manager. The first team meeting was designed to create a shared understanding and mission for the project. It also allowed the different stakeholders to develop trust in the team and interact independently with the town manager. The weekly email updates provided status reports and allowed the stakeholders to weigh in when they had knowledge or resources to share. The knowledge summit enabled stakeholders to share their valuable knowledge and expertise with the town manager and address specific goals and priorities.

Each stakeholder brought a wealth of knowledge and expertise to the town’s revitalization efforts that could not be found elsewhere. The knowledge summit and subsequent meetings enabled stakeholders and the team to work collaboratively for nearly four months. By this time, members of the team had shared their knowledge, and the mission and scope had been refined. Thus, the knowledge summit and similar meetings represented a synergistic collaboration of creative abrasion, where all stakeholders could contribute valuable and relevant knowledge to address the town’s revitalization issues and indicate possible ways to overcome the respective challenges.

In the context of small-town revitalization, the team specifically focused on entrepreneurship and innovation. The club created a Town Revitalization Resource Document featuring over 25 programs for expertise and funding (see Appendix G). It also ran two ideation sessions to foster innovation and entrepreneurship, generating an idea bank of 81 ideas related to retail, food, events, outdoor and indoor recreation, tourism, and other opportunities. This process began in late January 2024 with an internal brainstorming session, during which club members discussed innovative ideas for Fort Fairfield. Those ideas were grouped into eight categories: tourism, food, culture, cross-border cooperation, family and kids, infrastructure, finance, and demographic challenges (Appendix E).

A create session followed the brainstorming session in February. The narrative presented to the club members was as follows:

Fort Fairfield is a community in Aroostook County, Maine.  At one point, it was a vibrant town on the Aroostook River. Through a series of events that decimated the downtown area, along with shifting industries, Fort Fairfield has experienced a significant decline in its economic activity and population. To not only maintain Fort Fairfield but also return it to a thriving community, we need to bring more business to Fort Fairfield.

At the center of the discussion was the question of how to attract new residents, encourage homegrown businesses, and attract (new) companies to Fort Fairfield. Such ideas could include products, services, systems, and innovations.

Table: Questions[i] Asked during the Create Session

How can we create opportunities for continuous tourism?
What else would draw people to Fort Fairfield?
How can we capture coastal tourism?
How can we convert tourists into full-time residents?
What other vital businesses do you see in vibrant communities?
What else attracts and encourages people to live in certain places?
How can we encourage people to move here? 
What would encourage you to move to Fort Fairfield?
What does your ‘gut’ tell you about living in Fort Fairfield?
What technologies may enhance outdoor recreation?
What support do businesses need for newer technology?
How can we change current sports and recreation activities? What might make them more exhilarating?
How can Fort Fairfield adapt to an aging Maine?
What opportunities exist around aging in place and attracting aging residents?
What needs must be met for an aging population? By business?

[i] The questions were framed or grouped into tactical considerations (i.e., financial reserves in local Economic Development Corporation, limited freely available housing stock, Main Street in Fort Fairfield has fiber connectivity, partnerships with local and state groups for resources and expertise), key insights, and market-, wisdom-, technology-, and future-related.

After the create session, the club held an ideation session in March, which led to a so-called mind map. Some of the major ideas included examples of popular restaurants, recreational activities, and infrastructure ideas (see the appendix for the entire mind map). The next step included creating an idea bank, which was completed at the end of March. The primary goal was to attract entrepreneurs and small businesses to Fort Fairfield and address the issues of housing and business blight. Ideas were categorized into the following groups: types of companies important for all small towns, retail, food, and supporting businesses and activities.

These ideas were integrated with the club’s stakeholders’ knowledge, expertise, and resources (through several stakeholder and discussion forums, which allowed the collaboration partners to provide feedback and suggestions for improvement). This led to a list of (possible) events, indoor and outdoor activities, and tourism-related ideas. Additional deliverables can be found in the appendix, including a resource bank and a discussion of supplementary resource programs.

Figure 2 summarizes the revitalization system deliverable as applied to Fort Fairfield. The first step was identifying the community’s short- and long-term needs. Ideas were then generated using brainstorming and other techniques. Additional information was gathered from stakeholders and collaboration partners, and the existing and missing resources of Fort Fairfield were identified. The generated ideas were launched, and possible review methods were illustrated. An example of each of those steps is included in the figure below.

Over the 2023–2024 academic year, the club successfully created a synergistic ecosystem of diverse stakeholders from multiple government, state, and local agencies, as well as for-profit and non-profit organizations, and the town manager, who provided the knowledge, expertise, and resources needed to support Fort Fairfield’s revitalization efforts. Additionally, club members  learned how to successfully create and implement the role of project champions to communicate, plan, organize, and implement this ecosystem and learned how to work in a consulting capacity with the town manager to identify, communicate, and provide deliverables for his priorities.

These deliverables included a web portal to promote use of the Aroostook River to increase usage by visitors and residents; a business system to help with planning for revitalization efforts, especially related to entrepreneurship and innovation; a resource bank to help navigate the different agencies and resources; and a marketing plan to help with the goal of attracting visitors, new residents, and small businesses and entrepreneurs.

Discussion

This pilot test aimed to determine whether the SEED model could assist a small rural town in its revitalization efforts. The literature review demonstrates that many small rural towns worldwide face deterioration, population decline, and significant challenges in attracting and retaining the businesses and people necessary to maintain their vibrancy and thrive. The SEED model represents a viable methodology to help these small towns by creating an ecosystem of diverse stakeholders with the knowledge, expertise, and resources to revitalize them.

What did we learn from this project? We learned that project champions are crucial for a small-town revitalization project like ours. It was particularly necessary for effective communication in persuading the town manager and stakeholders to dedicate some of their valuable time and resources by demonstrating the value of the project. Similarly, consistent and relevant communication throughout the project was crucial in keeping all stakeholders informed, demonstrating tangible progress, and facilitating open communication among them. The role of project champion is rarely explored in research on small-town revitalization. However, our pilot project shows the crucial role and responsibility of them in successful revitalization efforts. Furthermore, we showed that the SEED model can be viable for small-town revitalization efforts. Creating a sustainable and synergistic ecosystem of relevant stakeholders represents a means of developing the creative abrasion necessary to achieve successful outcomes through the combination of expertise, knowledge, and resources.

We believe this project successfully helped the town manager navigate the (occasionally) overwhelming and confusing alphabet soup of agencies and resources. We noted that creating relationships in this ecosystem allowed the town manager to work with stakeholders who could provide resources and assistance to meet the town’s specific needs. We also noted significant synergies among the different stakeholders. During and after the meetings, they would build upon each other’s knowledge and resources to create greater value for the client. The SEED model thus appears suitable for small-town revitalization, particularly when the project champion serves as a facilitator.

This project, however, represented a small pilot test. The major limitation was the time constraints of the faculty members, students, stakeholders, and the town manager. The logistics and implementation of working with the town manager and a group of nearly a dozen different stakeholders, who had other commitments, represented additional challenges. Future research could follow up to determine whether our deliverables contributed to achieving the goals of increased tourism and town revitalization. This would involve conducting marketing research to examine tourism, small businesses, and entrepreneurial interests in Fort Fairfield, as well as implementing the proposed town revitalization and marketing strategies. The Undiscovered Maine student club will continue its research on economic development. The plan is to grow the organization and utilize the SEED model to work with this or other towns or specific businesses in the region. 

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Shepard, JC. 2025. The Rural Comeback: How Small Town Innovation Sparks Growth. https://jcshepard.com/2025/08/how-small-town-innovation-sparks-growth/#:~:text=The%20digital%20divide%20remains%20a%20major%20barrier:,in%20whether%20rural%20communities%20actually%20get%20connected.

Small Business Majority. 2021. Small businesses struggling to access capital, harming their financial recovery. .

Valentín-Sívico J, Canfield C, Low SA, Gollnick C. 2023. Evaluating the impact of broadband access and internet use in a small underserved rural community. Telecomm Policy.  May;47(4):102499. doi: 10.1016/j.telpol.2023.102499. Epub 2023 Jan 13. PMID: 36685614; PMCID: PMC9836830.

USDA. 2011. Supporting Sustainable Rural Communities.

White, Katherine. 2022. “Small Town and Rural Economic Development: A Case Study Analysis of Strategies for Success.” SPNHA Review 18(1): 9. https://scholarworks.gvsu.edu/spnhareview/vol18/iss1/9/

 Wörsdörfer, Manuel. 2018. Engineering and Computer Ethics. Dubuque, IA: Great River Learning.

Appendices

Appendix A: Literature Review

Rural Town Revitalization

A review of the literature on rural and small-town revitalization reveals several common themes. One of these is the idea of creating small businesses and entrepreneurial ecosystems. This contrasts with the popular notion that small towns must attract large companies to provide jobs and drive economic growth. Research has shown that local startups are hurt when towns offer incentives to attract large(r) companies (Sablik, 2022). In fact, a study at North Carolina State University found that “tax incentives aimed at attracting and retaining large businesses find that the vast majority of these incentives ultimately leave states worse off than if they had done nothing” (McDonald & Shipman, 2020, 1).

Strategies to nurture and facilitate these small business/entrepreneurial ecosystems include tax incentives or lowering tax rates for small businesses and entrepreneurs. Broadband represents a crucial prerequisite for attracting and maintaining these organizations. This enables these businesses to expand their market outside the local area, potentially providing unique products and services across regional, national, or international markets. Some small rural towns have also established incubator spaces that offer low-cost rent, Internet access, and a social networking platform for small businesses to collaborate and form social communities (Rappleye, 2020; Sablik, 2022). One notable example is a small town in Vermont where they created “an innovation hub there that was focused on two things: one was supporting scalable tech entrepreneurs through an accelerator program but also creating a tech talent development program in partnership with different kinds of tech talent content providers, whether locally or nationally, online or in person” (Riley, 2022, 2).

Additionally, the shift to remote work was a silver lining of the COVID-19 pandemic. Many white-collar professionals, including high-tech workers, have relocated to rural areas for a lower cost of living, a more relaxed culture, and a suitable environment for raising a family (Rembert et al., 2022). These people would likely frequent local small-town businesses.

Another common theme in the context of small-town revitalization includes leveraging local assets and developing a solid brand for the town or region. Possible strategies include preserving and promoting historic buildings and landmarks, as well as leveraging unique cultural attributes that appeal to tourists. Similarly, towns have successfully created and supported art centers, such as local artisans, dance, music, and events to promote them (King, 2023). In addition, leveraging the natural environment to promote nature-based tourism can include developing recreational trails, parks, and outdoor activities that use the town or region’s natural assets.

These suggestions also create increased opportunities for a higher quality of life, revitalizing the town for current and future residents and visitors with a vibrant town center, easy access to nature-based and cultural activities, and a robust infrastructure of shops, services, transportation, and high-speed Internet (Faster Capital, 2024).

Another revitalization theme is collaboration among small towns and with different stakeholders. These often involve federal, state, and local government agencies. Collaboration with universities provides excellent opportunities for education and training, while partnering with for-profit companies and non-profit organizations can bring value in grants, sponsorships, stewardship of natural resources, and more. Creating ecosystems of stakeholders with different resources and expertise can generate valuable synergies (McFarland & Dabson, 2021).

Environmental Sustainability

Small towns like Fort Fairfield possess valuable natural resources, including the Aroostook River, surrounding forests, and various agricultural assets. Focusing on environmental practices such as water conservation, erosion prevention, creating natural flora and fauna ecosystems, and sustainable farming and forestry can provide ecological benefits (Chunjiang et al., 2020). Sustainable tourism and renewable energy can also have positive impacts, creating open spaces and recreational areas that enhance the well-being of residents.

On a macro scale, cities and towns worldwide are working towards climate change resiliency. They have the authority to create incentives for renewable energy and energy-efficiency upgrades in buildings and homes. They can invest in renewable energy, plant more trees for shade, provide education on conservation, invest resources in public transportation or bicycles where appropriate, and create walkable towns, making downtown areas ecosystems for everyday living. Research shows that 77% of people believe sustainability is essential and want to live more sustainably. Therefore, creating eco-friendly towns can entice people to move to or visit these towns (Fromm, 2022; Pichola et al., 2021).

On a micro scale, the following list shows sustainability tactics used by small towns (ICMA, 2015):

  • Community-wide recycling for residents
  • Government office recycling
  • Biking and walking trails
  • Energy audits of government buildings 
  • Requiring sidewalks in new developments
  • Supporting a local farmers’ market
  • Recycling household hazardous waste
  • High-efficiency lighting in government facilities
  • Recycling of household electronic waste
  • Community-wide recycling for businesses
  • Tree preservation and planting program
  • Heating and cooling upgrades in government facilities
  • Water pricing to encourage conservation
  • Purchasing fuel-efficient vehicles
  • Community-wide collection of compost material
  • Zoning codes to encourage more mixed-use projects
  • Actions to protect the quality of aquifers
  • Installation of high-efficiency traffic lights
  • Setting limits on impervious surfaces on private property
  • Co-locating recycling with trash containers in public spaces

Socio-Economic Sustainability

Sustainable ecosystem restoration can help diversify the local economy by attracting new industries and supporting entrepreneurship. As mentioned previously, this represents a growing trend in small-town revitalization. Successful strategies may include …

  • Creating vibrant downtowns with walkable main streets and desirable small businesses that are widely frequented, such as restaurants, bars, and shops.
  • Working on the socio-economic sustainability aspect of revitalization involves providing equitable benefits to all community members, including access to quality education, healthcare, culture, financial assistance, and other support when needed.
  • Leveraging desirable local assets to provide residents and visitors with recreational and cultural experiences (in our study, providing better and more convenient access to the local river and nature trails could help achieve this goal).
  • Involving the community and local government to create engagement and stewardship and help preserve the regional character of the town (Faster Capital, 2024; Love & Powe, 2020).

As indicated in the paper, rural communities, such as Fort Fairfield, are already experiencing the negative impacts of climate change. Many small-town managers have recognized the need to increase ecological and socio-economic resilience.

The EPA provides guidance on how to accomplish this.

  • “Planning where development should or should not go can help a rural community encourage growth in town, where businesses can thrive on a walkable main street, and families can live close to their daily destinations.
  • Encouraging policies that support walking, biking, and public transit can help reduce air pollution from vehicles while saving people money.
  • Encouraging policies that protect the rural landscape can help preserve open space, protect air and water quality, provide places for recreation, and create tourist attractions that bring investments into the local economy” (EPA, N.D.).

Creating a collaborative ecosystem with government agencies and other stakeholders, developing strategies such as zoning and climate resilience planning, and involving the local community may represent a possible way to achieve sustainable revitalization (EPA, N.D.).

Another concept, known as ‘embedded entrepreneurship,’ has been studied as a source of sustainable development through the power of regional knowledge and community ties, aiming to understand and meet local needs. This also suggests that local and regional governments play a vital role in supporting and prioritizing sustainability initiatives within socio-economic development strategies (Masuda et al., 2021). This approach can also help to build social connections with the local ecosystem. This is especially important for the socio-economic aspects of sustainable development (Brenton & Slawinski, 2023).

Social sustainability refers to the goal of enhancing the quality of life sustainably. Noteworthy is that 11 of the 17 U.N. Sustainable Development Goals are related to social sustainability. Some of these include ending poverty and hunger, ensuring healthy lives and well-being, ensuring quality education and lifelong learning, achieving gender equality, reducing inequality, and promoting peaceful and inclusive societies (United Nations, N.D.).

Sustainable communities and towns are desirable places for people to live and work. They tend to be safe and inclusive places, offering a high quality of life. Thus, social sustainability represents a crucial goal in creating environments with equitable policies, services, and opportunities for all residents (Wang & Ke, 2024).

References

Brenton, J. & Slawinski, N. (2023). “Collaborating for Community Regeneration: Facilitating Partnerships in, Through, and for Place,” Journal of Business Ethics 184, 815–834

Chunjiang, A., Cai, M. & Guy, C. (2020). “Rural Sustainable Environmental Management,” Sustainability 12(16)

EPA (Environmental Protection Agency). (n.d.). “Smart Growth in Small Towns and Rural Communities,”

Faster Capital (2024). “Reviving Small Towns: Exploring the Impact of Rural Revitalization Ventures,”

Fromm, J. (2022). “Sustainable Cities Will Have A Competitive Advantage,” Forbes,

King, M. (2023). “Strategic Plans for Small Towns: Considerations and Strategies for Success,” Envisio,

Love, H. & Power, M. (2022). “Rural Small Businesses Need Local Solutions to Survive,” Brookings,

Masuda, Hiromi, Mahesti Okitasari, Kanako Morita, Tarek Katramiz, Shimizu Hitomi, Shun Kawakubo, and Yatsuka Kataoka. 2021. “SDGs Mainstreaming at the Local Level: Case Studies from Japan,” Sustainability Science 16: 1539–1562.

McDonald, B. & Shipman, M. (2020). “Study: Corporate Tax Incentives Do More Harm Than Good to States,” NC State University,

McFarland, C. & Dabson, B. (2021). “Accelerating Rural Prosperity Through Regional Collaboration,”

Pichola, I., Kelkar, M., & Bratek, M. (2021). “Building Climate-Resilient Cities,” Deloitte, www2.deloitte.com/us/en/insights/industry/public-sector/climate-resilient-cities.html

Rappleye, E. (2020). “A Common-Sense Approach to Reinvigorating Small-Town America,” Rural Business,

Rembert, M., Osinubi, A. & Douglas, D. (2022). “The Rise of Remote Work in Rural America,” Center on Rural Innovation and Rural Innovation Strategies, Inc. .

Riley, R. (2022). “Growing and Sustaining Prosperity for Small-Town Americans,” McKinsey & Company, www.mckinsey.com/featured-insights/sustainable-inclusive-growth/future-of-america/growing-and-sustaining-prosperity-for-small-town-americans

Sablik, T. (2022). “Growing Rural America Through Startups,” Federal Reserve Bank of Richmond,  

United Nations. (n.d.). “Sustainable Development Goals,”

Wang, K. & Ke, Y. (2024). “Social Sustainability of Communities: A Systematic Literature Review,” Sustainable Production and Consumption 47, 585-597

Appendix B: Methodology

This section provides the reader with specific details about our project, enabling it to be replicated or offering guidance to others.

At the state level, the club collaborated closely with the Maine Office of Community Development (a division within the Maine Department of Economic & Community Development [DECD] that aims to foster quality housing and jobs, especially in deteriorated residential areas and business districts), the Maine Office of Outdoor Recreation (an agency that is also part of the DECD and works to grow Maine’s outdoor recreation economy), and the Maine Office of Tourism (another sub-division of DECD that works to stimulate Maine’s tourism industry).[1]

Undiscovered Maine also partnered with local and regional agencies such as (an agency that promotes tourism in the northeast of Maine) and the (a non-profit organization in Caribou, ME, that works to expand and attract industry and business in the region).

The club’s for-profit businesses were Bangor Savings Bank, the largest Maine-based bank, and Old Town Canoe/Johnson Outdoors, a manufacturer of outdoor recreational products (in 2004, the company acquired Old Town Canoe, a historic maker of canoes in Maine).

Lastly, the club was supported by non-profits. One of them is , an organization that helps communities revitalize their historic neighborhoods, foster entrepreneurship, and support local businesses while conserving natural environments and protecting cultural and economic heritage.

Appendix C: Implementation Details

This section provides the reader with a specific timeline and details of the actions taken by the team to implement the SEED project pilot test.

The club started its work in September 2023 by identifying rural regions or towns in Maine (e.g., in Aroostook and Washington Counties) that might suit the SEED model test pilot. Towards the end of September, club members contacted possible rural communities in Maine.

The first contact with the newly appointed town manager of Fort Fairfield occurred at the beginning of October, initially via email and phone, and subsequently via Zoom. The club’s members also started researching sustainability in general and the three pillars – economic, environmental, and social sustainability – in particular.

In mid/end of October, club members contacted possible stakeholder groups interested in joining and supporting the project and organized a stakeholder information session (25 October). The event was an informal get-together via Zoom, in which potential future partners were informed about the project’s goals and (more) detailed plans, followed by a Q&A and feedback session.

Regular meetings and information exchange with the Town Manager of Fort Fairfield and the various stakeholder groups started at the end of October/beginning of November. All interested stakeholders were emailed weekly updates to keep them informed and engaged. Club members also started working on a benchmarking and SWOT analysis. The first draft was submitted on 9 November, followed by a meeting with the town manager and stakeholders on 16 November.

In December, team members devoted most of their time to creating a project proposal and strategy plan. The first draft was submitted to stakeholders on 7 December. After receiving feedback from these groups, club members revised the document and shared a new version on 20 December. The proposal included, among others, a project summary, mission and vision statements, the project’s goals and objectives, an overview of the proposed strategies to achieve those goals, and appendices.

The document is noteworthy as it distinguishes between two stages: the short-term goal is to promote nature-based tourism in and around Fort Fairfield. In contrast, the long-term goal is to support the town’s revitalization efforts. The other appendices contain valuable information for the reader, including an inventory of Fort Fairfield’s assets, an overview of regional and statewide tourism trends, ideas for the local Potato Blossom Festival, information on Registered Maine Guides, sustainability, marketing, and a timeline overview of the project.

On 23 January, Undiscovered Maine organized a knowledge summit, informing stakeholders about the progress made so far and providing them with another opportunity to provide additional feedback and suggestions for improvement. Following the summit, the team members began working on promoting the Potato Blossom Festival (an idea that was later abandoned due to changing priorities of the town [manager] and club), supporting nature-based tourism and outdoor recreation – primarily via leveraging the Aroostook River – and facilitating the town’s revitalization efforts (i.e., fostering innovation and entrepreneurship).

The club’s previous research on sustainability played a significant role in this initiative. It informed both aspects of the SEED model test project (i.e., environmental sustainability is crucial for nature-based tourism and outdoor recreation, while socio-economic sustainability is vital for fostering entrepreneurship and innovation). A sub-group of the club’s students began working on a marketing plan that might help the town improve its web (portal) presence and promote its local assets via multiple social media channels. With the help of our stakeholders, the club could also provide an overview or summary of available resources (e.g., financial resources, tax incentive programs, non-profit resources) and share them with the town manager.

On 4 February, the entire team visited Fort Fairfield. The town manager gave the team members a tour, e.g., of the local Amish farms and community, the Aroostook River, and the downtown area, and informed them (in more detail) about the available assets that could be leveraged and the town’s socio-economic challenges. The visit provided vital knowledge to help the team understand the opportunities and challenges of Fort Fairfield.

After the visit, the team explored opportunities to leverage the International Appalachian Trail, which passes through Fort Fairfield, and researched benchmarks for Fort Fairfield in comparison to other flourishing towns and communities (see, for example, the ). The club members continued working on the Fort Fairfield website, which is being integrated into the Undiscovered Maine web portal to increase awareness and visibility of the town. They also explored possible collaboration opportunities with other Aroostook towns, such as Presque Isle and Caribou, within the so-called Aroostook River Triangle.

Towards the end of February/beginning of March, the club decided to continue working in sub-committees – one focusing on leveraging the Aroostook River and promoting nature-based tourism and outdoor recreation (i.e., environmental sustainability), the other focusing on innovation/entrepreneurship and boosting the town’s revitalization efforts (i.e., socio-economic sustainability).

The latter group started collecting innovation ideas and held create (20-21 February, 12 March) and ideation sessions (together with the club’s stakeholders), which led to a so-called mind map and idea bank (23 March [see the other appendices]). The club also continued researching successful initiatives in small-town revitalization projects in rural, remote communities, as well as in water conservation and tourism, and created more website content, such as for the so-called Sasquatch River Trail.

A local TV station, WABI-TV, interviewed team members to promote awareness of the club’s work. The interview was conducted on 9 April and published on 12 April (‘’). The innovation and entrepreneurship sub-group organized a revitalization session and produced a consolidated resources document (4 April). All team members met with the dean on 24 April, prepared the final presentation, and added the final touches to the project’s website.

The academic year ended in May when team members gave a final presentation to the town manager and stakeholders (summarizing the academic year’s accomplishments and providing an overview of the deliverables) (1 May). The team also published a blog article (5 May) on its website and started working on a research paper.

Appendix D: Fort Fairfield[2]

The estimated population of Fort Fairfield is 3,322. The average age is 47.6 years; those under 18 make up 19% of the population, while 26% are 65 years or older. Almost 90% of the population has a high school diploma or more, but only 26.7% have a bachelor’s degree or higher. The potential labor force (population 16+) is 2,821; the current labor force, however, is 1,569, leading to a participation rate of 55% (which is considerably lower than the U.S. average of 63%).

Fort Fairfield’s unemployment rate in October 2023 was an estimated 4.3%, which is higher than the national average of 3.9% (seasonally adjusted) and substantially higher than the one in Aroostook County (3.2%, not seasonally adjusted) and Maine (2.8%, seasonally adjusted).

Fort Fairfielders with a high school degree earn an average of $26,687; those with some college experience earn $31,989, whereas those with a bachelor’s degree (or higher) earn $75,636. The median household income in Fort Fairfield is $44,719. 10.9% of the population has an income below the poverty line, and 42% live in a low-income household (i.e., a household with an annual income of less than $25,000). 

Among the top trades of Fort Fairfield are education and healthcare (with almost 24%), transportation, warehousing, and utilities (13.6%), retail (9.6%), construction (9.5%), public administration (9.1%), agriculture and forestry (8.6%), professional (6.5%), and manufacturing (5%). Especially – i.e., potato and broccoli farming – is essential to the local economy, as are handcrafted products such as furniture and bakery goods (this is especially the case for the local Amish community).

Appendix E: Mind Map

Appendix F: Resource Bank

Undiscovered Maine developed a , which lists valuable information to support the ongoing town revitalization efforts in Fort Fairfield. The document includes, among others, links to the Pine Tree Development Zone Program (which offers eligible businesses the chance to reduce, or de facto eliminate, state taxes for up to ten years when they offer new, quality jobs in specific business sectors, or move existing jobs in those sectors to the State of Maine), the Maine Downtown Revitalization Grant Program (which provides funds to communities to implement comprehensive, integrated, and innovative solutions to the problems facing their downtown districts), and the Innovate for Maine Fellows Program (which connects Maine college students with local or regional companies in the State).

To boost nature- and culture-based tourism businesses, the State of Maine offers several grant programs, such as the Community Outdoor Recreation Assistance Grant (which supports the economic recovery of the local travel and tourism economy in a post-pandemic era), the Enterprise Marketing Grant (which supports the marketing efforts of tourism/travel companies to move toward sustainable growth), the Maine Communities Grant (which sponsors tourism-related and community-oriented marketing projects), the Maine Tourism Development and Management Grant (which supports tourism development, education, and management projects), the Special Event Grant (which provides funds to already existing events for the expansion and progression of marketing strategies to attract new visitors and increase visitation rates/stays), the Tourism Marketing and Management Grants (which supports the implementation of marketing activities designed to foster Maine’s tourism industry in the State’s designated tourism regions), and the Land and Water Conservation Fund (which provides funding for up to half of the costs for acquisition or development projects for public outdoor recreation).

In addition to downtown revitalization and tourism grants and programs, several community resources are also available. These include the Community Development Block Grant Program, the USDA Rural Development Community Facilities Programs, the Microenterprise Assistance Program, Funding for New and Expanding Child Care Businesses in Maine, the Agriculture Innovation Grant Program, housing preservation grants, ConnectMaine Broadband Grants, Maine Tax Increment Financing (TIF) Program, Maine Technology Institute Grants, Commercial Facilities Development Program, ATV Municipal Grant, Boating Facilities Fund, Snowmobile Municipal Grant, Recreational Trails Program, to name a few. More resources can be found on the website.

Appendix G: Resource List

Downtown Resources:

  • Pine Tree Development Zone ().
  • SBA grants ().
  • Maine Downtown Revitalization Grant Program ().
  • Innovate for Maine (/innovateformaine/).

Tourism Resources:

  • Community Outdoor Recreation Assistance Grant ().
  • Enterprise Marketing Grant ().
  • Maine Communities Grant ().
  • Maine Tourism Development and Management Grant ().
  • Special Event Grant ().
  • Tourism Marketing and Management Grants ().
  • Land and Water Conservation Fund ().

Community Resources:

  • Maine Communities Grant Guidelines ().
  • Community Development Block Grant Program ().
  • USDA Rural Development Community Facilities Program ().
  • Other USDA rural grant programs ().
  • Microenterprise Assistance Program ().
  • Funding for New and Expanding Child Care Businesses in Maine  ().
  • Agriculture Innovation Grant Program ).
  • Housing Preservation Grants ().
  • ConnectMaine Broadband Grants ().
  • Sustainable Management Tools ).
  • GrowSmart Maine Resources ().
  • Maine TIF Districts ().
  • Maine Technology Institute Grants ().
  • Commercial Facilities Development Program ).
  • Maine Community College Workforce Division ().
  • ATV Municipal Grant ().
  • Boating Facilities Fund ().
  • Snowmobile Municipal Grant ().
  • Recreational Trails Program  ).

[1] Another entity that supported the club’s work and is funded by the State of Maine is the Loring Development Authority, which is responsible for bringing back industrial and commercial businesses to the Loring Commerce Center and redeveloping the former Loring Air Force Base.

[2] The following data was provided by the Town of Fort Fairfield.