PENOBSCOT INDIAN NATION (2024)

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PENOBSCOT INDIAN NATION

COMPREHENSIVE ECONOMIC DEVELOPMENT STRATEGY

2024 TO 2029

Table of Contents

Introduction ............................................................................................................................................................ 3

Overview .................................................................................................................................................................. 4

Penobscot Indian Nation At Its Best .............................................................................................................. 7

Values ........................................................................................................................................................................ 9

Asset-Based Community Economic Development ................................................................................ 10

Community Capital Analysis ..................................................................................................................... 10

Penobscot Community Capital Overview ............................................................................................ 14

Natural Capital ........................................................................................................................................... 14

Cultural Capital .......................................................................................................................................... 14

Human Capital ........................................................................................................................................... 14

Social Capital .............................................................................................................................................. 15

Built Capital ................................................................................................................................................ 15

Political Capital.......................................................................................................................................... 15

Financial Capital........................................................................................................................................ 16

Strengths, Weaknesses, Opportunity and Threats (SWOT) .............................................................. 17

Economic Development Visioning............................................................................................................... 18

More of …, Less of …, and Complete Different … ............................................................................... 18

Three Wishes .................................................................................................................................................. 20

Economic Clusters ............................................................................................................................................. 21

Agriculture, Aquaculture, and Fishing.............................................................................................. 21

Artisan-Handmade ................................................................................................................................... 21

8(a) federal contracting and Native-to-Native Business Development .............................. 21

Energy ........................................................................................................................................................... 22

Forest Products ......................................................................................................................................... 22

Tourism – Cultural and Eco .................................................................................................................. 22

Goals and Objectives ......................................................................................................................................... 23

Thriving Economic Climate ....................................................................................................................... 23

Abundant Natural Resources .................................................................................................................... 23

Rich Culture ..................................................................................................................................................... 23

Human Capacity ............................................................................................................................................. 23

Strategies and Implementation/Action Plans......................................................................................... 24

Thriving Economic Climate – Strategies .............................................................................................. 24

Abundant Natural Resources – Strategies ........................................................................................... 27

Rich Culture – Strategies ............................................................................................................................ 28

Human Capital – Strategies ....................................................................................................................... 30

Evaluation Framework .................................................................................................................................... 33

Economic Resilience ......................................................................................................................................... 35

Introduction

Rich natural resources, strong community bond, innate entrepreneurial spirit, and shared cultural

values provide the Penobscot Indian Nation with the assets and qualities to ensure a vibrant economic

future. To exercise sovereignty and realize self-determination, the Penobscot engaged in a

Comprehensive Economic Development Strategy (CEDS) planning process that considered the Tribe

at its best, defined core values, identified key assets of the community ecosystem, and prioritized

initiatives and projects where investment is necessary to create jobs, attract capital investment, and

build and sustain Native businesses that improve the quality of life for Tribal citizens.

As a sovereign nation, the Penobscot Indian Nation has the ability to place land into trust,

establish a tax structure, offer business incentives to attract investment, and take advantage of

various federal programs, such as 8(a), to encourage economic development in Indian Country.

At the same time, the general lack of internal capacity, coupled with limited understanding by

state and federal agencies of settlement agreements, Tribal tax policy, and incentive programs

specifically related to Tribes, limit self-determination and sovereignty. These factors add to the

complexity of pursuing economic development in Indian Country.

While the Penobscot pursue economic development, a series of inherent challenges common

throughout Indian Country must be taken into consideration in the CEDS. Growing Economies

in Indian Country, a publication from the Federal Reserve, outlined eight issues as fundamental

challenges to realizing economic growth in Indian Country. The Penobscot Indian Nation, like

most Tribes across Indian Country, faces these challenges as they strive to build a strong

economy.

1. Insufficient access to capital

2. Capacity and capital constraints of small business

3. Insufficient workforce development; financial management training; and business

education

4. Tribal governance constraints

5. Regulatory constraints on land held in trust and land designated as restricted use

6. Underdeveloped physical infrastructure

7. Insufficient research and data

8. Lack of regional collaboration

Recognizing these challenges, the Penobscot look to build internal capacity to support and sustain

economic development activities, as well as strengthen partnerships with local, regional and national

organizations that can assist in their effort. Four Directions Development Corporation, a Native

CDFI; United South and Eastern Tribes (USET), an intertribal organization; and other agencies and

organizations have resources and expertise to break down barriers and ensure the long-term success

of the Tribe’s economic development activities. With a focus on asset-based development, market

tested opportunities associated with the value-chains of key economic clusters, and the alignment of

cultural values, the Penobscot Indian Nation can realize self-determination and exercise their

sovereignty.

Overview

CEDS Creation Process

The creation of this document involved municipal government, community and business stakeholder

engagement to revise the existing document. The general framework of the previous CEDS was

reused, as it contains similar general cultural, societal and business goals, as well as a similar

framework for development and engagement between the government of Indian Island and business

and resident stakeholders. Guidelines and inspiration for much of this CEDS were taken from the

Economic Development Agencies CEDS landing page and the National Association of

Developmental Organizations CEDS 101 page, which contained specific guidelines and information

on how Tribes can better construct plans that are centered around culture, values, needs and goals.

Sections containing general population statistics, specific development and trade goals (divestment

from pulp and paper products, development of quality of life infrastructure), cultural resilience as a

result of recent natural disasters/COVID and evaluation frameworks were significantly updated from

the previous CEDS.

To revise this document, a multi-layered approach was utilized. First, upon expiration of the existing

5 year period of the former CEDS, a request for consultant or advising firms to assist with the

creation of a new plan, with a due date of November 5th, 2021. After the application window had

closed and a firm was selected, a request for comments from residents on Indian Island was sent out

that lasted a period of two weeks. As mentioned above, code 303.7 (Requirements for

Comprehensive Economic Development Strategies) EDA and NADO resources were utilized to

ensure that the plan would be both effective for the specific needs of the Penobscot Nation while still

accomplishing the federal goals and regulations for a CEDS. Following the community engagement

period, the 12 directors of the Penobscot Nation’s municipal departments were consulted and

feedback solicited on goals for the updated CEDS. After including feedback from both the general

public and departmental heads, the plan was sent for review to the Nation’s Economic and

Community Development Committee, who examined the macro-level goals, the feasibility of

implementation of the plan over the next 5 to 10 years, and its adherence to regional CEDS

standards. The document then moved its way up for final municipal approval via the Council and

Chief/Vice Chief of the Penobscot Nation for a final review and a feasibility study of the various

included social and economic goals. Upon approval, the final draft was sent to the regional Economic

Development Agency lead for the Department of Commerce for comments and revision.

Indian Island

The Penobscot Indian Nation’s reservation comprises some 200 islands in the Penobscot River, the

most populated of which is Indian Island, home to approximately 550 tribal members, with an

additional 1,661 tribal members living off reservation, many in close proximity to Indian Island.

Although the proximity to Bangor offers more economic opportunity for the Penobscot, the Tribe has

not realized those opportunities and still experiences economic distress, high unemployment, and low

educational attainment.

The table below provides an overview of the Penobscot Indian Nation’s demographic and

socioeconomic data compared to the region, state, and nation.

Site Location Comparison to State and National

Quick Facts by

County/District

Population 2022 estimate

Indian Island,

553

Penobscot

County, ME

153,704

Maine

USA

1,385,340

333,287,562

Persons under 18 years %

9.2%

17.3%

17.7%

21.7%

Persons 65 years and older %

25.3%

20.2%

22.6%

17.3%

Median Age

52.3

42.7

45.1

High school graduate or

higher, percentage of persons

age 25+

95.7%

94.3%

94.6%

89.6%

Bachelor’s degree or higher,

percentage of persons age

25+

Households

Persons per household

Median household income

25.1%

27.5%

36.1%

35.7%

161

3.43

$41,500

64,250

2.39

$61,134

582,437

2.38

$69,543

126,817,580

2.63

$74,755

10.9%

16%

11.5%

12.8%

5.3%*

5.2%

4.8%

5.3%

Geography Quick Facts

Land area in square miles

3,397

35,385

Persons per square mile

25.14

45.2

39.2

3,531,905.4

94.4

Persons below poverty level,

percent

Unemployment Rate

* Estimate based on 2020-2022 ACS

Population – The Penobscot Indian Nation, like many Tribal communities across Indian

Country, are experiencing a population growth on reservation. Tribal citizens who left home to

attend school and take advantage of professional opportunities are seeking to return to their

homeland and play an active role in Nation rebuilding. In addition, young families are growing

throughout Indian Country as nearly one-third of the population is under the age of 18. The

Penobscot Nation reflects similar trends, as a growing number of Tribal citizens seek to relocate

and/or young people establish their own residence on the reservation, which has put pressure on

building new housing. The Penobscot maintains a waiting list for housing and continue to plan

for growth.

The public facilities and programs were created in the 1970s when the population on Indian Island

was 150 persons. Since that time the population living on the reservation has increase to ~800 in

2014, but has decreased to around 550 in 2022 based on current population trends acquired form the

American Community Survey. Population growth increases pressure on the capacity of facilities and

programs. The Tribe has worked to increase capacity of its public infrastructure to keep pace with

housing development. In order to meet continued demand for housing, the Tribe will need to expand

its community beyond Indian Island.

As Tribal citizens, many who are college educated and have professional experience, return to Indian

Island and the surrounding communities, the opportunity for the Tribe to engage in economic

development and pursue Tribal enterprise increases. Tribal professionals help build capacity to

sustain economic growth and support Native entrepreneurship.

Income and Labor Statistics – The median household income on Indian Island is $41,500, which

in nearly two thirds that of Penobscot County and Maine. The poverty rate of Indian Island is

10.9% according to the 2014 census, compared to 16% in Penobscot County, 11.5% in Maine

and 12.8% in the United States.

Household income and poverty rate reflect the shifting economic climate of the region. The

Bangor Metropolitan Statistic Area economy has experienced significant adjustment over the last

two decades as traditional natural resource-based businesses, specifically paper manufacturing,

has been replaced with service sector employment in healthcare, education, and government

services. The paper industry has all but disappeared, the greatest impact on Penobscot Tribal

citizens being the closure of the pulp mill in Old Town where a number of Penobscot were

employed at decent wages, and it provided an outlet for the Tribe to sell timber. The reduction in

timber harvesting throughout Maine has greatly impacted one of the Tribe’s primary economic

opportunities, as there are drastically fewer outlets for pulp grade timber.

Traditionally, unemployment rates on Indian Island have been slightly higher than Penobscot

County and Maine rates, as measured by Maine Department of Labor statistics and information

drawn from the ACS. Currently unemployment reported by the American Community Survey for

Indian Island is 5.3%, which is compared to 5.2% in Penobscot County and 4.8% in Maine for

the same period. For April 2016, the Maine DOL reports unemployment at 4.2% in Penobscot

County and 3.6% in the Bangor LMA, while the estimated unemployment rate on Indian Island

exceeds 25% when analyzing BIA data against Maine DOL data.

Indian Island, like other reservations, experiences chronic unemployment or underemployed as

many Tribal citizens hold down multiple jobs to earn a livable wage. While the region’s

economy impacts opportunities for Tribal citizens, structural barriers to economic development

introduce challenges to sustaining Tribal enterprise and Native entrepreneurship. Greater

understanding of incentives, increased access to capital, and focused technical assistance will

increase economic development opportunities, which will have a direct impact on employment

and wages.

Education Attainment – Education attainment of adults 25 years and older is an indicator of

economic opportunity. Economic adjustment in the region, a move away from low-skilled

employment, has been a catalyst for Tribal citizens to pursue higher education. The Penobscot

have great access to the University of Maine, Husson University, Eastern Maine Community

College, and other institutions to pursue an associates, bachelors, or graduate education, as well

as specialized training and professional development. Currently, 10 percent of Tribal citizens

living on Indian Island (55 individuals) are enrolled and actively engaged in higher education. It

is expected that this percentage will continue to grow and the number of Penobscot Tribal

citizens with a college education will exceed 30 percent (with current attainment of bachelor's

degrees or higher for 25+ at 25% of the 25+ population), a threshold economies strive for to

sustain economic growth. By guiding young people towards those areas of study that have

economic opportunity, the impact on the economy will only increase.

Penobscot Indian Nation At Its Best

When a community, organization, or individual is at its best, often desired results are realized.

Unfortunately, community planning processes are focused on problems and challenges, rather

than identifying the positive characteristics that support actions when we are at our best. The

Penobscot Indian Nation, like any community, should strive to function at their best in order to

realize the vision for the future that supports self-determination and sovereignty. By not being

intentional in evaluating the community at its best, you can make assumptions and misinterpret

strategic advantage, as well as overlook potential opportunities that can leverage strengths.

When the Penobscot Indian Nation is at its best, the entire community ecosystem is highly

functioning as culture, the environmental, social bonds, education, and the economy are

contributing to the ideal sense of place. Penobscot Tribal citizens and heads of Tribal

government departments were asked to describe when the Penobscot Indian Nation was at its

best. Seven key themes surfaced that are summarized below.

Penobscot Indian Nation is at its best when it …

Cultural Heritage

The Penobscot’s identity embodies its rich cultural heritage. When the Nation is at its best its

culture is celebrated by Tribal citizens and shared with visitors. Annual events, such as the

Native American Festival in Bar Harbor, as well as various social gatherings throughout the year

serve to educate Native and non-Native people alike about the cultural traditions that shape the

Penobscot and Wabanaki people. Investments are made in younger generations to ensure cultural

traditions are passed down, are authentic, and are preserved. Its language is widely practiced and

incorporated into daily life to strengthen pride amongst its people.

Economic opportunity is guided by cultural values. Native entrepreneurs turn to cultural heritage

as a foundation for business development, creating products and services tied to Penobscot

traditions as a means for economic growth and increased cultural awareness. Penobscot culture is

integral to flourishing in the experience economy and plays a central role in economic

development.

Community Bond

There is strength in unity as the community comes together in spirit, around priorities, in times of

crisis, and to take action for the greater good of the Penobscot people. Coming together as a

community that recognizes no one individual is as strong as the community as a whole. A strong

community bond builds trust, fosters dignity and respect, and promotes resilience across the

Tribe. Broad community engagement ensures all voices are heard and considered in the process,

which leads to a culture of trust throughout the Penobscot Indian Nation. Reaching for

consensus is the goal that sustains a tightly woven social fabric and motivates Tribal citizens to

accomplish a shared vision.

Economic Prosperity and Jobs

There is a diversified economy based on cultural values and Tribal assets that creates

employment opportunities within Tribal ventures, Native entrepreneurship, and regional

businesses that extend to all Tribal citizens. An economic center exists on Indian Island that

sustains business ownership for Native entrepreneurs, provides essential goods and services, and

supports job creation that leads to increase household income. There is a move from scarcity to

abundance as there are enough resources and opportunities that people are not in competition or

conflict.

Education and Learning

Education is promoted and access provided to all Tribal citizens to pursue higher education,

vocational training, and/or professional development to ensure the skills and knowledge to

realize professional success. A culture of education and learning is instilled in young Tribal

citizens that support Penobscot culture, life skills, vocation, and professional development. With

education and learning comes a more productive, focused, and successful workforce that serves

as a model for future generations.

Environmental Stewardship

The Penobscot are one with the environment as it is integral to culture, community, and

commerce. The environment plays a central role in decision-making and its stewardship is

critical to the Tribe’s future. Natural resources are managed with the intent to provide for the

next seven generations. The Penobscot are considered the trusted voice in monitoring and

informing environmental policy for the region.

Strong Leadership

Strong leadership is demonstrated on Tribal Council, when the Penobscot are represented on

boards and committees, and in the broader regional community, as a strong voice is necessary to

preserve and protect the sovereign interests of the Tribe. Leadership appreciates the active role

it plays in economic development and recognizes the need to maintain a separation between

Tribal Council and the Tribe’s economic development interests.

Health, Safety, and Wellbeing

The health, safety, and wellbeing of Penobscot Tribal citizens are of foremost concern and the

Tribe strives to provide the necessary healthcare, public safety, and social services to live a

productive life that contributes to the future of the Tribe.

Values

Sound economic development is informed by the core values of individuals, families, and the

community. The Penobscot Indian Nation, as a people and a community, is guided by and

committed to values that are embodied in the culture and contribute to the strong community

bond. Alignment with these core values is key to effective economic development and leads to

sustainable employment opportunities and continued economic growth. Below outlines core

values identified by Tribal citizens and Tribal government department heads.

Individual

●

Honesty

Trust

Respect

Productive and Hardworking

Education and Knowledge

Positive Attitude

Opportunity and Growth

●

Cultural

Environment

Health

Empathy

Independent

Make a difference

Open to change

Family First

Trust

Respect

Loyalty

Empathy

Support and Caring

Health

●

Good Communicator/Active Listener

Productive members of society

Environment

Judgment Free

Elevate Each Other

Opportunity and Growth

Safety and Security

●

Health

Trust

Respect

Empathy

Fairness

Integrity

Productive and Hardworking

Family

●

Community

●

Pride in being Penobscot

Strong Penobscot Identity

Cultural Relevance

Environmental Stewardship

Kind, Caring, and Compassionate

Safety and Security

Equal Opportunity

Ability to Live on the Reservation

Asset-Based Community Economic Development

Asset-based community economic development concentrates on existing community assets to

build stronger, more sustainable communities in the future. The Penobscot Indian Nation is rich

in assets, which point to potential economic opportunity and growth. The assets and strengths

outlined below inform the CEDS strategies and guide the Tribe’s economic development

direction.

Community Capital Analysis

The concept of “community capitals” offers the Penobscot Indian Nation an overarching

framework that puts in context Tribal assets associated with multiple forms of capital. The notion

of “capital” is usually associated with business and investment. A fundamental definition for

“capital” is a resource or asset that can be used, invested, or exchanged to create or leverage new

resources. Community capital considers seven forms of capital that interact in the development

process.

Taking a systems approach using the seven forms of capital as a framework allows the CEDS

process to map assets, identify resources, surface opportunities, and leverage support in an

integrated fashion that creates programming, partnership, funding, and policy opportunities to

advance the strategic direction of the Penobscot. The figure below reflects a community

ecosystem and the forms of capital that interact to create a vibrant community.

Figure 1: Community Capitals Framework

Table 1: CEDS Community Capitals–Overview

Natural

●

Cultural

River/Water

130,000 acres

Native Foods

Forest Products – 65 products – New

Markets - Diversity

Native Guides

Wind – Wind Power

Medicinal Plants

Tree Growth

Maple Sugar

Tipping

Tribal Timber Harvest

Elver – Adult Eels

Trail System

Habitat Diversity – Wetland and

Uplands

Aquifers

Islands

Land Use Policies

Forest Management Plan – Sustained

Yield

Island Community

Mining and Minerals

Wildlife

Destination

Gravel Pits

Select Harvest – Habitat Focus

Multiuse

Land acquisition fund

●

Natural Landscape

Cultural Trail System

Fish and Wildlife – Preservation and

Conservation

History Preservation

Strong ties to Wabanaki

Brothers/Sisters

Sustenance Lifestyle

Canoeist

Athletes

Isolation

Authors

Media Works

Abbe Museum/Other Cultural

Institutions

Petroglyphs

Strong sense of who we are

Sense of Place

NAGPRH

Socials

Food

Drummers

Singers

Basketmakers

Knives

Artists

Museum

Language

Fiddleheads – Traditional foods

Carbon Credit Trading

Trust Land

Land acquisition fund

Reservation – Trust and Fee land

●

Human

●

Songs

Stories

Legends

Guides

Sugar Island

Elders

LD291 – Voice and Education

Knowledge

History

Ancestral territory

Centrally located

Unique to Tribe

River Infrastructure

Social

Diverse Skill Levels/Sets (workforce

development/project management)

Youth

Leadership

Smart People

Access to Education

Artistic

Culturally Knowledgeable

Loyalty/Belonging

Positive/Contribute

Seven Generations

Elders

Veterans

Skilled Hunters

Skilled Canoers

Institutional Knowledge

Grant Writers

Scholarship Funds

Want to work

●

Built

Activists

Non-Indian Allies

Consortium of Tribes

Wabanaki Youth in Science - WAYS

Community Support/Scaffolding

Council Meetings

Inter-Tribal celebration

Youth Recreation

Senior Trips

Cribbage

Death in community

Men’s Group

Annual women’s paddle

Whitewater Nationals

Healthcare Clinic

Wabanaki Confederacy

Maine Basketmakers Alliance

Community Day

Community Gardens

Housing Facilities

Bingo

Elder meals

Recreational

Wellness Court

Socials

Political

●

PINE Manufacturing Space

Greenhouses

Water/Sewer

Road System in Forest Land

Available Space

Sugar Island

Mahawkanau Island

Kiosks – Tourism Statewide

Steuben/Hampden Housing

Subdivision

Bingo

Boat Ramp

Boardwalk

Senior Assisted Living

School

Health Clinic

Community Building

Office Building

Wenonah’s Place

Housing

Broadband

Gym/Exercise

Tribal Court

Elder Housing

LEED

Museum

Church – Oldest

Wooden Shingled T-Pee

Individual Camps

Air Boat

Feasibility – Hospitality

Lot 13

Ability to lease land for Tribal

members for economic development

Nee for reservation housing

Carrabassett Valley Seasonal Housing

Financial/Economic

Sovereign Status

Ability to put land into trust

PINE – Subsidiaries

8(a) and Past Performance

Cultural Tourism

Economic Development Fund

● CEDS

● Bingo

●

● Stability

●

Reputation Nationally

Strong Environmental Voice

Agency Funding

Private Funding

USET

State and Federal Influence

Trust Tribe to monitor water over

the DEP

Committee

Representation/Leadership

Wabanaki Confederacy

Tribal Lawyer/Ambassador

Tribal Court

Lobbyist

MITSC

Wabanaki Public Health

Member of various Intertribal

organization

Four Directions

●

Lease Revenue

638 Funds

Natural Resources

Trust Fund

Oxford Revenue

Per Capital Fund

Land Acquisition Fund

Trade

Chimolly Trading Post

Museum

Fishing Rights

Municipal Revenue

Big Game Hunting

Tax Exempt

Court Fees and Fines

HubZone

Tribal Member Logging Contract

Rainy Day Fund

Economic Diversity

Grants

Penobscot Community Capital Overview

The Penobscot enjoy an abundance of community capital and assets that enhance the Tribe’s

economic development potential. Across the community ecosystem the relationship and

interconnectedness of various assets create leverage points that lead to economic opportunity.

Over time new assets will emerge and existing assets may diminish.

In analyzing assets, gaps surface that require investment to fully realize the potential of the larger

community system. To fill gaps, capital can be leveraged through partnerships and collaborative

efforts that lead to increased accumulation and impact without having to establish considerable

new infrastructure and relationships. Limitations in financial capital present a challenge to the

long-term sustainability of economic growth. There is a growing need for economic

diversification that continues to build on the strengths of the Penobscot. Diversification should

include investments in ventures both on and off-reservation. As with any asset, they must be

protected to sustain their value and ensure long-term impact.

Below offers an analysis of assets associated with the seven forms of capital.

Natural Capital

Penobscot Indian Nation has over 130,000 acres of land held in trust or as fee land situated in a

number of large parcels in eastern, central, and western Maine. Much of this land is in tree

growth and is actively managed for production. Significant stands of rock and sugar maple

present opportunity for maple syrup production. In addition, the Penobscot River and the nearly

200 islands north of Indian Island serve as the homeland for the Penobscot and provide the Tribe

with a host of economic opportunities, particularly related to tourism. Because of the land base,

the Penobscot have the opportunity to pursue alternative energy from wind generation, as well as

establish a carbon credit program. A host of other natural capital assets are available to the

Penobscot including trail systems, a diverse habitat, and the abundance of medicinal herbs and

plants that can be cultivated to support economic development.

Cultural Capital

Assets associated with cultural capital are immense given the cultural traditions that the

Penobscot continue to practice. Culture serves as a foundation from which community values are

based, social capital formed, and economic opportunity shaped. The natural landscape is

intertwined with the cultural tradition, which are reflected in the Penobscot language, its songs

and stories, recreation practices, and traditional food. Given the relationship between the natural

environment of the Penobscot homelands and cultural traditions, there is a strong sense of place

that adds economic value. Basketmaking, woodcarving, knife making, and guide services present

great opportunity for Native entrepreneurs and are a vital component to a broader cultural

tourism initiative.

Human Capital

The Penobscot hold great value in education and knowledge. The Tribe has played an active role

in investing in Tribal citizens, financially supporting personal and professional development

through education and training. The Penobscot people are diverse in their skill set, which creates

flexibility in economic development opportunities. Cultural traditions influence human capital as

the Penobscot have a strong, valued elder population that plays an integral role in community.

This is juxtaposed with a growing population of young people 18 years and younger who are

actively engaged in their development, assisted through programs such as the Wabanaki Youth in

Science (WAYS). Tribal leadership is strong, and a growing number of young people are

actively engaged in Tribal affairs. Education attainment remains below national standards but is

improving considerably with 10% of the population on Indian Island pursuing higher education.

With economic opportunity education is likely to continue to rise, which will further enhance

human capital. A strong entrepreneurial culture has emerged across Tribal citizens including the

growing number of artisans generating income through the sale of artwork, as well as other

Native entrepreneurs who have established small businesses.

Social Capital

The Penobscot, like many Tribal communities, have a strong social bond that serves as

scaffolding for all aspects of community life. Focused attention on supporting the development

and growth of young people is a key investment in the Tribe’s future. The social infrastructure is

well established through the various government departments and programs, such as elder meals,

annual women’s paddle, men’s group, and senior trips. A wide variety of events, some closed to

the public, while many are open to visitors, help to extend social bonds through the celebration

of Penobscot culture.

Built Capital

Considerable built capital exists to support life on Indian Island, specifically water and sewer.

The PINE building, after renovation and expansion, will be the host location for the Tribe’s new

Salmon Brood Center project. On Indian Island there are a host of buildings that support

community activities, including the school, housing, assisted living, health clinic, church,

recreation center, youth activities hall, and museum. Sugar Island, boat launch, trail systems,

and kiosks provide both infrastructure and programs to support tourism development. To

support timber harvesting, the Penobscot have established a road system throughout their

forestlands.

The Penobscot Nation has considerably increased investment in capital improvement projects

over the past five years, and is currently engaged in construction on the above mentioned

$25,000,000 Salmon Brood Center, an $8,000,000 community center that will service as the

new home of Tribal social activities and community groups, and is engaged in the planning

process of constructing an upgraded cultural center. Additionally, a 1.3 megawatt solar build-out

is in the process of beginning construction, which will be complemented by higher internet and

communication speeds via the construction of town-wide fiber optic cables, all of which are

designed to help improve the quality of life on Indian Island as well as provide additional social,

employment and conservation opportunities to residents.

The Penobscot maintain a waiting list of Tribal members interested in returning to the

reservation. It is not unusual for 60 individuals or families within the Tribe to wait for housing.

To address demand, the Tribal Housing Department has built a 26-unit housing development and

is currently planning additional residential development. Senior housing will be a focus as there

is a growing need.

Political Capital

The Penobscot Indian Nation enjoys political stability and has a national reputation for its service

in Indian Country. The Tribe has significant influence on public policy at the state and federal

levels. Tribal citizens have been appointed to leadership positions on boards, committees, and

task forces that help shape policy and legislation regionally, as well as throughout Indian

Country. This leadership has strengthened the Wabanaki Confederacy and provided an

influential voice in regional affairs. The Penobscot Nation’s attention to the environment,

specifically water quality, has positioned the Tribe as the authority on water quality in the region.

As a result of their political capital, the Penobscot have attracted public and private funding to

help advance the Tribe’s cultural, social, and economic agenda.

Financial Capital

Financially the Penobscot have diversified their economic development interests with PINE,

forest products, lease revenue, and modest income from gaming (online gaming and Oxford

casino). The Tribe manages considerable federal grant monies annually including 638 funds and

a number of multiyear grants. As a result of sound fiscal management, the Penobscot have

established a series of funds dedicated to specific activities such as the land acquisition fund, per

capital fund, economic development fund, and trust fund. The recent economic adjustment

related to timber harvesting, and the graduation of 8(a) businesses from PINE show there is a

need to further develop revenue streams associated with economic development activities.

Strengths, Weaknesses, Opportunity and Threats (SWOT)

A SWOT analysis was conducted based on an environmental scan and two-day workshop with

Tribal citizens and Tribal government department heads. The SWOT focused on economic

development and those issues related specifically to generating economic activity, job creation,

wealth, and capital investment.

Penobscot Economic Development SWOT

Strengths

● Political capital

● Stability

● 130,000 acres of land

● Rich natural resources

● National presence and recognized

voice

● PINE track record

● EDA support and established CEDS

● Track record of grant funds to support

economic development

● Young people pursuing higher

education

● Momentum – economic development

● Cultural tourism infrastructure

● Well managed finances

● Skilled labor

● Preferential status

● Culture of entrepreneurship

Opportunities

● Political influence

● Partnership and collaboration

● Four Directions Development

Corp./Native CDFI

● Cultural tourism initiative

● Access to education – UMaine

proximity

● Expanded technical assistance

● Expanded federal funding partners

● Preferential status – Sect. 17/8(a)

● Emerging energy cluster and niche

manufacturing

● Natural resources

● Private sector experience

● Setting benchmarks and performance

standards

Weaknesses

● Lack of dedicated staff

● Depth of economic diversity

● Reliance on PINE

● Limited access to capital

● Technical assistance capacity

● Lack of integration of economic

development in organization culture

● Limited non-federal funds to support

activity

● Trust process

o Expensive

o Slow

● Ability to bond

● Due diligence process

Threats

● Complacency

● Government regulations

● Competing interests

● Funding

● Access to capital

● Federal and state agencies

● Macro-economic forces

● Competition

● Technology

● Policy/Rule changes

● Setting benchmarks and performance

standards

● Competing interests

● Not In My Backyard (NIMB)

Economic Development Visioning

To gain a sense of vision, Penobscot members participated in a process that explored what the

Tribe should be doing more of …, less of …, and completely different …, as well as were asked

to share three wishes they had to advance economic development. From this process, and a series

of individual and group discussions, a vision was constructed.

More of …, Less of …, and Complete Different …

The Penobscot Indian Nation has established a foundation from which economic development

can continue to grow. Through an appreciative inquiry process a series of themes emerged that

the Tribe can do more of, to strengthen its economic development efforts and realize better

results.

More of …

Economic Diversification and Access to Markets – The Penobscot’s economic diversity can be

strengthened by considering existing assets, regional value-chains associated with economic

clusters, and expanding access to markets. Supporting both Tribal enterprise and Native

entrepreneurs with collaborative marketing, branding, and promotion to broaden and diversify

markets.

Analysis and Metrics – Expand the analysis and assessment of current Tribal enterprise to

support growth and anticipate the emerging nature of business. An intentional and wellstructured process to evaluate current operations beyond simply revenue generation is needed so

the Tribe can make more informed decisions as to its economic development investments. This

process provides a level of due diligence that informs key performance indicators. Important to

the analysis process is the continued use of asset-based development and periodic surveying of

Tribal citizens to gain a perspective. Power projects are being considered.

Tourism – Cultural and Eco – Tourism presents the Penobscot with great economic opportunity

and establishing programs, services, and technical assistance to grow cultural and ecotourism

activities for the Tribe, and Native entrepreneurs will support economic development that is

aligned culturally. Expansion of guide services, cultural training, customer service training,

collaborative marketing, and tourism product development and integration are opportunities to

increase economic growth for the Penobscot. Larger hospitality development may be an

opportunity and needs further consideration.

Business Development and Entrepreneurship Training – Attracting or developing larger scale

businesses that can utilize the PINE facility creates economic impact if the enterprise is

sustained. The number of Native entrepreneurs, many who work in the tourism sector, could

benefit from increased capacity in business acumen. With this training an increase in business

ownership of microenterprise can emerge, building a stronger Tribal economy. Facilitate

internship opportunities to support training needs and provide Tribal citizens with sound

experience.

Action – Moving plans to action is critical for the community to realize its vision and to build

confidence amongst its people. Follow through and execution of key strategies and action plans

is needed to demonstrate a commitment to continually improve the quality of life for the

Penobscot people. More investment and action in the community and Penobscot culture will lead

to a sense of place that empowers Tribal citizens.

Tribal Government – Greater collaboration and links across Tribal government departments can

lead to organization efficiencies, enhanced programs and services, and funding opportunities that

recognize innovation. More training of Tribal leadership, elected officials, and Tribal

government staff is always valuable as things continually change. Developing a comprehensive

orientation for Tribal leaders and committee members as they engage in Tribal government.

Less of …

Expectation on PINE – Although PINE has realized strong revenue over the years, there is a

need to further diversify and place less reliance on PINE activities.

Reduce Dependence on Timber Harvesting – Move towards higher value forest/wood products

that have a greater return on investment.

Moving Beyond Silos – Given the interconnectivity of economic development there is need to

move beyond Tribal government department silos and work collaboratively to make the best of

scarce resources.

Underperforming Operations and Nonproductive Assets – Evaluate current operations and assets

to determine performance and value. Reduce Tribal investment in those areas that are not

strategic and performing.

Completely different …

Community Engagement – Establishing new ways of community engagement to increase

participation and ensure all voices are heard in the process.

Succession Planning – As Tribal leadership, staff, and committee members age or find new

opportunities there is an increasing need for succession planning to ensure a smooth and

competent transition. Establishing Tribal policy, raising aspirations, and provide training to build

capacity supports sound succession planning.

Mentorship and Professional Development – The Tribe can take an active role in supporting

workforce and professional development of Tribal citizens by building a skills database of those

citizens looking for employment, as well as establish mentorship opportunities and

internship/apprenticeships with area employers.

Penobscot Language School and Native Cultural Training – Establish a language school and

expand cultural training to all Tribal citizens.

Economic Center – Create an economic center on Indian Island that employs Tribal citizens,

provides basic goods and services, and serves as a hub for the community.

Three Wishes

A series of themes emerged when considering three wishes for the Penobscot’s economic

development direction.

Sovereignty, Self-Determination and a Self-Sustaining Community Ecosystem – Exercise full

sovereignty that is recognized and respected by the State of Maine so that the Penobscot Indian

Nation realizes self-determination and are able to provide for and sustain a robust community

ecosystem for its Tribal citizens. Full employment for all Tribal citizens in Tribal enterprise and

Native owned businesses across diverse economic sectors.

Dedicated Economic Development Department – Grow the dedicated economic development

department so it has capacity to bring about the goals stated in this CEDS.

Cultural Development – Grow cultural enterprise that creates relevant jobs and serves as a means

to foster cultural preservation through Native entrepreneurship and Tribal ventures that advance

broad economic development goals. Cultural and eco-tourism, artisan handmade, and specialty

food production provides full-time employment that raises household income to the state median.

PINE, Business Development, and Capital Investment – Utilize PINE and its facilities

strategically to support job creation for Tribal citizens and revenue generation to enhance Tribal

programs. A clear separation between Tribal government and business/enterprise

development is key to the long-term success of the Tribe’s economic development program.

Expand industrial development outside of Indian Island through focused investment and sound

business planning. Explore various capital investment strategies to further diversify revenue

streams for the Tribe.

Gaming – Continue to exercise sovereignty that leads to expanded gaming operations to the

Penobscot.

Quality of Life and Place – Improve the overall wellbeing of Tribal citizens through sound

planning; effective execution of strategy and action plans; dedicated investment that impacts the

entire community,and more efficient and effective regulations that support business

development, not create barriers.

Economic Clusters

Economic clusters that present opportunity for the Penobscot Indian Nation are tied to critical

assets the Tribe currently possesses and are informed by the regional economy and value-chains

that can be leveraged. Given scarce resources it is important that the Penobscot target its

economic development strategy on a limited number of key economic clusters to minimize

dilution of both capacity and service, and to ensure impact. Economic clusters that emerged

were:

●

Agriculture, Aquaculture, and Fishing

Artisan – Handmade

Contracting, 8(a), and HubZone

Energy, including Power Projects and Renewable Community Projects

Forest/Wood Products

Tourism, including Eco-tourism and Cultural Tourism

Agriculture, Aquaculture, and Fishing

Although the Penobscot are not actively engaged in agriculture, aquaculture and commercial

fishing on a large scale, increased attention is being paid to food sovereignty across Indian

Country that present opportunity. As a part of this, the Penobscot Nation has recently entered

into its first larger aquaculture project, which is a salmon brood center and is currently being

developed here on Indian Island. The Penobscot have both a land base in which it could cultivate

for agricultural purposes, as well as an abundance of water that may be harnessed for

aquaculture. The close proximity to the ocean also presents opportunity for commercial fishing.

In addition to growing the raw materials, considerable opportunity exists in value-added

production.

Artisan-Handmade

The Penobscot have a longstanding history of artisan-handmade activities that are marketed to

travelers along the Maine coast. This rich cultural tradition fosters economic activity by artisans

that support economic growth in this sector. There is a need for greater access to markets in order

to build the scale that can support self-sufficiency. In addition, building capacity in business

acumen, specifically financial literacy, accounting, and marketing is essential for increasing

household income.

8(a) federal contracting and Native-to-Native Business Development

PINE has built considerable capacity in federal procurement and contract management. It has

established a strong presence in federal 8(a) program that has generated significant economic

impact for the Tribe. Because of the breadth of the 8(a) program, continued opportunity exists

for the Penobscot to receive preferred contracting status with the federal government. Similar in

nature is the opportunity to facilitate Native-to-Native trade and business development and

international trade for Native goods and services. Creating access to markets is an essential

service needed in Indian Country. There has been considerable discussion identifying the need

and no entity exploring the opportunity.

Energy

The Penobscot are actively engaged in the development of alternative energy generation and

distribution projects, particularly solar, wind and biomass. These projects have the opportunity to

supply inexpensive energy to the Nation, its citizens, and Tribal business interests, as well as a

revenue stream from the sale of energy to be distributed through the grid. Federal funds have

supported project feasibility in alternative energy and now project development is being

considered.

Forest Products

With nearly 100,000 acres of trust land dedicated to tree growth, the forest/wood products sector

is one of the Penobscot’s most important economic clusters. The Tribe currently has 65 products

within the forest products sector, the majority supplying raw materials to paper mills, biomass

energy, and other value-added producers. Further diversification in value-added forest/wood

products is necessary.

Tourism – Cultural and Eco

The Penobscot have a long history in guiding travelers through the region with the most notable

being Henry David Thoreau. Today the Penobscot are engaged in a variety of cultural and

ecotourism ventures, both as Tribal enterprise and as Native entrepreneurs. With regards to

economic development, tourism is accessible to small-scale Native entrepreneurs who are

looking for additional income as desired, to large-scale tourism development led by the Tribal

government or its economic development organization. Because of the breadth of the tourism

sector, the Penobscot should consider strategic product development and diversification to

provide focus so measurable impact can be realized. There is opportunity to create vertical

integration of tourism products and assess gaps in the value-chain that can be filled. To achieve

this a long-term strategy is necessary. A feasibility study is currently underway in this regard.

Goals and Objectives

A series of goals and objectives have been defined to advance the Penobscot Indian Nation’s

CEDS. The goals and objectives have been organized around four core themes – Thriving

Economic Climate, Abundant Natural Resources, Rich Culture, and Human Capacity.

Thriving Economic Climate

Goal: Over the next five years the Penobscot Indian Nation will diversify its economy by making

strategic investments in enterprises that are asset-based and are aligned with the Tribe’s cultural

values; providing access to capital and exposure to new markets; creating jobs for Tribal citizens

at wages that increase household income; attracting capital investment, and generating revenue

to support Tribal programs and services.

Abundant Natural Resources

Goal: Over the next five years the Penobscot Indian Nation will pursue asset-based development

that utilizes the Tribe’s natural resources in a sustained, well-managed practice that supports

value-added production, furthers economic diversification, and expands both sectors and

markets.

Rich Culture

Goal: Over the next five years the Penobscot Indian Nation will invest in cultural development

activities that lead to economic growth and self-sufficiency for Tribal citizens, expands Tribal

citizens’ cultural knowledge, enhances experiences and raises awareness of Native and nonNative people, and fosters Native entrepreneurship by building capacity, providing technical

assistance, creating access to markets, and promoting Penobscot products and services that

remain authentic to Penobscot culture, without exploitation and commodification.

Human Capacity

Over the next five years the Penobscot Indian Nation will invest in its Tribal citizens to advance

a culture of education and knowledge, develop sound leadership with the skills to protect the

sovereign interest of all Penobscot people, mentor young people and those with aspirations so

they achieve their greatest potential, inspire and support Native entrepreneurs in their quest,

build a skilled workforce with the capacity to meet the evolving demands in the workplace, and

effectively plan succession to ensure Tribal citizens have the capacity to lead in times of

transition.

Strategies and Implementation/Action Plans

The CEDS key strategies and implementation/action plans for each of the core goals are

outlined below. The implementation/action plans are designed to be implemented over

the next five years.

Thriving Economic Climate – Strategies

Strategy: Strengthen economic development department with dedicated staff to support business

development efforts, provide technical assistance to Native entrepreneurs, manage due diligence

for Tribal investments, provide guidance on various incentives available to prospective business

partners, and monitor and evaluate progress towards goals.

Staff: Michael Burgess

Costs: $150,000 annually

Funding Sources: EDA Planning, USDA Rural Business Development Grant (RBDG), Other

Grants

Timeframe: Ongoing

Implementation:

Detail the mission and scope of services the economic development department will provide,

develop job descriptions for staff positions, and hire qualified individuals to deliver services

and fulfill the scope of work outlined for the department.

Cultivate relationships with key partners to support economic development services for the

Penobscot Indian Nation, including institutional and financial stakeholders that can assist the

Penobscot to build a strong economic development department.

Gain an understanding of the various incentive programs, grant sources, and technical

assistance that supports economic development in Indian Country.

Establish a monitoring, evaluation, and due diligence system for Tribal business and potential

investments.

Strategy: Develop programs and services to support Native entrepreneurs, artisans, and guides

establish microenterprise (5 or less employees) that strengthen the local economy and advance

broader economic development goals of the Penobscot Indian Nation. Study the possibility of a

business incubator.

Staff: Economic Development Director

Costs: $50,000

Funding Sources: USDA RBDG, Other Grants

Timeframe: 24-36 months

Implementation:

Assess the needs of Native entrepreneurs and build technical assistance capacity in these

areas to support business development. Consider incorporating established programs and

focus on the possibility of forming an incubator tailored to the needs of the Tribe.

Strategy: Launch a market development initiative that includes Native 2 Native business

development, international trade, and ecommerce.

Staff: Economic Development Director and External Consultant

Costs: $75,000 feasibility and business planning; Estimated $50,000 annually based on

feasibility

Funding Sources: Administration for Native Americans (ANA), USDA RBDG, Other Grants

Timeframe: 9-12 months after work begins.

Implementation:

Conduct feasibility and business planning study to determine the viability of a Native 2

Native business development program where the Penobscot establish a Tribal venture to

facilitate and broker trade across Nations.

Work on actual venture and actual marketing material, not just study and examples.

Develop a series of collateral marketing material – print and digital – that support business

development, promotes Penobscot goods and services, and outlines the advantages of doing

business in Indian Country

Strategy: Engage in research and development to identify industry and sector trends that are

aligned with the Tribe’s existing assets, cultural values, and investment criteria.

Staff: Economic Development Director

Costs: $50,000

Funding Sources: EDA Planning and Technical Assistance, Other Grants

Timeframe: Ongoing

Implementation:

Renew application for EDA’s Planning and Technical Assistance grant, which can assist in

establishing a system in which industry and sector trends in key economic clusters are

researched to inform future economic development projects. Make research practical and

usable to the Tribe’s needs.

Abundant Natural Resources – Strategies

Strategy: Further diversity forest/wood products sector to compensate for economic adjustment

taking place in the paper industry by considering value-added manufacturing, biomass energy

generation, and maple syrup production.

Staff: Chuck Loring, Michael Burgess

Costs: $150,000

Funding Sources: ANA, USDA, Forest Department revenue, Other Grants

Timeframe: Ongoing

Implementation:

Evaluate current forest management plan to identify opportunities for diversification and

establish an action plan that includes feasibility and market analysis for value-added

production, biomass energy generation, and maple syrup production. Collaboration with

external partners and trade organizations in the forestry sector (FOR/Maine) can be utilized

to provide an initial boost in the target industries mentioned above, and help tie them into the

greater Maine ecosystem for these industries.

Strategy: Establish a Tribal brand that positions Penobscot products in a cultural context and

communicates to consumers the Penobscot’s commitment to environmental stewardship.

Staff: Economic Development Director

Costs: $100,000

Funding Sources: ANA, USDA RBDG, National Endowment for the Arts (NEA), Other Grants

Timeframe: Ongoing

Implementation:

Identify Tribal products and services that could benefit from a uniform Penobscot brand and

work to establish a brand narrative, positioning, marketing plan, and design guidelines. The

brand can extend to Native entrepreneurs and include:

●

Specialty Foods

Artisan Handmade

Manufactured and Value-Added Goods

Agriculture/Aquaculture/Seafood

Power

Rich Culture – Strategies

Strategy: Establish a comprehensive cultural/eco-tourism initiative that integrates a wide range

of projects that include the feasibility of large-scale Tribal ventures in hospitality, to support for

Native entrepreneurs to increase access to markets, develop business acumen, and pursue product

development.

Staff: James Francis, Michael Burgess

Costs: Program Dependent

Funding Sources: ANA, EDA, USDA RBDG, NEA, Private Foundations (Surdna Foundation,

Ford Foundation), Other Grants

Timeframe: Ongoing

Implementation:

Review eco and cultural tourism possibilities in order to find a project where member

services can be added.

Develop a cultural training program for Native entrepreneurs that enhance their produce,

educate and raise awareness of Penobscot and Wabanaki culture, and strengthen the overall

experience.

Conduct a feasibility study and needs assessment focused on Native guides and consider

establishing a cooperative or other business model that builds marketing capacity, supports

booking, and provides training (cultural, business, and customer service) to enhance the

experience.

Expand voluntourism opportunities on Indian Island that are coordinated through the Cultural

and Historic Preservation Office.

Strategy: Expand tourism infrastructure to promote Penobscot cultural/ecotourism, enhance

existing cultural/ecotourism offerings, and support product development for Tribal enterprise and

Native entrepreneurs.

Staff: James Francis, Michael Burgess

Costs: Program Dependent

Funding Sources: ANA, USDA RBDG, NEA, EDA, Other Grants

Timeframe: Ongoing

Implementation:

Economic Development and Culture will cooperate and work together on this initiative,

focused on tourism and product development.

Strengthen the new museum’s role in cultural tourism as a welcoming/visitors center by

enhancing the visitor’s experience through updated exhibitions, expanded programs, and

consistent hours.

Expand and update kiosks throughout the region to promote Penobscot and Wabanaki culture

and market Penobscot tourism offerings.

Strategy: Develop tourism infrastructure on Tribal land outside of the reservation, such as the

Carrabessett Valley, that promotes ecotourism and recreation.

Staff: Economic Development Director

Costs: $50,000 feasibility, Other Program Dependent

Funding Sources: EDA, ANA, USDA RBDG, SSBCI, Other Grants

Timeframe: Ongoing

Implementation:

Work on rezoning Penobscot lands in CV to increase their value and make development

possible.

Work on other rezoning projects where appropriate, focusing on tourism infrastructure.

Review possibilities available in CV and other locations for potential tourism projects.

Human Capital – Strategies

Strategy: Support leadership development of elected officials, Tribal staff, and Tribal citizens

actively engaged in the affairs of Tribal government.

Staff: Kirk Francis, Michael Burgess

Costs: $25,000

Funding Sources: Internal, ANA, Other Grants

Timeframe: Nine-month development; ongoing operations

Implementation:

Evaluate existing leadership training for Tribal government and adopt aspects of various

programs that best meet the needs of the Tribe. USET members serve as a resource for

training programs.

Strategy: Establish a Native entrepreneurship program for both adults and young people

interested in pursuing their own business.

Staff: Economic Development Director

Costs: $50,000

Funding Sources: USDA RBDG, ANA, Other Grants

Timeframe: 24-36 months

Implementation:

Evaluate various entrepreneurship programs. Focus on feasibility of developing a business

incubator that can serve all citizens who wish to start their own business. One specific

program may be best suited for the Penobscot depending on the interests of participants.

Strategy: Develop a workforce development program that assists Tribal citizens with the

employment process, guides professional development, and assists with placement.

Staff: Economic Development Director, Candi Ewer

Costs: $75,000

Funding Sources: Internal, Department of Labor, ANA

Timeframe: 12-24 months

Implementation:

Establish a skills assessment program that evaluates Tribal citizens’ job skills and counsels

them on career paths with great potential for growth. Incorporate a database that includes

skill mapping of Tribal citizens and consider periodic surveys to grain additional insight.

Establish a relationship with the Tri-County Workforce Investment Board and area career

center to provide programs and services to Tribal citizens such as Work Ready, resume and

interview skills training, and access to Maine’s Job Bank.

Work with area employers to build a mentorship/internship program so Tribal citizens can

gain the necessary experience to be employable in the future.

Strategy: Develop an administrative skill-building program to training Tribal citizens in finance

and basic accounting/bookkeeping, project management, proposal development, and supervision

so a pipeline of talent is available for employment.

Staff: Economic Development Director, Candi Ewer

Costs: $100,000

Funding Sources: DOL, ANA, Internal, Other Grants

Timeframe: Nine-month development; ongoing operations

Implementation:

Evaluate various options to deliver content including Eastern Maine Community College,

area adult education programs, and private instructors and build a training program. Recruit

participants and deliver the training program.

Strategy: Engage in succession planning for Tribal leadership, key Tribal staff, committee

positions, and other positions as necessary.

Staff: Kirk Francis

Costs: $50,000

Funding Sources: Internal

Timeframe: Ongoing

Implementation:

Evaluate which positions warrant success planning and identify a pipeline of Tribal citizens

with the capacity to fulfill these roles. Provide leadership development skills, mentorship

and training on specific functions related to key positions.

Strategy: Invest in young people’s development by promoting a culture of education and

knowledge, expanding the Wabanaki Youth in Science (WAYS) program, and create

opportunities to gain practical experience and exposure to STEAM (Science, Technology,

Engineering, Art, and Math).

Staff: Candi Ewer

Costs: $50,000 annually

Funding Sources: Internal, ANA, Private Foundations

Timeframe: Ongoing

Implementation: Expand access and encourage broad participation to WAYS,

USET/Vanderbilt’s Aspirnault program, and other STEAM oriented programs that raise

young people’s aspiration and build skills for jobs in the 21st century.

Evaluation Framework

Evaluating the effectiveness of the CEDS, assessing its execution, and measuring its impact are

critical to the Penobscot realizing its goal to assert Tribal sovereignty. To foster an

organizational culture that embraces continuous improvement, a formal process based on a

traditional action research cycle outlined below will be designed and applied to all aspects of the

CEDS

In evaluating the CEDS effectiveness and measure impact on desired goals and objectives two

distinct areas are defined – economic development programs and services, and organizational

infrastructure and capacity. These two focuses are further subdivided into specific key

performance indicators; Ten key metrics for economic development programs and services, and

six metrics for organizational infrastructure and capacity. Upon finalization of this CEDS, a

baseline of Nation resources in each of the two focus groups will be taken, and specific

measurements taken according to the type of resource being measured and its baseline quantity.

The inclusion of specific benchmarks, reporting requirements for staff and semi-monthly

meetings with specific stakeholders will serve to ensure that the overarching goals laid out in this

CEDS are accomplished.

Economic Development Programs and Services

The Penobscot’s CEDS goal to advance Tribal sovereignty and realize self-determination,

coupled with the purpose of its programs and services are grounded in Penobscot culture and

heritage, directed by its natural resources and Tribal assets, and considers the impact to the entire

community ecosystem. Culture and heritage, natural resource conservation, and the effect on

youth and future generations, provide an overarching guide to shaping and evaluating the

Penobscot economic development programs and services. To evaluate the effectiveness of the

CEDS and measure impact of the economic development programs and services, an evaluative

process that clearly defined metrics for the following areas is essential.

●

Economic Growth

Job Creation

Capital Investment

Natural Resources

Culture and Heritage

Education, Training and Workforce Development

Youth Initiatives

Transportation, Water, Sewer, and Other Infrastructure

Each of these target areas has been given one to two potential ways to measure and ensure

adherence to the CEDS and completion of stated goals.

●

Economic Growth: A collection of personal income (within Indian Island, within the Penobscot

Nation, and in comparison to Penobscot county and the rest of Maine), total municipal

population, total tax income and budget of Indian Island and total sales/income of companies on

Indian Island or Native owned can be complied yearly or semi-yearly to gage total economic

growth and wealth flows on Indian Island.

Job Creation: Compiling data on jobs created, unemployment rate and quantity of residents

receiving means-tested or categorical welfare can be utilized to satisfy the requirement of number

of jobs created and to create a more-full picture on contributing factors to the number of jobs

created and lost during a year or multiyear timespan.

Capital Investment: Because this category can be expanded to business and municipal

investments, the value of attracted businesses and number of new businesses established are

important. This category can also help to explain job creation and would likely be measured biyearly due to the process that occurs during business attraction often occurring over the span of a

year.

Natural Resources: Given our positioning as an island of around 22 square miles, land area and

resource conservation are crucial to the wellbeing of the Penobscot Nation; Tracking changes in

land use policy, biodiversity changes and adoption of sustainable practices by Penobscot

businesses or residents could assist in achieving CEDS goals.

Culture and Heritage: Incorporation of tracking metrics for the number of cultural events and

participation conducted over the year on Indian Island, headway on the preservation of cultural

landmarks and traditions for the Penobscot Nation and a measure of revenue generated by cultural

tourism could all be combined to fully measure and ensure the vitality of culture and heritage

throughout the lifecycle of the CEDS.

Education, Training and Workforce Development: Compiling the enrollment of and graduation

from technical and traditional education programs, the number of programs offered, total

educational attainment amongst Nation members, employment rate 6 months-1 year after

●

graduation and alignment of education and training programs with workforce needs within

Penobscot County will help to ensure adherence to the CEDS. Bi-yearly measurement would be

most effective in gathering employment data and educational attainment rates.

Youth Initiatives: Youth initiatives can cover both youth-targeted and youth-led programs, and

hence measurement must be able to cover both of these areas. Educational attainment amongst

youth, participation in youth-targeted programs and surveyed satisfaction levels for the available

programs and opportunities, measured yearly, could provide a tangible system of measurement to

ensure adherence to CEDS goals.

Transportation, Water, Sewer and Other Infrastructure: This category is one of the most important

economic development tasks, as it makes up the bare basic necessities to sustaining a community

within a municipality. Surveying the conditions of existing infrastructure from both citizens and

public works employees, paired with continued yearly investment in infrastructure (continuously

renewing and applying for infrastructure-based grants) provide two solid metrics by which to

measure the total composition of infrastructure. Additionally, designated goals related to

construction and repair for various Nation departments that deal with infrastructure provide an

efficient way to monitor the total change in condition of infrastructure.

Economic Development Organizational Infrastructure & Capacity

The Penobscot’s organizational infrastructure and capacity to deliver and sustain quality

economic development programs and services is critical to achieving the goal of selfdetermination. Metrics will be defined and a process of evaluation determined for:

●

Staff Capacity

Scope of Programs and Services

Execution of Strategies and Action Plans

Partnership

External Resources

Cross-Departmental Collaboration

Similar to before, each of the six focus groups will be provided one or more measurement or performance

metrics, measured bi-yearly or yearly, to ensure adherence to the CEDS and measure progress/deviance

from the plan as defined in this document.

●

Staff Capacity: Measurement of yearly staff trainig hours, obtained certifications relevant to each

employee's field, total number of employees and surveyed employee satisfaction can form a

comprehensive base of total staff capacity. Additionally, a survey of department heads on

completion of assigned tasks throughout a year (measuring backlog) accompanied by

explanations of what caused the backlog could serve to expose greater issues within tribal

government, as well as detailing total staff capacity.

Scope of Programs and Services: Quantifying the number of programs offered, the total reach (in

income/expenditures and total population engaged with) and community feedback on the

effectiveness of Penobscot Nation and various government services will better explain what

programs and resources are most utilized by Nation residents.

Execution of Strategies and Action Plans: Similar to surveying backlog under staff capacity,

measuring the execution of general strategies and action plans will rely heavily on surveying

Nation employees. Executing monthly surveys which aim to measure adherence to timelines,

●

completion rate of action items and assessment of long term outcomes and effectiveness of

previous projects will form the backbone of understanding the components of effective strategy,

strategy implementation, and can gauge adherence to CEDD's short and long term goals.

Partnership: We will track the number of business, municipal and personal partnerships formed

from a raw total numbers perspective (how many partnerships formed) but also from a quality

perspective through employee surveys (percentage of tasks completed, benefit to the tribe, et

cetera). In addition, surveys gaging partner satisfaction and benefit will be included to form a

more holistic view of the efficacy of current and future partnerships. Surveys should, ideally, be

administered every other month or bi-yearly.

External Resources: This category is closely tied to government investments (federal and state

grant programs) government programs (means-tested and categorical welfare and transfer

programs) business investment (investment in both property and people on Indian Island) and

resources transferred by individuals. As such, monitoring and reporting funding sources monthly

(type, quantity, destination and duration) will help to ensure an up-to-date comprehensive list of

funding and resources flowing on to Indian Island, as well as examining how these resources

relate to the goal of external resource management and use in CEDS.

Cross-Departmental Collaboration: Departmental collaboration is high across the 12 functional

departments on Indian Island, but no efficient program exists currently to quantify the extent of

this collaboration. As such, a combination of self-reporting on total number of shared projects by

each department (including scope, timeframe and extent of collaboration) and surveyed feedback

from staff and departmental heads can provide Nation leadership with a better idea of how

resources are being used on joint projects, and how assets from each department can be better

allocated to ensure compliance with CEDs and execution of its goals.

Economic Resilience

Economic resilience is tied to the Penobscot Indian Nation’s goal to further diversify its

economy. As the region experiences economic adjustment that impacts natural resources

and manufacturing, the Penobscot have concentrated on expanding industry sectors that

are aligned with its asset base, as well as enter new markets outside of the region to further

insulate the Tribe from economic downturn. The CEDS focus on value-added production in

the forest products sector, as well as Native 2 Native and international trade are examples

that support economic resilience.

As an export product, developing the Penobscot’s cultural heritage to appeal to high value

markets is another strategy that supports economic resilience. By design the Penobscot’s

cultural tourism offering include products that appeal across the economic spectrum,

ranging from experiences families living on a modest income can enjoy, to more unique

experiences targeting cultural tourist that are affluent and looking for a memorable

experience.

PINE’s expertise in federal contracting helped the Penobscot weather the 2009 economic

downturn. Strategic investment in PINE and its activities in 8(a) and federal contracting

support economic activity that demonstrated economic resilience.

In responding to economic adjustment, natural disasters, and other factors that require

resilience, the Penobscot have established emergency response protocols that include

strong partnership with regional, intertribal, and federal agencies and organizations.

Regionally, the Penobscot are integrated into response systems and emergency

management operations, as well as having relationships with the regional economic

development district and workforce investment board. The United Southern and Eastern

Tribes (USET) has programs and services to build capacity in economic resilience and

disaster recovery. As the regional intertribal organization, USET also has the ability to

marshal resources across its member Tribes to further assist.

Impact of COVID-19 and Natural Disasters

COVID-19: The Covid-19 pandemic induced community-wide changes on Indian Island due

to the highly infectious nature of the virus, causing communities to partially shut down

during the pandemic. These shutdowns and illness as a result of the virus heavily affected

Indian Island’s health, economic stability/output and community cohesion. Key impacts

included:

● Community and Personal Health: High infection rates strained local (Indian Island)

and regional (Penobscot County) health facilities, disrupting regular treatment for

many members of the Tribe. Lasting effects from COVID have increased healthcare

expenditures and mortality rates amongst community members.

● Economic Stability/Output: As a result of nationwide shutdowns, personal

consumption fell drastically for many non-essential goods, affecting the sales and

client base of Indian Island and Native-owned businesses. Nation members faced

slightly higher rates of job loss than Penobscot County average, and faced a similarly

long and challenging return to work timeline.

● Community Cohesion: One of the pandemic’s most noticeable effects was social

isolation resulting from extended quarantine periods. Community-wide school

shutdowns (of all levels), movement to remote work (and job loss) and the inability

to attend social gatherings contributed to a large spike in mental health crisis and

deterioration, especially amongst community members with existing mental health

diagnoses and school-aged children.

Natural Disasters: Situated inland in central Maine, Indian Island and the greater Penobscot

County area are not as susceptible to natural disasters as other, more western or coastal

Tribes may be. However, instances of flooding, winter storm damage and high winds have

contributed to existing vulnerabilities, which must be addressed to create a more resilient

community. Given the specific nature of these disasters, infrastructure damage,

environmental degradation, and population displacement stand out as the three largest

factors that must be considered.

● Infrastructure Damage: Maine’s colder climate and more northern location

predisposes it to heavy snowfall and various winter storms. The duration of winter,

accompanied by severe storms, has a major impact on the vitality of crucial

infrastructure such as telephone/power lines, roads, bridges, water/sewage pipes,

et cetera. The cost of these yearly repairs often exceeds the Tribes budget even with

assistance from federal and state grants, and thus crucial infrastructure remains in a

degraded state, hampering residents' quality of life and business across Indian

Island.

● Environmental Degradation: Cultural sites and natural habitats along or close to

flood-prone areas on the banks of the Penobscot River face often irreparable

damage during winter storms and flooding which greatly hampers traditional Tribal

practices and natural resource management.

● Displacement: Damage to crucial infrastructure (water and power lines, road

networks) or personal dwellings/businesses during large-scale storms has caused

some residents of Indian Island to be temporarily displaced from their homes,

diverting resources to assist these residents and thus hampering repairs or longterm economic goals due to budget constraints caused by this shift in priorities.

Community Improvements

In response to challenges posed by natural disasters and COVID-19 over the period of the

last CEDS, the Penobscot Nation has significantly improved their policies and toolkit to

enable more efficient use of resources towards community recovery as well as prevention

measures. These improvements cover the local healthcare, educational, community

resilience and economic development sectors.

● Healthcare Improvements: As a result of COVD-19, both existing Tribal healthcare

capacity and Penobscot County capacity have largely returned to pre-2020 levels.

Tribal healthcare funding has improved, which has in turn improved access on

Indian Island to better and more efficient medical care and EMS systems. Tribal

resources surrounding mental health counseling, general medical care (illness

screening, immunization, prenatal care et cetera)

● Educational Support: Investment in technology and hybrid learning options for

students, as well as increased support for afterschool and cultural programs have

ensured continuity in education, through programs such as Penobscot Fellowship

Program, Kohkəməssənena Scholarship and others.

● Community Resilience Building: The necessity of quality mental health services

brought on by COVID-19 has helped to develop into a wide-spread, community

support system. In addition, citizen-led community support initiatives that arose as

a result of COVID-19 have helped to create a more cohesive, healthy community.

● Economic Recovery Initiatives: Implementation of Tribal, state and federal-led

business support (MaineBusinessWorks, ONABEN, ONAA) community support (LiHEAP, food pantry, housing assistance), job training (EAP, AVT, NEW) and industry

diversification programs have assisted in revitalizing the economic health of Indian

Island, as well as providing a potential safety net and framework for economic

recovery in case of other mass-catastrophic events.

Preparedness for future disasters

To be better prepared for future disasters as well as mitigate the impacts of climate change,

the Penobscot Nation can engage further with the following strategies:

● Strengthening Infrastructure: Utilize advanced building practices to construct

climate resilient infrastructure, improving the ability of public infrastructure and

dwellings to withstand Nor’easters, hurricanes and flooding.

○ Green infrastructure: Utilizing state and federal funding, increase investment

in natural barriers (wetlands, forests, beaches et cetera) that can mitigate the

impact of climate change related storms while simultaneously conserving

natural habitats and increasing natural longevity on Indian Island.

● Enhancing Emergency Preparedness: Continue to update and improve disaster

response plans while conducting enhanced community-wide response training,

including measures such as evacuation drills, constructing emergency supply stores,

first aid training et cetera.

● Promoting Sustainable Economic Development: Broadening investment in

sustainable energy (continuation of solar build-out, examining use of hydro-power

or limited scale wind on Penobscot land) and encouraging local businesses to adopt

conservation-friendly/sustainable business practices provide the first step to

sustainable economic development. Similarly, Tribe-wide investment in the

attraction of firms that work within sustainable resource management, advanced

technologies or similarly stable fields with lower environmental impacts would

serve to provide workforce, economic and social opportunities to Indian Island and

Penobscot residents.

● Protecting Natural Resources: Incorporating one of the greatest strengths of Tribal

knowledge should be one of the focus points of this category; traditional ecological

and conservation knowledge. Incorporation of such practices can not only revitalize

Tribal culture, but also provide genuine and tangible resource conservation benefits

on Indian Island.

● Building Social Resilience: Social resilience cannot be achieved without community

buy-in and engagement. As such, fostering strong community networks and

engaging community members in all aspects of the governance and planning

process is crucial. In addition, creating a deep social safety net that incorporates

financial welfare programs, mental and spiritual health, social networks and

community advancement organizations into an umbrella of resources for social

resilience would greatly assist in furthering this goal.

This is a copy of a public record, reproduced as it was published. It is not legal advice, and it may not be the version a court would rely on. Check the official source before you cite it.