Nolichucky Recover Initiative

Unicoi County, Tennessee – Spring 2026

Produced For:

Produced By:

Unicoi County Economic and Community Development

Destination by Design

Acknowledgments Project Oversight Committee Ben Booher Unicoi County Care & Share Ministry Lee Brown Erwin Utilities Kevin Colburn American Whitewater Toney Davis Nolichucky Restoration Project Jesse English U.S. Forest Service Austin Finch Unicoi County Community and Economic Development Jeff Gardner U.S. Forest Service Seong Hopkins U.S. Forest Service Cathy Huskins Unicoi County Chamber of Commerce Tim Lingerfelt Unicoi County Commission Kevin McInturff Town of Unicoi Mason Schmidt Blue Ridge Paddling

Cover Photo: Mason Schmidt

Table of Contents Chapter 1: Introduction & Background

Chapter 4: Plan Recommendations

1.1 Project Background...........................08

4.1 General Corridor Recommendations............................64

1.2 Project Goals.......................................... 12 1.3 Planning Process.................................14 1.4 Plan Organization...............................16

4.2 Site Specific Recommendations..........................68

Chapter 2: Research & Analysis

Chapter 5: Plan Implementation

2.1 Study Area Context............................20

5.1 General Recommendations.......... 118

2.2 Natural and Built Environment...24

5.2 Implementation Matrix................. 120

2.3 County Demographics.................... 32

5.3 The “Top 3” Priority Projects........125

2.4 Previous Planning Efforts..............34

5.4 Key Grant Funding Opportunities....................................126

Chapter 3: Public Engagement & Emerging Themes 3.1 Tools of Engagement.......................40 3.2 Community Survey...........................42 3.3 Community Partners.......................48 3.4 Landowner Engagement.............. 58 3.5 Emerging Themes.............................60

Maps Map 01: Regional Context.....................20 Map 02: Study Area Overview.............. 21 Map 03: Planning Sections Overview.....................................69 Map 04: Planning Section 1.................. 73 Map 05: Planning Section 2................. 83 Map 06: Planning Section 3............... 107

Exhibits Exh 01: Cherokee National Forest Unaka Ranger District............ 26 Exh 02: Poplar Boat Launch Conceptual Design..................30 Exh 03: Appalachian National Scenic Trail................................... 31 Exh 04: Developed Focus Areas and Trail Connectivity.....................70 Exh 05: Jones Branch Focus Area..... 76 Exh 06: Chestoa Recreation Area Conceptual Master Plan........80 Exh 07: Nolichucky Riverwalk and Chestoa Pike Bridge...............86 Exh 08: Red Banks District Passive Recreation..................90 Exh 09: Red Banks District Active Recreation..................... 92

Exh 10: Red Banks District Vision......94 Exh 11: Riverview Focus Area Blue Ridge Paddling................98 Exh 12: Riverview Focus Area Blue Ridge Paddling and Infrastructure Protection.... 100 Exh 13: Riverview Focus Area ........... 102 Exh 14: Proposed Flood Mitigation Measures - Riverview and Red Banks District.................. 104 Exh 15: Lower Nolichucky River Access - Alternative 1...............112 Exh 16: Lower Nolichucky River Access - Alternative 2............. 114

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C h a p ter 0 1

Introduction & Background

The Nolichucky Recovery Initiative Action Plan provides a strategic framework to guide Unicoi County Economic and Community Development and its partners in restoring the Nolichucky River corridor and enhancing outdoor recreation and economic development opportunities in Unicoi County, Tennessee following the flooding caused by Hurricane Helene in September 2024. This chapter outlines the plan’s foundation and intent, providing an overview of the project background, goals, planning process, and overall organization.

In This Chapter: 1.1 Project Background 1.2 Project Goals 1.3 Planning Process 1.4 Plan Organization

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Introduction & Background

1.1 PROJECT BACKGROUND

The Nolichucky River The Nolichucky River extends approximately 115 miles from the confluence of the North Toe and Cane Rivers in North Carolina, joining the French Broad River near Morristown, Tennessee, with roughly eight miles flowing through Unicoi County. As the river enters the county, it transitions from the steep, largely inaccessible Nolichucky Gorge into a broader valley landscape near the Town of Erwin. Known for its scenic gorge, whitewater recreation, and paddling and fishing opportunities, this significant regional natural asset provides the community with a high-quality outdoor recreation experience, enhances quality of life, and supports local economic activity.

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Introduction & Background

Hurricane Helene Hurricane Helene made landfall in late September 2024, bringing unprecedented rainfall and catastrophic flooding across western North Carolina and eastern Tennessee. As the storm moved north, the Nolichucky River experienced rapid and extreme rises in water levels, sending floodwaters through the steep gorge and into Unicoi County.

recreation assets along the river were damaged or rendered inaccessible, and road closures and service disruptions occurred throughout the county.

Interstate 26 and its bridges over the Nolichucky River were significantly affected, severing a critical regional transportation corridor and disrupting travel, emergency response, and commerce. The road remained The flooding caused widespread destruction closed for one month until a temporary repair along the river corridor, resulting in the allowed one lane in each direction to open. loss of eight lives Interstate 26 fully in Unicoi County reopened after and extensive approximately damage to the eleven months built environment while the affecting residential, Tennessee commercial, Department of industrial, Transportation and critical completed infrastructure reconstruction, assets. Local reopening to reporting by the traffic in August Kingsport Times 2025. The Chestoa News indicates Pike Bridge, that approximately which also served 100 residential as the crossing of properties were the Nolichucky impacted, including River for the 25 homes that Appalachian Trail, were destroyed was destroyed and an additional during the storm.

75 that sustained Replacement Austin Finch varying levels planning is of damage. The underway, with Economic Development Director, Unicoi County Economic and Community commercial sector construction Development was also heavily expected to begin affected, with 31 in 2026. In the businesses impacted, including 11 destroyed, interim, a 3.6-mile Appalachian Trail detour 14 experiencing major damage, and six routes hikers along local roadways, including sustaining minor damage. In addition, six Jackson Love Highway. manufacturing facilities were affected. When Flooding also caused severe damage to the floodwaters reached Unicoi County Hospital regional railroad corridor that parallels the and the Erwin Industrial Park, operations Nolichucky River from its beginning west of were halted and employees and patients Spruce Pine in North Carolina to Erwin evacuated. Numerous properties and outdoor

OUT OF THE DEVASTATION CAME AN OPPORTUNITY TO RECONNECT – WITH EACH OTHER, WITH THE RIVER, AND WITH THE FUTURE WE WANT TO BUILD. THE NOLICHUCKY RECOVERY INITIATIVE IS OUR CHANCE TO SHAPE THAT FUTURE TOGETHER.

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Nolichucky Recover Initiative

Moving Forward in Unicoi County. Washouts, embankment failures, and track damage disrupted freight rail service and required extensive stabilization and reconstruction along constrained river corridors.

Commercial recreation on the Nolichucky River was also significantly affected. In North Carolina, the Poplar Boat Launch, which is managed by the U.S. Forest Service and provides the first public access on the river, was utilized for rail recovery staging and construction activities, limiting public access. The Chestoa Recreation Area near Erwin was also heavily damaged and the river was inaccessible from the access area until temporary repairs were completed in the summer of 2025. At the same time, the U.S. Forest Service temporarily suspended commercial rafting permits along portions of the river due to safety concerns and ongoing recovery work. These actions resulted in the suspension of commercial rafting operations during a critical season, impacting outfitters, guides, and the broader outdoor recreation economy dependent on river access and activities.

In the aftermath of the flood, Unicoi County residents, community organizations, businesses, and regional partners began assessing impacts along the Nolichucky River corridor and pursuing a range of recovery actions. Building on this early work, Unicoi County Economic and Community Development launched the Nolichucky Recovery Initiative to coordinate ongoing activities and establish a shared path forward for the river corridor within Unicoi County. The Initiative focuses on balancing near-term recovery needs with opportunities to expand outdoor recreation, strengthen community access, and support long-term economic vitality. The process has been shaped by broad participation and strong connections across community, environmental, recreation, and economic interests, reinforcing the Nolichucky River as both a valued community asset for Unicoi County and a regional asset for East Tennessee.

In response to the widespread damage from Hurricane Helene, federal disaster assistance was activated through FEMA-4832-DR-TN, designating Unicoi County and other affected counties as eligible for FEMA Public Assistance and related recovery programs.

Infrastructure damage represents a significant financial burden for the county. Preliminary estimates indicate repair and replacement costs total approximately $182 million, including $75 million for roads and bridges, $90 million for wastewater systems, and $17 million for electric, fiber, water, and natural gas systems.

Recovery efforts will prioritize restoring critical infrastructure, supporting housing and business reconstruction, and improving the resilience of transportation and utility systems to reduce vulnerability to future disasters.

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Introduction & Background

1.2 PROJECT GOALS

Analysis

Experience

Conduct a thorough assessment of the study area to evaluate significant opportunities and constraints for river restoration, public infrastructure protection, and future outdoor recreation infrastructure development.

Integrate strategies that restore and preserve the river corridor while promoting a safe and accessible river experience for people of all ages and abilities through improved access and additional amenities.

Gaps

Community Identify new, compelling, visionary projects to enhance quality of life, promote the outdoor economy, and drive public and private investment.

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Engage stakeholders, government and community leaders, and the public to encourage collaborative efforts and promote a shared vision that encourages stewardship and advocacy for protection of and access to the natural environment.

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Introduction & Background

1.3 PLANNING PROCESS

The Nolichucky Recovery Initiative represents 12 months of analysis, planning, conceptual design development, and numerous meetings and site visits. The planning process involved four major phases, including:

• Project Coordination & Direction Setting • Discovery, Analysis, & Public Engagement • Plan Development • Final Plan Development

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Project Coordination & Direction Setting: June - July 2025

Facilitated a direction-setting meeting with key project partners on the steering committee to discuss opportunities, challenges, and the overall project vision. Developed a dedicated project website to serve as an information hub throughout the planning process and launched an online community survey to encourage public engagement. Coordinated regularly scheduled meetings with the Nolichucky Blueway Advisory Group to ensure continuous collaboration.

Discovery, Analysis, & Public Engagement: June - September 2025 Completed a preliminary analysis by reviewing existing conditions before and after the flood and conducting a comprehensive field assessment. Conducted interviews and focus group discussions with key stakeholders and community leaders to understand concerns, gather insights, and collect valuable perspectives that helped shape the plan’s development.

Plan Development: August 2025 – March 2026

Guided by input from the steering committee, advisory group, stakeholders, land owners, and the broader community, the team developed a plan framework highlighting key findings and preliminary recommendations for expanding and enhancing outdoor recreation in the river corridor. A public meeting was held to present the recommendations and gather community feedback.

Final Plan Development & Adoption: March - May 2026 Developed the Nolichucky Recovery Initiative Action Plan featuring visual site plans, schematics, and perspective illustrations that support recommendations, prioritized implementation strategies, estimates of probable costs, and an outline of potential funding sources.

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Introduction & Background

1.4 PLAN ORGANIZATION

The Nolichucky Recovery Initiative is organized into five major chapters as outlined below.

• Introduction & Background • Research & Analysis • Public Engagement & Emerging Themes • Plan Recommendations • Plan Implementation

Chapter 1: Introduction & Background The current chapter, which outlines the plan’s background, goals, process, and organization.

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Chapter 2: Research & Analysis

Chapter 4: Plan Recommendations

A snapshot of the regional setting, demographic trends, and previous planning efforts are presented here. The chapter also includes an overview and analysis of the study area.

This chapter outlines recommendations for recovery and outdoor recreation infrastructure development in the Nolichucky River corridor in Unicoi County.

Chapter 3: Public Engagement & Emerging Themes

Chapter 5: Plan Implementation

This chapter discusses tools used for public engagement, highlights feedback from stakeholders and organizations involved in the planning process, and presents key results from an online community survey. The chapter culminates with the five emerging themes that guide plan recommendations.

This chapter provides a comprehensive matrix of all infrastructure recommendations, prioritization, implementation strategies, and an outline of grant funding sources.

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Introduction & Background

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C h a p ter 0 2

Research & Analysis

This chapter examines the study area context, natural and built environment, county demographics, and relevant past planning efforts.

In This Chapter: 2.1 Study Area Context 2.2 Natural and Built Environment 2.3 County Demographics 2.4 Previous Planning Efforts

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Research & Analysis

2.1 STUDY AREA The Cherokee National Forest defines much of the surrounding landscape within the study area, encompassing approximately 66,000 acres in Unicoi County and bordering the Nolichucky River through the gorge and along adjacent mountain slopes. Outdoor recreation infrastructure within and adjacent to the corridor includes Chestoa Recreation Area, the Appalachian National Scenic Trail, and an extensive network of U.S. Forest Service system trails. While these assets provide significant recreational potential, large portions of the Cherokee National Forest in Unicoi County remain underutilized, presenting opportunities for expanded access, programming, and connections to the river corridor.

The study area follows the Nolichucky River corridor as it enters Tennessee (TN) from North Carolina (NC) and continues through Unicoi County. The corridor begins just west of Lost Cove, NC, at the boundary of Yancey and Mitchell Counties, NC, and Unicoi County, TN, and extends downstream through the Town of Erwin to the Unicoi and Washington County, TN border. As the river enters TN, it flows through the Nolichucky Gorge, a narrow, rugged corridor where it cuts through the steep slopes of the Unaka Mountains, creating a deeply incised

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valley with limited floodplain and confined, fastmoving water. Near the Town of Erwin, the river transitions into a broader valley with gentler slopes, a wider channel, and more accessible floodplain areas as it flows into primarily agricultural lands in Washington County.

MAP 01: REGIONAL CONTEXT

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MAP 02: STUDY AREA OVERVIEW

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Research & Analysis

The Nolichucky River corridor is well positioned relative to regional population centers, creating strong opportunities for outdoor recreation, tourism, and community use. Johnson City and Jonesborough, TN, are located within a 30-minute drive of the study area, while Asheville, NC, and Kingsport and Bristol, TN, are approximately one hour away. Larger regional markets, including Knoxville, TN and Greenville, SC are accessible within two and a half hours.

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Research & Analysis

2.2 NATURAL AND BUILT ENVIRONMENT

This section presents key site analysis findings related to the natural and built environment, including topography, rivers and streams, floodplains, land use, historic resources, transportation, and outdoor recreation infrastructure.

Topography The Nolichucky River corridor in Unicoi County is shaped by a steep, rugged mountain landscape, where elevations rise sharply to surrounding ridgelines and the river flows quickly through a gorge framed by the forested slopes of the Unaka Mountains. The river enters the county from the southeast at an elevation of approximately 1,760 feet and drops 120 feet

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to Chestoa. As it reaches the gently sloping and broad valley floor near Erwin, the river widens and flow slows as it meanders west. The Nolichucky drops another 80 feet before it exits the county at approximately 1,560 feet, reflecting a gradual downstream descent through the corridor.

Nolichucky Recover Initiative

Rivers and Streams As the Nolichucky River flows through the gorge, Long Branch and Mine Branch enter from the west, Jones Branch from the east, and other small unnamed creeks drain the steep slopes of the Cherokee National Forest. Tillison Branch and a few other tributaries join the river as it continues west into the valley, where development becomes more common.

commercial, and civic parcels west of the river between I-26 and the river corridor.

After passing beneath the I-26 bridge, South Indian Creek and North Indian Creek converge with the river. Farther downstream, California Creek and other smaller tributaries continue to contribute flow as the river moves west.

Downstream of the Jackson Love Bridge, the floodplain extends north along I-26 into the Riverview Industrial Park in Erwin. After passing beneath I-26, South and North Indian Creek join the river on the west side of the highway while Martin Creek joins from the east, increasing flood pressures and contributing to expansion of the floodplain on the east side of I-26 during significant flooding events. The floodplain then narrows again due to topographic constraints before widening slightly as the river flows past its confluence with North Indian Creek, continuing toward the Unicoi–Washington County border.

Floodplains

Land Use

Floodplain areas along the Nolichucky River are shaped by natural processes such as flooding, the movement and buildup of sediment, and gradual shifts in the river’s path, and they support a range of riverside habitats. Within the study area, floodplains vary in width, with narrower areas through the Nolichucky Gorge and broader areas where the river enters the valley near Chestoa and downstream.

Much of the undeveloped land within the Nolichucky River corridor in Unicoi County is managed by the U.S. Forest Service as part of the Cherokee National Forest See Exhibit 01: Cherokee National Forest Unaka Ranger District on pages 26-27. These public lands extend along the river upstream of Erwin across steep mountain slopes on both sides of the corridor, providing large areas for conservation and outdoor recreation with limited access via trails and forest roads.

​​ The floodplain is constrained by topography at the North Carolina - Tennessee border and begins to widen near Unaka Springs, just upstream of Chestoa.

From Chestoa to the intersection of River and Temple Hill Roads, it extends east of the river across residential properties ranging from approximately eight to 35 acres. As the Nolichucky River curves east, the floodplain encompasses residential,

Privately owned lands are concentrated near and within Erwin, particularly where the valley floor widens. These areas include a mix of low- to moderate-density residential development and small-scale commercial uses.

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Research & Analysis

EXHIBIT 01: CHEROKEE NATIONAL FOREST - UNAKA RANGER DISTRICT The Cherokee National Forest – Unaka Ranger District is characterized by rugged, steep terrain and forested ridgelines, and includes the Unaka Mountain Wilderness, the Appalachian National Scenic Trail, and the Nolichucky River. A mix of developed and dispersed recreation sites supports a wide range of outdoor recreation activities. In Unicoi County, approximately 66,000 acres of national forest land form the public land backdrop of the Nolichucky River corridor.

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Research & Analysis

Transportation Corridors Running generally north-south through the Nolichucky River corridor at Erwin, I-26 provides key regional connectivity. To the south, it connects to Asheville and the broader interstate network, while to the north it links to Johnson City. It serves as a primary transportation route for freight, residents, and visitors traveling to Erwin and Unicoi County.

Several local roads run parallel to or intersect the Nolichucky River corridor, providing routes for vehicular circulation, river access, and outdoor recreation connections. Chestoa Pike crosses the river, offering an east–west connection as the river enters developed areas upstream of Erwin. Jones Branch and Unaka Springs Roads are located on each side of the river, extending from Chestoa Pike upstream to isolated properties near the Cherokee National Forest.

River Road parallels the western streambank of the river from Chestoa Pike, serving primarily residential properties, and connects to Temple Hill Road, which runs between I-26 and the river to Jackson Love Highway. This road provides access to commercial areas, Riverview Baptist Church, and the former Unicoi County Hospital. Jackson Love Highway crosses the river and functions as an east–west corridor connecting I-26 to the southern end of the

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Erwin town limits. South Industrial Drive extends north from the highway just east of the Jackson Love Highway bridge, paralleling I-26 to serve the Riverview Industrial Park before ending where the river turns sharply away from the west side of the interstate. Jonesborough Road (TN 107) parallels the river’s east side as it enters Washington County.

A freight rail line operated by CSX Transportation extends from Spruce Pine, NC, to Erwin and parallels the Nolichucky River from its beginning to I-26 before continuing north toward Johnson City, TN. This historic corridor was established with the arrival of the Carolina, Clinchfield and Ohio Railway in 1909, which established Erwin as a regional industrial and transportation center. The line later became the Clinchfield Railroad, providing freight and passenger service until passenger operations ended in 1954.

Historic Resources The community of Unaka Springs, upstream of Chestoa on the west side of the Nolichucky River, served as a destination for early visitors to east Tennessee in the late 1800s and early 1900s. Sites of a former three-story hotel and five single family dwellings in the community are designated historic by the Tennessee Historical Commission.

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Outdoor Recreation Infrastructure Existing outdoor recreation infrastructure in the study area includes two river access areas, multi-use path, and a trailhead for the Appalachian National Scenic Trail, which crosses the Nolichucky River corridor.

The Chestoa Recreation Area, a day-use site accessed from Jones Branch Road and managed by the U.S. Forest Service, provides public and commercial river access and parking. The site previously included a vault toilet and picnic tables but was severely damaged during flooding. This access point serves as the primary take-out for paddlers and commercial outfitters launching from the Poplar Boat Launch in North Carolina and running the Nolichucky River Gorge. The Poplar access was also closed following Hurricane Helene and used as a staging area for railroad repairs by CSX. See Exhibit 02: Poplar Boat Launch Conceptual Design on page 30.

A primitive trailhead and information kiosk for the Appalachian Trail (AT) is located downstream between the Chestoa Recreation Area and Chestoa Pike bridge crossing of the Nolichucky River. The AT crossed the Chestoa Pike bridge before it was destroyed by the flood.

The Erwin Linear Trail, located between I-26 and South Industrial Drive, provides a separate recreational asset within the community, offering a paved, multi-use path for walking, biking, and local connectivity.

The Lower Nolichucky Access, located on Unicoi County and USFS property, is the next public river access area downstream of the Chestoa Recreation Area. It is accessed from Jonesborough Road near the Unicoi and Washington County border.

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Research & Analysis

EXHIBIT 02: POPLAR BOAT LAUNCH CONCEPTUAL DESIGN

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The Popular Boat Launch, located within Pisgah National Forest and managed by the U.S. Forest Service (USFS), was severely damaged during Hurricane Helene and utilized by CSX for rail repair operations. Commercial rafting was suspended by the USFS in late 2024 through the 2025 season. In partnership with the National Forest Foundation, the USFS is leading reconstruction efforts, and the site reopened in June 2026 (Source: USFS).

Nolichucky Recover Initiative

EXHIBIT 03: APPALACHIAN NATIONAL SCENIC TRAIL The Appalachian Trail (A.T.) is a 2,190-mile National Scenic Trail extending from Georgia to Maine. It is a significant long-distance hiking route, offering access to diverse landscapes, public lands, and trail communities in the Appalachian Mountains. Unicoi County was designated an A.T. Community by the Appalachian Trail Conservancy in 2010. Nearby hiker services, including Uncle Johnny’s Hostel, support thru-hikers and other trail users and reinforce Unicoi County’s role as a recognized Appalachian Trail gateway community.

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Research & Analysis

2.3 COUNTY DEMOGRAPHICS

This section explores population, income, and employment data for Unicoi County residents, as reported by the U.S. Census Bureau and the Bureau of Labor Statistics.

Population

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Approximately 16% of households in Unicoi County are below the poverty level. Additional at-risk populations include individuals with disabilities (37%), households without access to a vehicle (0.4%), and residents age 65 and older (26%).

According to the 2020 Decennial Census, Unicoi County is home to 17,504 people and 7,610 households. Of the population, 90.3% identify as White, 0.5% as Black or African American, and 5.5% as two or more races, with less than 1% identifying as Asian, American Indian, or Pacific Islander. Approximately 6.8% of the population is Hispanic or Latino.

Based on various economic indicators, the Appalachian Regional Commission (ARC) classifies Unicoi County as “At Risk,” the second lowest of its five economic status designations.

The ARC identified no distressed areas within the county for fiscal year 2026.

In Unicoi County, 88.6% of residents are high school graduates, and 21.1% have earned a bachelor’s degree or higher.

In 2025, approximately 57% of Unicoi County’s population was of working age (18–64), and the median age was 48.0. Total employment in the county is 5,474, with 397 businesses. The median household income is $54,117, which is lower than both the Tennessee median ($71,997) and the national median ($69,021).

Income and Employment

Nolichucky Recover Initiative

Total Population: 17,504 Age Income

48.0 $32,581

$54,117

Per capita income Median age

Median household income

Figure in in Tennessee: Tennessee: $38,538 Figure 39.1

Figure in Tennessee: $71,997

Figure in the United States: $43,313

Figure in the United States: $69,021

Figure in the United States: 39

Population by age category

18 to 64

Education Under 18 (16.7%) 18 to 64 (57%) 65 and over (26.4%)

No High School Diploma (11.4%) High School Graduate (37.5%) Some College/ Associate’s Degree (30%) Bachelor’s/ Grad/ Prof Degree (21.1%)

57%

Education White: 90.3% Black: 0.5% American Indian: 0.4% Asian: 0.3% Other Race: 3.1% Two or More Races: 5.5% Hispanic (any race): 6.8%

Total Households:

Households Below the Poverty Level:

37%

Household income

Households with a Disability:

46.4%

16.7%

<$50,000

16%

7,610

$50,000 - $74,999

13.3%

13.5%

$75,000 - $99,999

$100,000 - $149,999

9.9% >$150,000

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Research & Analysis

2.4 PREVIOUS PLANNING EFFORTS

Previous planning efforts were reviewed to identify implications for recovery and redevelopment along the Nolichucky River corridor in Unicoi County. This section provides a brief summary of each plan.

Unicoi County, TN Recreational Trail Assessment (2025) This trail assessment provides a strategic framework for strengthening the county’s outdoor recreation economy by establishing a network of outdoor recreation hubs that connect communities, public lands, and trail systems. The plan identifies priority investments in the towns of Erwin and Unicoi as gateway communities, recommending improvements and new connections associated with the Erwin Linear Trail, Appalachian Trail access points, Chestoa Recreation Area, Nolichucky River corridor, and surrounding Cherokee National Forest lands. These investments are intended to enhance visitor experience, improve trail connectivity, and support economic impact through phased, partner-driven implementation.

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Tennesseans Outdoors: Vision 2030 Tennessee’s Statewide Comprehensive Outdoor Recreation Plan (2022) Tennesseans Outdoors: Vision 2030, Tennessee’s updated Statewide Comprehensive Outdoor Recreation Plan (SCORP), builds on the earlier Vision 2020 framework to guide recreation priorities over the next decade.

The plan emphasizes improved connectivity and access to trails, greenways, and blueways, supporting investments in Appalachian Trail access points, river-based recreation along the Nolichucky River, and local trail systems such as the Erwin Linear Trail. It also encourages collaborative partnerships and funding strategies to enhance access to recreation areas, including Chestoa Recreation Area.

Town of Erwin Bicycle and Pedestrian Plan (2021) The Town of Erwin Bicycle and Pedestrian Plan provides a framework for improving bicycle and pedestrian connectivity within Downtown Erwin, prioritizing safety, accessibility, and connections to key destinations. The plan emphasizes repairing and expanding sidewalks, installing ADA-compliant crossings and bicycle facilities, and creating a highpriority shared-use path along 2nd Street (SR 107) to better connect Downtown Erwin with the Erwin Linear Trail, schools, parks, and other community facilities. These improvements also position projects to leverage state and federal grant funding.

Unicoi & Erwin Bicycle + Pedestrian Masterplan (2019) The Unicoi & Erwin Bicycle + Pedestrian Master Plan provides a coordinated framework for improving nonmotorized connectivity between the Towns of Erwin and Unicoi, with a focus on safety, accessibility, and economic development through outdoor recreation. The plan identifies the Erwin Linear Trail as the spine of the local trail network and recommends shared-use paths, sidewalks, and bicycle facilities along key corridors to strengthen connections to Downtown Erwin, regional trails, and surrounding recreation assets. These improvements support development of long-term tourism assets and community mobility.

Consolidated Comprehensive Land Use Plan - Town of Erwin (2018)

The Unicoi County Land Use Plan establishes a long-range framework for guiding growth, development, and community investment while emphasizing economic diversification, redevelopment, and quality of life. Key recommendations include supporting tourismrelated development such as lodging and shortterm rentals, expanding municipal parks, extending the Linear Trail to connect assets, and promoting land purchase along the river for recreational development by the county. These priorities reinforce the role of outdoor recreation and the river corridor as economic drivers while providing direction for strategic redevelopment, improved access, and coordinated investment in riverfront and recreation-oriented assets.

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Research & Analysis

Unicoi County, Tennessee Tourism Asset Development Plan (2018) This Tourism Asset Development Plan presents a coordinated strategy to grow tourism by establishing leadership, securing dedicated funding, and leveraging outdoor assets such as the Nolichucky River, Appalachian Trail, and Erwin Linear Trail. The plan focuses on converting river and trail users into overnight visitors, strengthening connections between outdoor recreation and Downtown Erwin, and positioning the county as Tennessee’s “Great Natural Outdoor Wilderness” through clearly defined actions, responsibilities, and timelines.

Unicoi County, Tennessee Land Use & Transportation Plan 2008-2020 (2008) The Unicoi County, Tennessee Land Use & Transportation Plan, prepared for the Unicoi County Regional Planning Commission, provides a longrange framework for coordinating land use and transportation while recognizing tourism and outdoor recreation as key economic drivers.

Relevant recommendations include expanded greenway and trail development, improved connections to the Appalachian Trail, planned extensions of the Erwin Linear Trail, and enhanced access to natural assets such as the Nolichucky River.

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Revised Land and Resource Management Plan Cherokee National Forest (2004) The Cherokee National Forest Revised Land and Resource Management Plan establishes long-term management direction for more than 639,000 acres of national forest land across eastern Tennessee, including areas within Unicoi County, with a focus on balancing conservation, recreation, and resource use. The plan designates and protects the Appalachian Trail corridor, identifies the Nolichucky River as eligible for Scenic River designation, supports river-based recreation through managed outfitter and guide use, and emphasizes stewardship of riparian corridors and scenic landscapes that shape access to outdoor recreation assets near the Town of Erwin.

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Research & Analysis

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C h a p ter 0 3

Public Engagement & Emerging Themes

This chapter explores the tools used for public engagement, highlights the stakeholders and organizations involved in the planning process, and presents key findings from an online survey and landowner engagement that gathered community input on recovery and future redevelopment priorities for the Nolichucky River corridor. It concludes with emerging themes that serve as the foundation for the plan’s recommendations.

In This Chapter: 3.1 Tools of Engagement 3.2 Community Survey 3.3 Community Partners 3.4 Landowner Engagement 3.5 Emerging Themes

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Public Engagement & Emerging Themes

3.1 TOOLS OF ENGAGEMENT

The Nolichucky Recovery Initiative was launched and introduced to the public using a project fact sheet and website. These resources highlighted the planning process and goals and encouraged citizens to take the online community survey. In addition, several community partners shared the initiative via social media posts, online blogs, and traditional online media.

• Project Fact Sheet • Project Website • Online Community Survey

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Public Engagement & Emerging Themes

3.2 COMMUNITY SURVEY

The Nolichucky Recovery Initiative Community Survey was conducted to gather input on river-based assets residents and visitors feel are most important and how future redevelopment of the corridor should be prioritized.

The survey received a total of 280 responses between July and September 2025.

The online survey was promoted by the Unicoi County Economic and Community Development and local stakeholders via the project website, email, and social media platforms. This section presents key survey findings.

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When compared with the county demographic data presented on page 33, survey respondents differed in several ways.

Respondents tended to be younger and reported higher total household incomes than the broader population of Unicoi County. Of the survey respondents, over 70% were from Tennessee, 12% were from North Carolina, and just over 50% were residents of Unicoi County.

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What We Heard Community voices offer valuable insight into the opportunities and challenges shaping the future of the Nolichucky River corridor.

“River and swimming access, family wading areas, trash cans and upkeep, wildlife trails and tags that identify native plants.”

“Improved free public access in more locations for swimming, boating, fishing, hiking, picnicking, baptisms, etc. would be great.

Things that people of all ages and abilities can enjoy together.”

“Safety and interpretive signage would be great at access points.”

“Developing more tent camping options along the river, better communication & information about existing camping options & proposed/detailed itineraries for experiencing all the ways to enjoy the Nolichucky, including hiking, camping, playing on the water & enjoying nearby Erwin.”

“Getting the Linear Trail redone and adding some bathrooms along the trail would be great as well as other gathering areas near it.”

“We need restrooms, changing rooms, picnic areas, parking, and signage, outfitters, an outdoor store for hikers, boaters and hunters, restaurants/food, as well as river access, hiking trails along the river and campgrounds.”

“Picnic tables or facilities along with parking space for them would be a welcome addition along the Nolichucky River.”

“I think something to consider in the rebuild is what makes the Nolichucky great prior to the storm-a somewhat untouched riverbed in an incredible gorge.”

“Public access points through the gorge are of the highest priority for the best whitewater in the southeast.”

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What is your gender?

Public Engagement & Emerging Themes JONESBOROUGH

UNICOI

JOHNSON CITY

42.4% Erwin

What is your age?

30.5% Other

5% Jonesborough

1.9% Flag Pond

GENDER

FEMALE

OTHER

9.2% Johnson City

Under 18 18-24

54.5%

6.5%

PROFESSIONAL DEGREE 25-34

44.8%

MALE

0.7%

Female Prefer Not to Answer Unicoi What is the highest level of schoolMale or degree you have completed?

PREFER NOT TO ANSWER

65+

55-64

FLAG POND

ZIP

ERWIN

PREFER NOT TO ANSWER

HIGH SCHOOL DIPLOMA

MASTER’S DEGREE

AGE

TRADE SCHOOL

EDUCATION

ASSOCIATE’S DEGREE

35-44 BACHELOR’S DEGREE

45 -54 0.7% Under 18 21.5% 55-64

2.9% 20.7% 21.1% race.

16.4% Please specify your 18-24 25-34 35-44 45-54 16.7% 65+

0.7% Less than HS 18.8% Master’s

BLACK / AFRICAN AMERICAN

91% White

1.1% Black / African American

0.4% Asian / Asian American

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5.8%

13.8%

39.1%

Trade Associate’s Bachelor’s Please specify your ethnicity.

2.9% Professional

3.3% Doctoral

PREFER NOT TO ANSWER

RACE

WHITE

12.3% High School

3.3% Prefer Not to Answer

HISPANIC

ETHNICITY

0.4% Pacific Islander

1.9% Hispanic

89.5% Not Hispanic

NOT HISPANIC

8.6% Prefer Not to Answer

VER YI M

IM

HOW

AN RT O

?

TY I N T

VER YI M

T AN RT O

2

1

THE COMM TO U

T HA W

? HOW IM IVER R PO KY

98%

SO M E

6

SO M E

6

16

R

95%

258

NO TI M P

28

PO

UCKY R ICH IV E OL

235

A RT PO

T AN RT

IM PO

OMY TO T H E ON FU EC

AN RT PO

TANT IS THE R N PO NT IM

T HA W

THE OUT DO O T AN RT

NO TI M P

HE NOL I OF T C HU RE C TU

UCKY R ICH IV E OL

IS NT A RT T

R

N

How important do you feel the Nolichucky Nolichucky Recover Initiative River is to the community?

How many children under the age of 18 live in your household?

MORE THAN 4 3-4

FREQUENCY OF ACTIVITIES ON OR NEAR THE NOLICHUCKY RIVER A Few Times a Year (87)

1-2

Weekly (80) A Few Times a Month (58)

PREFER NOT TO ANSWER

CHILDREN UNDER 18

Daily (49)

NONE

Never (5) 68.8% None

24.3% 1-2

3.6% 3-4

0.4% More than 4

2.9% Prefer Not to Answer

POPULAR RIVER-BASED ACTIVITIES WHITEWATER KAYAKING RAFTING

RECREATIONAL KAYAKING NATURE / WILDLIFE VIEWING

PICNICKING / OTHER SOCIAL GATHERING

WADING / SWIMMING FISHING

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Public Engagement & Emerging Themes PREFERRED IN-STREAM FEATURES RECREATIONAL ACCESS POINTS

WHAT OUTFITTERS SERVICES ARE NEEDED?

NATURAL RIFFLE & POOLS

SHUTTLE SERVICE FOR TUBING / PADDLE SPORT TRIPS

FISH HABITAT STRUCTURES

GUIDED RAFTING TRIPS

PLAY WAVES

ISSUES THAT PREVENT VISITATION

ROCK WEIRS / STEP-POOLS

CANOE / KAYAK RENTAL

CHANNEL NARROWING

TUBE RENTAL

IN-STREAM ART / EDUCATIONAL FEATURES

GUIDED PADDLE TRIPS

NONE

SHUTTLE SERVICE FOR BIKING / HIKING TRIPS

CLOSURE OF PUBLIC ACCESS DUE TO FLOOD DAMAGE LACK OF PUBLIC ACCESS INADEQUATE PARKING SAFETY CONCERNS LACK OF ONGOING MAINTENANCE

GUIDED FISHING TRIPS

LACK OF INFORMATION

BIKE RENTAL

LACK OF DIRECTIONAL SIGNAGE INADEQUATE PUBLIC TRANSPORTATION

FISHING GEAR RENTAL

OVERCROWDING

GUIDED BIKE TRIPS ADA ACCESS NEED SPECIAL EQUIPMENT / SKILLS COST / TOO EXPENSIVE

Considerably

WHAT DEVELOPMENT & IMPROVEMENTS SHOULD BE PRIORITIZED?

Moderately

MOST PRESSING PRIORITIES FOR THE NOLICHUCKY RIVER

RIVER ACCESSES

REDUCING LITTER & POLLUTION

GREENWAYS AND TRAILS

STREAMBANK / STREAM RESTORATION

SWIMMING BEACHES / AREAS

REDUCING FLOOD RISKS

PARKS

Slightly

IMPROVING / INCREASING PUBLIC RIVER ACCESS

CAMPGROUNDS

IMPROVING SCENIC QUALITY THROUGH CONSERVATION

ADA ACCESSIBLE RIVER ACCESSES

IMPROVING FISH & WILDLIFE HABITAT

FISHING PLATFORMS / AREAS

IMPROVING SAFETY & SECURITY

PICNIC SHELTERS

IMPROVING / ADDING PARKS, GREENWAYS, AND TRAILS OUTDOOR EVENT VENUE / AMPHITHEATER

ADDING COMMUNITY GATHERING SPACES PLAYGROUNDS

ADDING IN-STREAM FEATURES ADDITIONAL ACCESS FOR RELIGIOUS GATHERINGS High Priority

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High Priority

Medium Priority

Low Priority

Not A Priority

Medium Priority

Low Priority

Not A Priority

Not At All

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Public Engagement & Emerging Themes

3.3 COMMUNITY PARTNERS

The Nolichucky Recovery Initiative planning process engaged a diverse range of stakeholders, including local government, quasigovernmental organizations, nonprofits, and private businesses.

The consultant team conducted interviews, focus group meetings, and site visits with stakeholders identified at the kick-off meeting.

Key insights and takeaways from these discussions are reflected in the plan's recommendations.

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Government & QuasiGovernment Agencies

Nonprofit Organizations • American Whitewater

• Erwin Utilities

• Appalachian Trail Conservancy (ATC)

• First Tennessee Development District

• Appalachian Outdoors Collective

• Greene County Partnership

• Nolichucky Outdoor Learning Institute (NOLI)

• Tennessee Department of Economic and Community Development (TNECD)

• Nolichucky Outdoor Recreation Association (NORA)

• Tennessee Department of Environment & Conservation (TDEC)

• Nolichucky Restoration Project

• Tennessee Department of Tourist Development (TDTD) • Tennessee Department of Transportation (TDOT) • Tennessee Wildlife Resources Agency (TWRA) • Town of Erwin • Town of Unicoi

• Northeast Tennessee Tourism Association (NETTA) • Open Space Institute • RISE Erwin • River Management Society • Tennessee Scenic Rivers Association (TSRA) • Unicoi County Care & Share Ministry

• Unicoi County

• Unicoi County Chamber of Commerce

• Unicoi County Economic and Community Development

• WildSouth

• U.S. Army Corps of Engineers (USACE) • U.S. Fish and Wildlife Service (USFWS) • U.S. Forest Service (USFS) – Cherokee National Forest

• Unicoi County Long-Term Recovery Group

Businesses • Blue Ridge Paddling • BWXT Nuclear Fuel Services • Greater Impact Reality • LDA Engineering • Nolichucky Gorge Campground • Osprey White Water LLC • Pyranha Kayaks • Steel Rails Coffee House • Uncle Johnny’s Nolichucky Hostel Cabins & Camping • USA Raft Adventure Resort • Wahoo’s Adventures

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Public Engagement & Emerging Themes

Project Oversight Committee A Project Oversight Committee (POC) guided the planning process and included representatives and community members from Unicoi County Economic and Community Development, Erwin Utilities, U.S. Forest Service, American Whitewater, Blue Ridge Paddling, Nolichucky Restoration Project, Town of Unicoi, Unicoi County, Unicoi County Care and Share Ministry, and Unicoi County Chamber of Commerce.

Kick-off Meeting On June 25, 2025, the consultant team held a kick-off meeting with the POC at SquareOne in Erwin. This initial meeting introduced the scope of work, project schedule, and proposed project goals to committee members. The consultant team also led a discussion on public outreach and engagement, and the group reviewed study area maps. Committee members were invited to annotate each map with opportunities and constraints.

Discovery & Analysis Meeting On August 26, 2025, the POC met at SquareOne to review the discovery and analysis results. The consultant team presented research findings, including previous planning efforts, survey results, and key takeaways from the focus groups.

Framework Meeting On September 11, 2025, the POC met at SquareOne to review preliminary recommendations. Members provided input on proposed outdoor recreation infrastructure improvements, project design goals, key planning sections, and before-and-after imagery that guided potential improvement recommendatons.

Draft Plan Review Meetings On November 12, 2025, and January 26, 2026, the POC met virtually to review the draft plan, including conceptual designs, and provide feedback on the final recommendations.

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Advisory Committee An Advisory Committee, with representatives from more than 60 community and regional organizations, provided input and oversight throughout the planning process.

Discovery & Analysis Meeting On September 9, 2025, the Advisory Committee met virtually to review the discovery and analysis results. The consultant team presented research findings, including previous planning efforts, survey results, and key takeaways from the focus groups.

Framework Meeting On October 14, 2025, the Advisory Committee met virtually to review preliminary recommendations. Members provided input on proposed outdoor recreation infrastructure improvements, project design goals, key planning sections, and before-and-after imagery that guided potential improvement recommendations.

Draft Plan Review Meetings On March 11, 2026, the Advisory Committee met virtually to review the draft plan, including conceptual designs, and provide feedback on the final recommendations.

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Public Engagement & Emerging Themes

Focus Group Meetings Four focus group meetings with community leaders from 16 organizations were held on July 29, 2025 to discuss regional priorities, identify underutilized assets, and gather insights on improvements to support long-term community recovery and growth.

Rafting Outfitters Focus Group

Economic Development Focus Group

Included local rafting and guide outfitters, as well as kayakers and paddlers who shared insight on operational challenges, commercial and public access/facility needs, and opportunities to improve river access and safety.

Included local business owners and economic development professionals who discussed economic conditions and barriers to growth along the river corridor.

Participants • Austin Arrowood, Pyranha Kayaks • Lilly Johnson, Wahoo’s Adventures • Slayton Johnson, Wahoo’s Adventures

• Austin Finch, Unicoi County Economic and Community Development • Michael Baker, Town of Erwin Alderman, Business Owner, & TN Realtor

• Brian Keefer, USA Raft

Key Take-Aways

• Patrick Mannion, Osprey White Water LLC

Challenges

• Trey Moore, Nolichucky Outdoor Recreation Association • Brannon Schmidt, Blue Ridge Paddling • Mason Schmidt, Blue Ridge Paddling

Key Take-Aways Challenges • Inconsistent water levels throughout the season.

• All river users (commercial, kayaks, tubes, etc.) are lumped into the same category by the local community.

• Lack of education around river safety.

• The river is not currently “open” for commercial outfitters.

• Riverbanks need to be restored.

Opportunities & Priorities • The river is different after Hurricane Helene, but there is a big opportunity to market the “new” river and new rapids and the way the river changed.

• Put thought into the corridor from Chestoa to the Lower Noli takeout – place rocks to improve navigation and appearance.

• River parks create equitable access to the river for everyone.

• Gain political support and willingness to support outdoor recreation and drive tourism.

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Participants

• Limited options to eat, drink, and hang-out near the river.

• Building an outdoor recreation community and economy in an area that is not “big on fitness”.

• Need more workforce housing and affordable housing.

Opportunities & Priorities • Get outfitters back on the water.

• Promote better habitat for fish including smallmouth bass.

• Build greenways, parks, and trails.

Environmental / Outdoor Recreation Focus Group Included natural resource experts, conservation organizations, and land management stakeholders to discuss ecological conditions and identify environmental challenges. Included community members with interest and expertise in river-based activities and river health.

Participants • Ben Booher, Unicoi County Care & Share Ministry • Alica Phelps, Northeast Tennessee Tourism Association • Bekah Price, River Management Society

Key Take-Aways Challenges • A shared political vision doesn’t currently exist.

• A division exists around promoting outdoor recreation in general. Some community members do not want more “rafters” or outsiders.

• A lower percentage of the population is in the workforce, high numbers of senior citizens and people with disabilities.

• Extensive trash clean-up needed due to flooding.

Opportunities & Priorities • Improved/restored river access.

• Bank stabilization, rebuilding the soils, restoring the corridor.

Community Development Brought together community members and elected officials who share a professional and personal commitment to community engagement and local development.

Participants • Ben Booher, Unicoi County Care & Share Ministry • Allie Bynum, River Management Society • Suzie Cloyd, Unicoi County Long-Term Recovery Group • Lance Hanbey, Unicoi Christian Church • Meisha Turner, RISE Erwin

Key Take-Aways Challenges • Limited local buy-in for the outdoor economy.

• A shared vision doesn’t exist between state and local; political, staff, and community members.

• Mixed view of the river by community members.

• Maintaining infrastructure and assets now and in the future.

Opportunities & Priorities • Improve river access and accessibility.

• Large gathering spaces including open greens, amphitheaters, and event space.

• Trail connections.

• Athletic fields.

• Riverfront park with trail, river access, playgrounds, picnic areas; a destination for community members and families (more than just Chestoa).

• Gain political support and willingness to support outdoor recreation and drive tourism.

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Public Engagement & Emerging Themes

Public Workshop – March 2026 Held on March 10, 2026 at SquareOne in Erwin, the public meeting provided an opportunity for members of the community to see final plan recommendations and conceptual designs, ask questions, and provide feedback. Over 25 community members attended the public meeting.

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Public Engagement & Emerging Themes

3.4 LANDOWNER ENGAGEMENT

During the research and preliminary analysis phase of the planning process, limited access to key river and outdoor recreation assets was recognized as a significant constraint. Properties that could potentially support critical river access points and parks, streambank restoration, and potential trail connections were identified.

58

As part of this planning effort, targeted landowner engagement was initiated through phone interviews and on-site meetings with select property owners along the corridor. These conversations helped identify opportunities, constraints, and landowner perspectives related to access, liability, and future use. This work represents an initial step in a longer-term engagement process that will require continued relationship-building, coordination, and leadership from local stakeholders to support implementation.

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Public Engagement & Emerging Themes

3.5 EMERGING THEMES

60

Building on extensive research, community engagement, and stakeholder input, the emerging themes establish Unicoi County’s vision for restoring and redeveloping the river corridor and creating new opportunities for outdoor recreation and economic development.

These themes form the foundation for the recommendations outlined in Chapter 4 and collectively provide a strategic roadmap to guide local leaders and decision-makers as they plan and implement thoughtful investments in the community.

Accessibility

The five (5) emerging themes include: 1) Accessibility; 2) Education; 3) Stewardship; 4) Community Parks & Outdoor Recreation; 5) Flood Resilience.

Expand opportunities for learning about the Nolichucky River’s ecology, history, and recent changes through river-focused education.

Support programming and facilities that build community awareness, safety, and appreciation for the river corridor.

Expand access to river-based recreation for people of all ages and abilities by developing river accesses and trailheads that promote safe, enjoyable, and equitable experiences. Collaborate with willing landowners and partners to identify opportunities for river access while respecting property rights and community values.

Education

Nolichucky Recover Initiative

Stewardship

Flood Resilience

Promote responsible care of the Nolichucky River corridor by encouraging practices that protect natural resources and support longterm recovery. Engage partners, volunteers, and community groups in efforts that restore the corridor and improve river health to ensure its continued enjoyment for all.

Enhance the river corridor’s ability to withstand future flooding by stabilizing eroding riverbanks, establishing riparian vegetation, and restoring natural floodplains.

Community Parks & Outdoor Recreation Create, improve, and maintain public parks and open space by acquiring property from willing sellers, strengthening public river accesses, expanding greenway and trail connections, and restoring natural habitats.

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Public Engagement & Emerging Themes

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C h a p ter 0 4

Plan Recommendations

This chapter outlines recommendations for the Nolichucky River corridor in Unicoi County from the Nolichucky Gorge on the NC/TN State Line to the Lower Noli Takeout. Corridorwide recommendations focus on flood resilience, riverbank restoration measures, visitor orientation, safety, and experience. Site-specific recommendations identify priority improvements and protections, supported by site descriptions, conceptual plans, and images.

In This Chapter: 4.1 General Corridor Recommendations 4.2 Site Specific Recommendations

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Plan Recommendations

4.1 GENERAL CORRIDOR RECOMMENDATIONS

This section outlines general recommendations for the corridor and specific measures that address infrastructure protection, flood resilience, outdoor recreation, and economic development.

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Nolichucky Recover Initiative

1. Infrastructure Protection

2. Flood Resilience

Protecting critical infrastructure along the corridor is essential to maintaining transportation networks, utilities, and residential, commercial, and industrial properties. Targeted measures will safeguard essential services, preserve regional connectivity and mobility, and support long-term community resilience and economic stability. Key strategies include, but are not limited to, the following:

Flood resilience is an integral component of the Nolichucky Recovery Initiative, incorporating strategies that support riparian corridor restoration, protection, and expanded flood storage. These actions are intended to improve stormwater management, enhance public safety, and promote long-term environmental and economic sustainability for the Town of Erwin and Unicoi County. Key measures include, but are not limited to, the following:

• Fill Embankment Protection Roads are typically constructed using cut-and-fill methods, making the fill embankment, which is located on the downslope side of the road, particularly vulnerable to erosion. Protecting this embankment from the erosive forces of the river is critical to maintaining travel lane and shoulder width, shoulder stability, and overall roadway function.

A range of stabilization techniques may be applied. Riprap or shot rock is commonly used but can unintentionally limit recreational access to the river. Where feasible, these treatments should be paired with revegetation strategies to enhance slope stability and improve visual character. Placement of large boulders along the streambank can further reinforce the bank and, in some cases, create terraced conditions that support future riverside trails or access points. Riparian corridor restoration also plays a complementary role in protecting fill embankments.

• Terraced/Hardened Banks Streambanks reinforced with large boulders can create multiple terraced levels, increasing bank elevation to protect adjacent infrastructure and property. In addition to stabilization, these terraces may create usable space for river observation, riverside trails, and controlled access to the water.

• Expanded Flood Storage Increased stormwater storage capacity can be achieved by expanding the functional floodplain on large, undeveloped parcels. These areas are designed to slow stormwater flow, reduce peak velocities, and lower flood elevations during major storm events. Expanded flood storage areas can also support compatible uses, including passive and active recreation such as trails and athletic fields.

• Riparian Corridor Restoration Streambank restoration measures stabilize riverbanks, improve aquatic and terrestrial habitat, and reestablish a healthy riparian corridor. A diverse mix of native trees, shrubs, and grasses strengthens streambanks during routine flood events while supporting native fauna.

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Plan Recommendations

3. Outdoor Recreation The Nolichucky River is a significant regional asset that supports a wide range of outdoor recreational experiences for users of all ages and abilities. Targeted recommendations aim to enhance the overall user experience, encourage community interaction, and ensure that recreational opportunities are safe and accessible. Key measures include, but are not limited to, the following:

• Riverside Trails Riverside trails support a variety of activities, including walking, cycling, and running, while connecting key destinations and points of interest along the river corridor. Trail surfaces may range from natural materials, such as soil and gravel, to more durable options like asphalt and concrete, depending on location and use. In flood-prone areas, resilient materials, such as decomposed granite, permeable pavers, boardwalks, and reinforced concrete, can be used to withstand periodic high-water events while minimizing longterm damage.

• Parks and River Access Areas Parks and river access areas provide visitors of all ages and abilities with opportunities to enjoy the river, whether through active recreation or more passive enjoyment. Parks can incorporate traditional amenities, such as playgrounds, trails, picnic areas, and shelters, within a setting that leverages the river and riparian setting and enhances the overall visitor experience.

Equally important, parks serve as key access points for river users by offering safe, direct entry to the water along with supporting infrastructure such as restrooms, changing areas, and parking.

River access areas may range from primitive improvements, such as stabilized steps along the streambank, to more developed facilities. Where conditions allow, constructed launches, such as concrete ramps, can provide more universal access for paddlers, tubers, and anglers, improving usability across a broader range of users.

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• Stream Channel Improvements Stream channel improvements may include redefining the channel to improve flow, increase depth, and enhance aquatic habitat and fish diversity. In-stream navigation enhancements can provide an optimal experience for paddlers by creating clearer, more predictable routes through rapids and other river features.

4. Economic Development The Nolichucky River can serve as a catalyst for economic development through targeted mixeduse development and redevelopment, as well as business opportunities that support outdoor recreation along the corridor. Riverside dining, outfitting, and retail can complement recreational activities and activate the riverfront, contributing to the long-term economic vitality of the region.

• Branding A coordinated branding strategy can help position the Nolichucky River corridor as a distinct outdoor recreation destination by creating a cohesive identity that reflects its natural character, recreational opportunities, and community values. Consistent messaging, visual identity, and storytelling can strengthen regional awareness, support tourism promotion efforts, and unify public and private investments along the corridor.

• Community Wayfinding A comprehensive wayfinding system can improve navigation, safety, and overall user experience by guiding residents and visitors to key destinations, river access points, and recreational assets throughout the corridor. Clear, consistent signage and mapping can enhance connectivity between sites, reinforce the corridor’s identity, and support increased visitation and economic activity.

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Plan Recommendations

4.2 SITE SPECIFIC RECOMMENDATIONS

This section presents recommendations for outdoor recreation infrastructure within defined focus areas of the Nolichucky River planning sections, including river access, trails, support facilities, parking, and developed recreation sites.

Recommendations Overview The Nolichucky River corridor study area extends approximately 8 miles from the Nolichucky Gorge to the Lower Nolichucky Takeout, and is organized into three (3) planning sections: 1) Nolichucky Gorge, 2) Red Banks, and 3) Lower Nolichucky. See Map 03: Planning Sections Overview, page right. Each section features a section overview, vicinity map, and “quick facts” summarizing key information including section length, summary of focus areas, land managers/owners, key stakeholders, and points of interest.

Recommendations are further organized by focus area. Each includes a site description, key recommendations, and specific action items. Conceptual site plans were created for developed focus areas and trail connectivity was explored. See Exhibit 04: Developed Focus Areas and Trail Connectivity, page 70-71.

BY THE NUMBERS 7.9 miles of the Nolichucky River in Unicoi County 45,274 acres of adjacent USFS lands 1.1 acres of adjacent Unicoi County lands 729 acres of adjacent private lands

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MAP 03: PLANNING SECTIONS OVERVIEW

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Plan Recommendations

EXHIBIT 04: DEVELOPED FOCUS AREAS AND TRAIL CONNECTIVITY 70

Conceptual designs were developed for primary focus areas that include outdoor recreation infrastructure development and improvements. Existing and proposed trails enhance connectivity between key focus areas and extend access to additional assets beyond the study area.

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Plan Recommendations

PLANNING SECTION 1: NOLICHUCKY GORGE The Nolichucky Gorge planning section extends approximately 3.3 miles from the NC/ TN state line to Chestoa Pike Bridge and is characterized primarily by forested, protected U.S. Forest Service lands on both sides of the Nolichucky River, with limited low-density commercial and residential development near the southern end.

QUICK FACTS

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Section Length: 3.3 Miles Focus Areas: 1. Upper Gorge 2. Jones Branch 3. Unaka Springs 4. Chestoa Land Managers: • U.S. Forest Service • Private Landowners & Businesses Key Stakeholders • U.S. Forest Service • Private Landowners & Businesses • Unicoi County • Appalachian Trail Conservancy Points of Interest • Nolichucky Gorge River Segment • Nolichucky Gorge Campground • USA Raft Adventure Resort • Chestoa Recreation Area • Appalachian Trail & Trailhead

Nolichucky Recover Initiative

MAP 04: PLANNING SECTION 1

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Plan Recommendations

Focus Area 1.1: Upper Gorge

Focus Area 1.2: Jones Branch

The Upper Gorge focus area begins at the NC-TN border and stretches downstream across USFS lands to the privately owned Nolichucky Gorge Campground. This segment of the river features Class III and IV rapids, with the CSX Transportation rail line running along river left. Flooding during Hurricane Helene caused significant streambank erosion, scoured the river channel, and damaged the rail corridor. The railroad has since been repaired and is back in operation.

The Jones Branch focus area is located on river right and includes the privately operated Nolichucky Gorge Campground and USA Raft Adventure Resort. Both sites are accessed via Jones Branch Road and sustained significant damage during Hurricane Helene. The storm also altered river conditions, creating a new rapid downstream of USA Raft.

Key recommendations at this focus area include restoration of the river corridor for ecological and aesthetic benefits.

Specific Nolichucky Recovery Initiative action items in support of the Upper Gorge are as follows: • 1.1.1 Streambank Restoration. Support streambank restoration measures to restore the riparian corridor.

Key recommendations include advancing conceptual site plans for these privately managed properties, extending water and sewer infrastructure, and improving connectivity to the Appalachian Trail. See Exhibit 05: Jones Branch Focus Area, pages 76-77.

Specific Nolichucky Recovery Initiative action items in support of Jones Branch are as follows: • 1.2.1 Nolichucky Gorge Campground. Support landowner efforts to reconstruct campground facilities, including day-use parking and river access, and implement streambank restoration to improve site stability and visitor experience.

• 1.2.2 USA Raft Adventure Resort. Support reconstruction and enhancement of resort facilities, including a riverside viewing area with improved access (steps and ramp), and implement streambank restoration measures.

• 1.2.3 Appalachian Trail Connectivity. Coordinate with the U.S. Forest Service and Appalachian Trail Conservancy to maintain the existing blue-blaze trail connection from Jones Branch Road and evaluate enhancements to safety, wayfinding, and user experience. Expand signage to highlight connections to key destinations, including the Chestoa Recreation Area and planned assets such as the Nolichucky Riverwalk (Erwin Linear Trail Extension) and Red Banks District.

• 1.2.4 Sewer and Water Extension. Partner with key stakeholders to conduct a feasibility study evaluating extension of water and sewer service to the terminus of Jones Branch Road.

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Plan Recommendations

EXHIBIT 05: JONES BRANCH FOCUS AREA

The Jones Branch Focus Area includes two privately owned and managed properties that serve outdoor recreation users with lodging, dining, recreation, and river access. This conceptual plan was developed in coordination with landowners, and the final design is subject to refinement based on additional input, site survey, engineering, and regulatory review.

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Plan Recommendations

Focus Area 1.3: Unaka Springs The Unaka Springs focus area extends along both sides of the Nolichucky River from USA Raft Adventure Resort to the Chestoa Recreation Area. Flooding scoured streambanks, eroded fill embankments, and narrowed portions of Jones Branch and Unaka Springs Roads. Post-storm rail line repair efforts also resulted in a shallower, less defined river channel.

Specific Nolichucky Recovery Initiative action items in support of Unaka Springs are as follows:

Key recommendations at this focus area include infrastructure protection and restoration of the river corridor for ecological and aesthetic benefits.

• 1.3.2 Streambank Restoration. Support implementation of streambank stabilization and riparian restoration measures.

• 1.3.1 Road Protection and Improvement. Support implementation measures to stabilize, reinforce, and protect fill embankments, widen travel lanes and shoulders, and install guardrails along Jones Branch and Unaka Springs Roads.

• 1.3.3 River Restoration. Support river channel improvements to enhance in-stream navigation and restore aquatic habitat.

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Focus Area 1.4: Chestoa The Chestoa focus area is located on river right and includes the U.S. Forest Service managed Chestoa Recreation Area, Appalachian Trail Chestoa Trailhead, and Jones Branch Road. The site sustained severe damage from flooding caused by Hurricane Helene, but temporary repairs completed in the summer of 2025 provide river access for paddlers.

• 1.4.2 Appalachian Trail Stewardship and Improvements. Coordinate with the U.S. Forest Service and the Appalachian Trail Conservancy to support ongoing trail maintenance and management. Evaluate opportunities to enhance safety, wayfinding, and user experience, including improved signage and high-visibility road crossings on Jones Branch Road.

The conceptual plan, developed in coordination with the U.S. Forest Service, aims to establish a safer, more efficient, and well-organized recreation hub that separates uses, improves access, and strengthens long-term operations. Key elements include road realignment, public and commercial river access, defined user zones, improved parking and trailhead facilities, and passive park amenities.

See Exhibit 06: Chestoa Recreation Area Conceptual Master Plan, pages 80-81.

• 1.4.3 Appalachian Trail Chestoa Trailhead.

Collaborate with the U.S. Forest Service to advance the planned reconstruction and enhancement of the Chestoa Trailhead on the Appalachian Trail, including development of a dedicated parking area with increased capacity off Jones Branch Road. The proposed trailhead includes a two-way loop parking lot with 15 typical parking spaces, one ADA parking space, and a segment of the Nolichucky Riverwalk with dispersed picnic tables along the path.

Specific Nolichucky Recovery Initiative action items in support of Chestoa are as follows: • 1.4.1 Chestoa Recreation Area. Collaborate with the U.S. Forest Service to advance reconstruction and enhancements consistent with the conceptual master plan. Proposed improvements include realignment of Jones Branch Road toward the rail corridor to eliminate pedestrian crossings, and a one-way parking circulation system to improve safety, and two stacked parking lots that can be developed in phases, including pull-through trailer spaces for commercial outfitters. Planned amenities include commercial and public river access with space for two vehicles to launch simultaneously, dedicated user zones with buffer plantings to separate passive river users from active paddling groups, an entrance sign, a six-stall restroom, two small picnic shelters, a 30' x 60' shelter, walking loops, waste facilities, storage, lighting, and signage.

• 1.4.4 Nolichucky Riverwalk. Support the design and implementation of the Nolichucky Riverwalk segment connecting the Appalachian Trail Chestoa Trailhead to the Chestoa Recreation Area, with bike parking and restrooms marking the eastern terminus. Concurrently advance streambank restoration efforts along this corridor to enhance visitor experience and protect riverfront infrastructure.

• 1.4.5 Unaka Springs Road Stabilization Revegetation. Support revegetation strategies to stabilize existing riprap repairs along the fill embankments between Unaka Springs Road and the Nolichucky River, enhancing slope integrity and improving visual character.

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EXHIBIT 06: CHESTOA RECREATION AREA CONCEPTUAL MASTER PLAN Plan Recommendations

Strategic Objective: Create a safer, more efficient, and well-organized recreation hub that separates uses, improves access, and strengthens long-term operations.

KEY FEATURES: • A Jones Branch Road Realignment. The road shifts towards the rail corridor to eliminate pedestrian crossings between parking and riverside amenities.

• B Parking. A one-way circulation pattern serves two stacked lots and pull-through trailer spaces to support outfitters.

• C Commercial River Access. A wider access ramp allows two vehicles to launch simultaneously.

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•D Dedicated User Zones. Spatial separation and buffer plantings create areas for passive river users and active paddling groups.

• E Formalized AT Trailhead & Increased Visibility. A dedicated parking area increases parking capacity for trail users.

• F Nolichucky Riverwalk Terminus. Restrooms and riverside amenities mark the eastern terminus of the riverwalk.

• G Passive Park Amenities. Walking loops and picnic areas are integrated throughout the site.

•H Forest Service Maintenance Facilities. Operational infrastructure includes dumpsters, storage, lighting, and signage.

•I

Unaka Springs Road Stabilization Revegetation. Revegetation strategies will visually improve existing road repairs.

Developed with land manager input, the final design may be refined based on further engagement, survey data, engineering analysis, and regulatory review

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Plan Recommendations

PLANNING SECTION 2: RED BANKS DISTRICT The Red Banks District planning section extends approximately 1.7 miles from the Chestoa Pike Bridge to Interstate 26 and is characterized by a mix of institutional, commercial, and residential development, including the former Unicoi County Hospital, within a riverfront corridor shaped by nearby transportation infrastructure.

QUICK FACTS Section Length: 1.7 Miles Focus Areas: 1. River Road 2. Red Banks District 3. Riverview Land Managers • Unicoi County • Private Landowners and Businesses Key Stakeholders • U.S. Forest Service • Appalachian Trail Conservancy • Unicoi County • Non-profit Land Conservation Organizations • Private Landowners & Businesses Points of Interest • Chestoa Pike Bridge • Nolichucky Riverwalk (proposed) • Nolichucky River Park (proposed) • Red Banks District (proposed) • Jackson Love Bridge • Blue Ridge Paddling

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MAP 05: PLANNING SECTION 2

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Plan Recommendations

Focus Area 2.1: River Road The River Road focus area extends from the Chestoa Pike Bridge to Temple Hill Road. The Chestoa Pike Bridge was destroyed by Hurricane Helene, and the adjacent riparian buffer and stream corridor were significantly widened, scoured, and damaged by floodwaters. Residential properties along the river experienced widespread impacts, and fill embankments supporting River Road were eroded.

Recommendations for this focus area strengthen connectivity and highlight access to the Appalachian Trail and Cherokee National Forest through development of a multi-use path and gateway improvements. Key elements include enhancements to the Chestoa Pike Bridge, vehicular and pedestrian infrastructure improvements, protection of River Road embankments, and development of the Nolichucky Riverwalk. See Exhibit 07: Nolichucky Riverwalk and Chestoa Pike Bridge, page 85-86.

Specific Nolichucky Recovery Initiative action items in support of River Road are as follows: • 2.1.1 Chestoa Pike/Appalachian Trail Bridge.

Support current bridge replacement plans and incorporate vertical gateway features at each corner, Appalachian Trail branding on both approaches, a 10-foot-wide separated concrete shared-use path, pedestrian-scale wayfinding to guide trail users to local amenities, and decorative safety railing. These enhancements will provide a safe route across the Nolichucky River while strengthening identity, visibility, and the overall user experience. As final bridge plans are developed, evaluate opportunities for angler river access within the right-of-way.

• 2.1.2 Intersection Improvements. Design and implement bike and pedestrian improvements at the Chestoa Pike intersection with River and Unaka Springs Roads to provide a safe, accessible crossing for users of the Nolichucky Riverwalk and Appalachian Trail.

• 2.1.3 Road Protection and Improvement. Support measures to stabilize, reinforce, and protect fill embankments, widen shoulders, install guardrails, and restore streambanks along River Road.

• 2.1.4 Nolichucky Riverwalk. Develop and implement plans for the Nolichucky Riverwalk segment between the Chestoa Pike Bridge and Jackson Love Bridge, while concurrently advancing streambank restoration measures to restore the riparian corridor and protect adjacent streamside infrastructure.

• 2.1.5 Landowner Engagement and Easement Acquisition. Engage landowners along River Road and pursue easement acquisition for the Nolichucky Riverwalk.

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Plan Recommendations

EXHIBIT 07: NOLICHUCKY RIVERWALK AND CHESTOA PIKE BRIDGE

The proposed Nolichucky Riverwalk will extend along River Road as a 12-foot-wide concrete path connecting key riverfront destinations. Serving as an extension of the Erwin Linear Trail, it provides continuous pedestrian access from the Linear Trail terminus at Blue Ridge Paddling to the proposed Red Banks District, Nolichucky River Park, the Appalachian Trail Chestoa Trailhead, and the Chestoa Recreation Area. Enhancements to the Chestoa Pike Bridge further strengthen the community’s connection to the Appalachian National Scenic Trail.

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EXISTING CONDITIONS

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Plan Recommendations

Focus Area 2.2: Red Banks District The Red Banks District focus area spans from the intersection of River and Temple Hill Roads on river left to the Jackson Love Highway bridge. This segment of the Nolichucky River includes class III whitewater and Radio Tower rapid. Residential, civic, and commercial properties within the river corridor were underwater during hurricane flooding and buildings were completely destroyed.

In response to input from key landowners and community members, multiple scenarios for outdoor recreation and mixed-use development were evaluated. The conceptual plans, developed in coordination with landowners, aim to establish a mixed-use district anchored by recreation, entertainment, and resilient infrastructure. Key elements include Nolichucky River Park and river access, the Nolichucky Riverwalk, the Red Banks music venue, opportunities for mixed-use development and redevelopment, and expanded flood storage coordinated with design measures

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proposed for the Riverview Focus Area. See Focus Area 3: Riverview, page 96.

The passive recreation concept includes the former Erwin Hospital property as a potential location for expanded flood storage and low-impact recreation opportunities, such as wetland walking paths and mountain bike trails. See Exhibit 08: Red Banks District – Passive Recreation, pages 90-91.

In contrast, the active recreation concept incorporates programmed facilities, including athletic fields and support facilities, along with expanded commercial development extending south along Temple Hill Road. The former Erwin Hospital property provides space for expanded flood storage and active recreational uses, such as baseball or soccer fields, supported by formal parking and sidewalks that enhance pedestrian access to the Nolichucky Riverwalk and connect recreation and riverfront assets. See Exhibit 09: Red Banks District – Active Recreation, pages 92-93.

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Specific Nolichucky Recovery Initiative action items in support of Red Banks District are as follows: • 2.2.1 Red Banks District Landowner Outreach and Land Acquisition. Conduct outreach to private landowners along Temple Hill Road to gauge interest in land conveyance or potential mixed-use development/redevelopment.

Opportunities may include commercial and residential uses, green space, trailheads, greenways, and trail connectivity. The site’s proximity to I-26 and the proposed Nolichucky River Park supports compact, downtown-style urban design standards, and is the only location within the study area capable of supporting twosided commercial development with on-street parking.

• 2.2.2 Business Development. Explore publicprivate partnerships with entrepreneurs, developers, and local governments to attract investment in future businesses and infrastructure that advance the Red Banks District vision.

• 2.2.3 Land Acquisition and Conservation.

Collaborate with land conservation nonprofits to secure easements and priority properties along the river to support streambank restoration, flood mitigation, and park development.

• 2.2.4 Streambank and River Restoration. Support streambank restoration and river channel improvements to restore the riparian corridor, enhance in-stream navigation, and improve aquatic and riparian habitat.

• 2.2.5 Nolichucky River Park. Work with key stakeholders to develop a riverside park featuring a segment of the Nolichucky Riverwalk with multiple river and fishing access points, allowing visitors to create tubing loops or enjoy riverside recreation. The park will also include the Red Banks Music Venue with the Red Banks cliffs as a natural backdrop, an event stage, open green space, support facilities, and areas reserved for expanded flood storage suitable for passive or active outdoor recreation.

• 2.2.6 Expanded Flood Storage. Identify opportunities on large vacant parcels to increase flood storage, slow stormwater flows, reduce peak velocities, and lower flood elevations during significant storm events.

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Plan Recommendations

EXHIBIT 08: RED BANKS DISTRICT - PASSIVE RECREATION Strategic Objective: Establish a mixed-use district anchored by recreation, entertainment, and resilient infrastructure.

KEY FEATURES: Private - Commercial District Development • A Red Banks Commercial District. The site’s proximity to I-26 and the proposed Nolichucky River Park supports private investment for compact, downtown-style urban development and design standards.

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Public - Nolichucky River Park • B Loop Road. A central connector road guides vehicular circulation.

• C Red Banks Music Venue. A destination-quality event site framed by the Red Banks cliffs, includes a stage, lawn, and support facilities.

•D Nolichucky Riverwalk. The signature section of the Nolichucky Riverwalk provides a linear greenway with multiple river access locations.

• E Expanded Flood Storage. Removal of floodplain fill will provide expanded flood storage capacity and opportunities for passive recreation.

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Plan Recommendations

EXHIBIT 09: RED BANKS DISTRICT - ACTIVE RECREATION Strategic Objective: Establish a mixed-use district anchored by recreation, entertainment, and resilient infrastructure.

KEY FEATURES: Private - Commercial District Development • A Red Banks Commercial District. The site’s proximity to I-26 and the proposed Nolichucky River Park supports private investment for compact, downtown-style urban development and design standards.

•B Temple Hill Road Expanded Development. With appropriate fill to raise buildings above flood elevations, commercial development can extend south.

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Nolichucky Recover Initiative Public - Private Partnership Opportunity - Key features include:

• C Loop Road. A central connector road guides vehicular circulation.

•D Parking. Expanded parking supports programming for athletic fields.

• E Red Banks Music Venue. A destination-quality event site framed by the Red Banks cliffs, includes a stage, lawn, and support facilities.

• F Nolichucky Riverwalk. The signature section of the Nolichucky Riverwalk provides a linear greenway with multiple river access locations.

• G Expanded Flood Storage. Removal of floodplain fill will provide expanded flood storage capacity and opportunities for passive recreation.

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Plan Recommendations

EXISTING CONDITIONS

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EXHIBIT 10: RED BANKS DISTRICT VISION

The Red Banks District establishes a new commercial node for the Town of Erwin, featuring mixed-use development alongside a destination-quality park. The Nolichucky Riverwalk will provide key pedestrian and recreational connectivity between the district, Downtown Erwin, and the Chestoa Recreation Area.

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Plan Recommendations

Focus Area 2.3: Riverview The Riverview Focus Area includes Blue Ridge Paddling’s operations base on South Industrial Drive, properties on both sides of the river between Jackson Love Highway and I-26, and a private parcel on river right adjacent to the Jackson Love Highway bridge. Properties on river right sustained significant flood damage during Hurricane Helene.

In response to input from local officials and landowners, two concepts were evaluated for the Riverview Focus Area. The conceptual plans aim to create a flood-resilient, mixed-use riverfront hub anchored by river access, trails, outdoor recreation, and supporting commercial development. Key elements include infrastructure protection, river access, a beach, RV camping, multi-use paths, commercial development, streambank restoration, and expanded outdoor recreation amenities.

The Blue Ridge Paddling concept focuses on enhancing properties currently owned by Blue Ridge Paddling to support the outdoor recreation economy. The operations base includes outfitter facilities, a river access ramp, and recreational amenities, while the Erwin Linear Trail is planned for reconstruction along South Industrial Drive at the eastern edge of the property. Mixed-use development opportunities on river left may include dining and retail uses that complement riverfront and recreation activity. See Exhibit 11: Riverview Focus Area – Blue Ridge Paddling, pages 98-99.

The Blue Ridge Paddling and Infrastructure Protection concept builds on this approach by incorporating additional public recreation infrastructure and flood mitigation measures.

Proposed improvements include an Erwin Linear Trail trailhead, pedestrian bridge, river access ramp, and potential public-private partnership agreement to allow public use of river access facilities. Streambank restoration, terraced and hardened banks, and flood mitigation measures are proposed to protect structures within the 500-year flood zone and coordinate with upstream resilience improvements. The concept also explores a northern extension or second span of the I-26 bridge over a vegetated riverside shelf designed to function as a high-flow channel during flood events.

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See Exhibit 12: Riverview Focus Area – Blue Ridge Paddling and Infrastructure Protection, pages 100101.

Both concepts were developed with landowner input and are preliminary. Final design will be refined based on additional landowner engagement, survey data, engineering analysis, and regulatory review.

Specific Nolichucky Recovery Initiative action items in support of Riverview are as follows: • 2.3.1 Blue Ridge Paddling. Support landowner plans to reconstruct and enhance outfitter facilities, including additional recreational amenities, RV campground, river access ramp, and parking. A unique pedestrian bridge across the Nolichucky River will connect the Erwin Linear Trail to the Nolichucky Riverwalk, marking the transition between them. Due to high visibility from I-26, the bridge should feature distinctive architectural design and cohesive branding to reinforce the identity of this new commercial node.

Encourage mixed-use development on vacant land across river left, emphasizing outdoor recreation and complementary commercial uses such as climbing towers, retail, and dining. Support implementation of streambank restoration and flood mitigation measures to protect structures within the 500-year floodplain.

Multiple tiered boulder terraces will raise streambank elevation while creating usable space for recreation and riverfront access.

• 2.3.3 Trailhead and River Access Area Development. Engage private landowners to assess interest in developing a trailhead and river access area serving the Erwin Linear Trail, Nolichucky Riverwalk, and Nolichucky River.

• 2.3.2 Erwin Linear Trail. Collaborate with the Town of Erwin and key stakeholders to evaluate and support realignment and reconstruction options for the Erwin Linear Trail along South Industrial Drive.

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Plan Recommendations

EXHIBIT 11: RIVERVIEW FOCUS AREA - BLUE RIDGE PADDLING

Strategic Objective: Create a vibrant, flood-resilient, mixed-use riverfront hub anchored by outdoor recreation and supporting commercial development.

KEY FEATURES: • A River Access. Explore public-private partnership opportunities to provide public river access.

•B Streambank Protection. Tiered boulder terraces create usable lawn terraces and provide streambank stabilization.

•C Beach. A large beach and riverside staging area can be utilized by outfitters.

•D Erwin Linear Trail. The proposed trail follows a wide sidewalk along South Industrial Drive to Jackson Love Hwy Bridge.

•E Blue Ridge Paddling Trail System. A private trail system connects to Blue Ridge Paddling’s facilities and the riverfront.

• F Site Amenities. A beergarden, pickleball courts, bocceball, and an event lawn with a stage provide activities for business patrons.

•G RV Campground. Campground facilities with easy access to I-26, the Nolichucky RIver, and the Erwin Linear Trail offer a much-needed amenity for visitors.

•H Mixed-use Development. An outdoor recreation focused commercial node will offer an 98outdoor store, climbing opportunities, and restaurants.

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EXHIBIT 12: RIVERVIEW FOCUS AREA - BLUE RIDGE PADDLING AND INFRASTRUCTURE PROTECTION Plan Recommendations

Strategic Objective: Create a vibrant, flood-resilient, mixed-use riverfront hub anchored by outdoor recreation and supporting commercial development.

KEY FEATURES: • A Public Access Development. Explore public-private partnership opportunities for trailhead development and provide public river access.

• B Infrastructure Protection. In coordination with design measures proposed upstream, multiple tiered boulder terraces increase streambank elevation to minimize flooding of Blue Ridge Paddling and the Riverview Industrial Park.

•C Proposed I-26 Bridge. A second bridge span improves stormwater conveyance while maintaining the existing I-26 bridge.

•D High Flow Channel. A proposed high flow channel creates a vegetated riverside shelf that only receives water during flood events.

•E Pedestrian Bridge. A signature pedestrian bridge spanning the Nolichucky River will connect the Linear Trail to the Nolichucky Riverwalk.

• F Beach. A large beach and riverside staging area can be utilized by outfitters.

•G Erwin Linear Trail. The proposed trail follows a wide sidewalk along South Industrial Drive to Jackson Love Hwy Bridge.

•H Blue Ridge Paddling Trail System. A private trail system connects to Blue Ridge Paddling’s facilities and the riverfront.

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•I

Site Amenities. A beergarden, pickleball courts, bocceball, and an event lawn with a stage provide activities for business patrons.

• J RV Campground. Campground facilities with easy access to I-26, the Nolichucky River, and the Erwin Linear Trail offer a much-needed amenity for visitors.

• K Mixed-use Development. An outdoor recreation focused commercial node will offer an outdoor store, climbing opportunities, and restaurants.

Preliminary concept was developed with landowner input. Final design will be refined based on additional landowner engagement, survey data, engineering analysis, and regulatory review.

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Plan Recommendations

EXISTING CONDITIONS

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EXHIBIT 13: RIVERVIEW FOCUS AREA

The Riverview Focus Area envisions a vibrant, mixed-use riverfront hub, including potential public-private partnerships to provide access to the Nolichucky River, Erwin Linear Trail, and Nolichucky Riverwalk.

Commercial development opportunities complement those envisioned in the Red Banks District, reinforcing a connected network of recreation and riverfront activity.

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Plan Recommendations

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EXHIBIT 14: PROPOSED FLOOD MITIGATION MEASURES - RIVERVIEW AND RED BANKS DISTRICT

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Plan Recommendations

PLANNING SECTION 3: LOWER NOLICHUCKY The Lower Nolichucky planning section extends approximately 2.6 miles from Interstate 26 to the Lower Nolichucky Takeout/Sawmill area. It is characterized by I-26 along a short stretch of river right and low-density residential development throughout the corridor.

QUICK FACTS Section Length: 2.6 Miles Focus Areas: 1. Indian Creek 2. Sawmill Land Managers • Private Landowners • Unicoi County • U.S. Forest Service Key Stakeholders • Tennessee Department of Transportation • Tennessee Valley Authority • U.S. Army Corps of Engineers Points of Interest • Lower Nolichucky River Access

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MAP 06: PLANNING SECTION 3

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Plan Recommendations

Focus Area 3.1: Indian Creek The Indian Creek focus area extends from the I-26 bridge to the Lower Nolichucky Access Area and primarily addresses the river channel and streambanks. North and South Indian Creek flow into the Nolichucky River within this area. The upstream half of the river segment is typically straight, wide, and shallow, while the downstream half features a more scenic corridor with expansive riverfront. Flooding during Hurricane Helene scoured streambanks, widened the river channel, and caused significant damage to the riparian buffer and stream corridor.

Key elements of the plan include infrastructure protection and improvement, as well as river and streambank restoration.

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Specific Nolichucky Recovery Initiative action items in support of Indian Creek are as follows: • 3.1.1 Infrastructure Protection and Improvement.

Collaborate with TDOT to support a northern extension or second span of the I-26 bridge over a vegetated riverside shelf engineered as a highflow channel that carries water only during flood events, improving stormwater conveyance and reducing flood risk.

• 3.1.2 Streambank and River Restoration. Support streambank restoration measures to stabilize and restore the riparian corridor and stream channel restoration efforts to improve flow, enhance aquatic habitat, and increase fish habitat diversity.

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Plan Recommendations

Focus Area 3.2: Sawmill The Sawmill focus area encompasses the Lower Nolichucky Takeout and adjacent riverfront properties next to the Unicoi–Washington County boundary. Existing informal access is located on Jonesborough Road, on land managed by Unicoi County and the U.S. Forest Service. Both the site and Jonesborough Road sustained significant damage during Hurricane Helene flooding.

In response to input from community members and outfitters, two concepts were developed for the Lower Nolichucky Access Area, including opportunities to expand onto a privately owned parcel south of the existing access. The conceptual plans, developed in coordination with the U.S. Forest Service, aim to establish the site as a fully integrated river access node that enhances the Nolichucky River recreation experience through improved infrastructure, user separation, and floodresilient amenities. Key elements include defined parking, river access, restrooms, trails, and a beach.

Alternative 1 focuses on enhancing the existing access area with a two-stall restroom, a concrete river access ramp, and a clearly defined parking area that accommodates single vehicles and a limited number of trailers. A short, accessible trail connects users to a cobble beach and river access platform. See Exhibit 15: Lower Nolichucky River Access – Alternative 1, pages 112-113.

Alternative 2 expands on this approach by incorporating the privately owned parcel to the south, allowing for increased capacity and additional recreational amenities. This concept provides expanded parking for single vehicles and up to 20 trailers, a ¼-mile walking loop for broader community use, and a riverside fishing trail that separates anglers from paddlers and improves access to the river. See Exhibit 16: Lower Nolichucky River Access – Alternative 2, pages 114-115.

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Specific Nolichucky Recovery Initiative action items in support of Sawmill are as follows: • 3.2.1 Lower Nolichucky Access Area. Collaborate with Unicoi County and the U.S. Forest Service to support reconstruction and enhancement of the Lower Nolichucky Access Area. Improvements include a public/commercial river access ramp, ADA-accessible river platform and trail, cobble beach, restroom, and parking. Due to floodplain constraints, the restroom will be elevated above the base flood elevation and accessed via an ADA-compliant ramp system.

• 3.2.2 Landowner Engagement. Engage private landowners to assess interest in partnering with local government or nonprofit conservation organizations for development and enhancement of the access area.

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Plan Recommendations

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EXHIBIT 15: LOWER NOLICHUCKY RIVER ACCESS - ALTERNATIVE 1 Strategic Objective: Enhance the Lower Nolichucky River Access to create a destinationoriented and fully integrated river access node that improves the overall Nolichucky River recreation experience through formalized infrastructure, additional amenities, user separation, and flood-resilient facilities supporting paddlers, anglers, and commercial outfitters.

KEY FEATURES: • A Restroom. Due to floodplain constraints, the restroom will be elevated near Jonesborough Road and accessed via stairs and an ADA-compliant ramp system.

• B Cobble Beach. A small portion of the existing cobble beach will be preserved for passive river users with the remaining portion being revegetated.

• C Riverside Path. Dedicated access to a riverside fishing trail keeps user groups separated and provides for easier access.

• D Commercial River Access. A river access ramp with 2 trailer parking spots supports commercial outfitters.

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EXHIBIT 16: LOWER NOLICHUCKY RIVER ACCESS - ALTERNATIVE 2

Strategic Objective: Establish the Lower Nolichucky River Access as a destination-oriented and fully integrated river access node that enhances the overall Nolichucky River recreation experience through formalized flood-resilient infrastructure, additional amenities, user separation, and destination-quality facilities supporting paddlers, anglers, walkers, and commercial outfitters.

KEY FEATURES: • A Restroom. Due to floodplain constraints, the restroom will be elevated near Jonesborough Road and accessed via stairs and an ADA-compliant ramp system.

• B Walking Loop. A ¼ mile walking loop will provide a community asset for a wide range of users.

• C Cobble Beach. A small portion of the existing cobble beach will be preserved for passive river users with the remaining portion being revegetated.

•D Riverside Path. Dedicated access to a riverside fishing trail keeps user groups separated and provides for easier access.

• E Commercial River Access. A river access ramp with 20 trailer parking spots supports large organized groups and commercial outfitters.

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Plan Recommendations

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C h a p ter 0 5

Plan Implementation

This chapter presents general recommendations for implementing the Nolichucky River Initiative, includes a summary matrix of all action items outlined in the plan, identifies priority projects, and lists key grant funding sources.

In This Chapter: 5.1 General Recommendations 5.2 Implementation Matrix 5.3 The “Top 3” Priority Projects 5.4 Key Grant Funding Opportunities

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5.1 GENERAL RECOMMENDATIONS

The Nolichucky Recovery Initiative Action Plan provides a clear, actionable roadmap to ensure the long-term health and economic vitality of the Nolichucky River corridor and presents recommendations for restoration, economic development, public access, and outdoor recreation. The completion of the planning process represents an important first step that must be built on to accomplish implementation.

Project leaders should continue to engage stakeholder groups, government staff and leaders, landowners, and community members as the planning process transitions to implementation. Recommendations outlined in

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the plan affecting government land managers, including the U.S. Forest Service and Unicoi County, will need to go through a formal review process. A mix of funding sources should be sought and secured to begin implementation with survey, engineering, and permitting work for high priority focus areas.

Additionally, Unicoi County Economic and Community Development and its partners should consider five general recommendations as they work to implement the Nolichucky Recovery Initiative Action Plan, which include the following:

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1. Outdoor Recreation Infrastructure Development and Stewardship Partnerships Establish a dedicated Outdoor Recreation Infrastructure Development and Stewardship Committee consisting of approximately 6–10 members, composed of representatives from local governments, nonprofit organizations, public land agencies, and other key stakeholders.

The committee will guide a coordinated framework for planning, developing, and maintaining outdoor recreation facilities and infrastructure over the long term.

2. Federal Land Manager Partnership Agreements and Stewardship Coordinate with the U.S. Forest Service (USFS) to develop partnership agreements with local governments, nongovernmental organizations, and nonprofits to support the maintenance and stewardship of redeveloped outdoor recreation facilities.

3. Tourism Product Promotion

4. Private Landowner Engagement and Public-Private Partnership Development Continue to engage private landowners to determine interest in working with local governments or non-profit conservation organizations on land conservation and outdoor recreation infrastructure development as outlined in the plan recommendations.

Pursue innovative public-private partnerships for commercial development and consider incentives that support entrepreneurship, job creation, and economic growth.

5. Environmental Education Provide educational opportunities that connect people to the Nolichucky River’s natural and cultural resources through interpretive waysides, guided programming, and outdoor learning.

Partner with local schools to integrate the river into curriculum and create experiences that foster environmental awareness and stewardship among students and visitors.

Collaborate with local, regional, and state tourism authorities, such as the Unicoi County Chamber of Commerce, Northeast Tennessee Tourism Association, and Tennessee Department of Tourist Development, to promote tourism products that strategically market outdoor recreation opportunities, destinations, and services in Unicoi County. Tourism promotion efforts will include marketing, partnerships, and compelling content that increases awareness, enhances visibility, and highlights unique experiences.

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Plan Implementation

5.2 IMPLEMENTATION MATRIX

The Nolichucky Recovery Initiative implementation matrix summarizes final plan recommendations organized by planning section and focus area. For each action, the matrix includes a project classification, suggested timeframe, and key partners.

Project classification indicates whether an action is public, private, or combination. Public recommendations are made on existing public lands, including proposed easements and land acquisition parcels, roads, and trails. The timeframe reflects realistic expectations for initiation and completion based on funding, partner capacity, and project complexity.

Key partners include land managers, local governments, private landowners, and business owners.

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Recommendations are classified by implementation horizon. Ongoing actions are already underway and require continued support over the life of the plan. These actions are primarily located on public lands and may depend solely on partner organizations for implementation. Near-term recommendations are priority initiatives that should be advanced in the next three years, often addressing immediate infrastructure and economic development needs while building momentum for larger efforts. Mid-term actions, anticipated to be completed within five to eight years, typically require greater coordination, planning, and funding across public and private partners.

Long-term actions, projected over eight to twelve years, depend on multiple partners and stakeholders, often including private landowners, and represent transformative actions and investments in the community.

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PROJECT CLASSIFICATION

TIMEFRAME

KEY PARTNERS

Public - Private

Ongoing

USFS and CSX Railroad

1.2.1 Nolichucky Gorge Campground. Support landowner efforts to reconstruct campground facilities and implement streambank restoration.

Private

Near-term

Private Landowner and Business

1.2.2 USA Raft Adventure Resort. Support reconstruction and enhancement of resort facilities, including a riverside viewing area with improved access (steps and ramp), and implement streambank restoration measures.

Private

Near-term

Private Landowner and Business

1.2.3 Appalachian Trail Connectivity. Coordinate with the U.S. Forest Service and Appalachian Trail Conservancy to maintain the existing blue-blaze trail connection from Jones Branch Road and evaluate enhancements to safety, wayfinding, and user experience.

Public

Ongoing

USFS, ATC, Unicoi County, Town of Erwin

1.2.4 Sewer and Water Extension. Partner with key stakeholders to conduct a feasibility study evaluating extension of water and sewer service to the terminus of Jones Branch Road.

Public - Private

Long-term

Unicoi County

1.3.1 Road Protection and Improvement. Support implementation measures to stabilize, reinforce, and protect fill embankments, widen travel lanes and shoulders, and install guardrails along Jones Branch and Unaka Springs Roads.

Public

Near-term

Unicoi County

1.3.2 Streambank Restoration. Support implementation of streambank stabilization and riparian restoration measures.

Public

Mid-term

Unicoi County, TVA, USACE, and TWRA

1.3.3 River Restoration. Support river channel improvements to enhance in-stream navigation and restore aquatic habitat.

Public

Near-term

Unicoi County, TVA, USACE, and TWRA

1.4.1 Chestoa Recreation Area. Collaborate with the U.S. Forest Service to advance the planned reconstruction and enhancement of the Chestoa Recreation Area.

Public

Near-term

USFS

1.4.2 Appalachian Trail Stewardship and Improvements.

Coordinate with the U.S. Forest Service and the Appalachian Trail Conservancy to support ongoing trail maintenance and management.

Public

Ongoing

USFS, ATC, Unicoi County

1.4.3 Appalachian Trail Chestoa Trailhead. Collaborate with the U.S. Forest Service to advance the planned reconstruction and enhancement of the Chestoa Trailhead on the Appalachian Trail.

Public

Near-term

USFS, ATC, Unicoi County

PLANNING SECTION 1: NOLICHUCKY GORGE Focus Area 1.1: Upper Gorge 1.1.1 Streambank Restoration. Support streambank restoration measures to restore the riparian corridor.

Focus Area 1.2: Jones Branch

Focus Area 1.3: Unaka Springs

Focus Area 1.4: Chestoa

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Plan Implementation

PROJECT CLASSIFICATION

TIMEFRAME

KEY PARTNERS

1.4.4 Nolichucky Riverwalk. Support the design and implementation of the Nolichucky Riverwalk segment connecting the Appalachian Trail Chestoa Trailhead to the Chestoa Recreation Area.

Public

Long-term

USFS, Unicoi County

1.4.5 Unaka Springs Road Stabilization Revegetation. Support revegetation strategies to stabilize existing riprap repairs along the fill embankments between Unaka Springs Road and the Nolichucky River.

Public

Near-term

Unicoi County, TVA, USACE, and TWRA

PROJECT CLASSIFICATION

TIMEFRAME

KEY PARTNERS

2.1.1 Chestoa Pike/Appalachian Trail Bridge. Support current bridge replacement plans and incorporate additional enhancements.

Public

Near-term

USFS, TDOT, Unicoi County

2.1.2 Intersection Improvements. Design and implement bike and pedestrian improvements at the Chestoa Pike intersection with River and Unaka Springs Roads.

Public

Near-term

TDOT, Unicoi County

2.1.3 Road Protection and Improvement. Support measures to stabilize, reinforce, and protect fill embankments, widen shoulders, install guardrails, and restore streambanks along River Road.

Public

Near-term

Unicoi County

2.1.4 Landowner Engagement and Easement Acquistion. Engage landowners along River Road and pursue easement acquisition Public - Private for the Nolichucky Riverwalk.

Near-term

Town of Erwin and Unicoi County

2.1.5 Nolichucky Riverwalk. Develop and implement plans for the Nolichucky Riverwalk segment between the Chestoa Pike Bridge and Jackson Love Bridge, while concurrently advancing streambank restoration measures.

Public - Private

Long-term

Unicoi County

Private

Mid-term

Private Landowners

Mid-term

Town of Erwin, Unicoi County, Private Landowners, Investors, and Entreprenuers

PLANNING SECTION 1: NOLICHUCKY GORGE (CONT’D) Focus Area 1.4: Chestoa (Cont’d)

PLANNING SECTION 2: RED BANKS Focus Area 2.1: River Road

Focus Area 2.2: Red Banks District 2.2.1 Red Banks District Landowner Engagement and Land Acquisition. Conduct outreach to private landowners along Temple Hill Road to gauge interest in land conveyance or potential mixed-use development/redevelopment.

2.2.2 Business Development. Explore public-private partnerships with entrepreneurs, developers, and local governments to attract investment in future businesses and infrastructure.

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Public - Private

Nolichucky Recover Initiative

PLANNING SECTION 2: RED BANKS (CONT’D)

PROJECT CLASSIFICATION

TIMEFRAME

KEY PARTNERS

Focus Area 2.2: Red Banks District (Cont’d) 2.2.3 Land Acquisition and Conservation. Collaborate with land conservation nonprofits to secure easements and priority properties along the river to support streambank restoration, flood mitigation, and park development.

Public - Private

Near-term

Private Landowners and Nonprofit Land Conservation Groups

2.2.4 Streambank and River Restoration. Support streambank restoration and river channel improvements to restore the riparian corridor, enhance in-stream navigation, and improve aquatic and riparian habitat.

Public

Mid-term

Unicoi County, TVA, USACE, and TWRA

2.2.5 Nolichucky River Park. Work with key stakeholders to develop a riverside park featuring a segment of the Nolichucky Riverwalk, Red Bank Music Venue, an event stage, open green space, support facilities, and areas reserved for expanded flood storage.

Public

Near-term

Town of Erwin and Key Community Groups

2.2.6 Expanded Flood Storage. Identify opportunities on large vacant parcels to increase flood storage, slow stormwater flows, reduce peak velocities, and lower flood elevations during significant storm events.

Public - Private

Mid-term

Town of Erwin, TVA, and USACE

2.3.1 Blue Ridge Paddling. Support landowner plans to reconstruct and enhance outfitter facilities, design a unique pedestrian bridge across the Nolichucky River that will connect the Erwin Linear Trail to the Nolichucky Riverwalk, encourage mixed-use development on vacant land across river left, and support implementation of streambank restoration and flood mitigation measures to protect structures within the 500-year floodplain.

Private

Mid-term

Blue Ridge Paddling

2.3.2 Erwin Linear Trail. Collaborate with the Town of Erwin and key stakeholders to evaluate and support realignment and reconstruction options for the Erwin Linear Trail along South Industrial Drive.

Public

Mid-term

Town of Erwin and Unicoi County

2.3.3 Trailhead and River Access Area Development. Engage private landowners to assess interest in developing a trailhead and river access area serving the Erwin Linear Trail, Nolichucky Riverwalk, and Nolichucky River.

Public - Private

Mid-term

Town of Erwin and Unicoi County

Focus Area 2.3: Riverview

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Plan Implementation

PROJECT CLASSIFICATION

TIMEFRAME

KEY PARTNERS

3.1.1 Infrastructure Protection and Improvement. Collaborate with TDOT to support a northern extension or second span of the I-26 bridge over a vegetated riverside shelf engineered as a high-flow channel that carries water only during flood events.

Public

Long-term

TDOT, FHWA, and Unicoi County

3.1.2 Streambank and River Restoration. Support streambank restoration measures to stabilize and restore the riparian corridor and stream channel restoration efforts to improve flow, enhance aquatic habitat, and increase fish habitat diversity.

Public

Mid-term

Unicoi County, TVA, USACE, and TWRA

Public

Near-term

Unicoi County and USFS

Near-term

Unicoi County

PLANNING SECTION 3: LOWER NOLICHUCKY Focus Area 3.1: Indian Creek

Focus Area 3.2: Sawmill 3.2.1 Lower Nolichucky Access Area. Collaborate with Unicoi County and the U.S. Forest Service to support reconstruction and enhancement of the Lower Nolichucky Access Area.

3.2.2 Landowner Engagement. Engage private landowners to assess interest in partnering with local government or nonprofit Private - Public conservation organizations for development and enhancement of the access area.

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5.3 THE “TOP 3” PRIORITY PROJECTS At the time of this plan’s preparation, Unicoi County Economic and Community Development (ECD) has positioned itself to advance key recommendations through coordinated grant writing and funding requests involving federal, state, and local partners. Initial efforts have focused on funding sources that support flood recovery, outdoor recreation, and economic development. Unicoi County ECD has also engaged key state and federal agencies to identify and align future funding opportunities with the plan’s priorities.

Three priority projects have been identified based on site ownership and management, capacity to support existing and future outdoor recreation, and potential to deliver significant environmental, economic, and flood mitigation benefits:

1. Chestoa Recreation Area Reconstruction and enhancement of the Chestoa Recreation Area represent a pivotal investment for both residents and visitors.

Located on public lands, the site will include enhancements that will allow it to serve as a community park. It also serves as a critical economic and tourism asset, acting as the primary take-out for paddlers and commercial outfitters running the Nolichucky River Gorge from the Poplar Boat Launch in North Carolina.

2. Red Banks District Implementation of the Red Banks District will require coordinated engagement with landowners, entrepreneurs, developers, and local government leadership. Strategic land acquisition and strong public-private

partnerships will be essential to attract investment in commercial infrastructure and business development, and promote park and recreation amenities, bringing the district vision to fruition.

3. Lower Nolichucky Access Area Enhancing this previously informal access site on public lands will create a more robust river access point, providing new recreational opportunities for the community while supporting existing paddling outfitters operating on the lower Nolichucky River.

Collectively, these projects form the foundation of the recovery effort, positioning the Nolichucky River corridor for a more resilient, accessible, and economically vibrant future.

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Plan Implementation

5.4 KEY GRANT FUNDING OPPORTUNITIES

The scale of infrastructure investment required to implement the Nolichucky Recovery Initiative Action Plan exceeds the current operational capacity of Unicoi County Economic and Community Development (ECD). To effectively advance recovery and long-term revitalization, Unicoi County ECD must pursue a comprehensive funding strategy that leverages state and federal resources alongside private investment. Proactive engagement with relevant state and federal agencies will be critical to securing public funding aligned with the plan’s priorities.

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Successfully competing for grants and other funding opportunities will also require expanded organizational capacity, technical expertise, and strategic collaboration. Unicoi County ECD should strengthen its internal team while partnering with regional nonprofits, foundations, and community stakeholders to develop competitive applications and effectively manage awarded funds.

Nolichucky Recover Initiative

Grant

Agency

Plan Implications

Maximum Amount

Matching Amount Required

Deadlines

Building Resilient Infrastructure and Communities Program (BRIC)

Federal Emergency Management Agency (FEMA)

Pre-disaster mitigation, major infrastructure resilience

Varies

Typically 25%

Annually (Fall)

Community Challenge

AARP

Projects that improve livability, public spaces, walkability, safety, and community health

$500 - $50,000

None

Annually (Typically March)

Community Change

America Walks

Walkability, community connectivity

$1,500

None

Annually

Community Development Block Grant Disaster Recovery Program (CDBGDR)

TN Department of Economic and Community Development (TNECD)

Disaster recovery: housing, infrastructure, economic revitalization

$400,000

Varies

Allocationdependent

Emergency Watershed Protection Program (EWP)

US Department of Agriculture (USDA)

Watershed restoration, debris removal, bank stabilization

Varies

Usually federal share, landowner cooperatives

Disasterdependent

Federal Lands Access Program (FLAP)

Federal Highway Administration (FHWA)

Recreation access infrastructure

Varies

None

Varies

Flood Mitigation Assistance

Federal Emergency Management Agency (FEMA)

Buyouts, elevations, floodproofing (NFIP-insured properties)

Varies

Typically 25%

Annually

Governor’s Response & Recovery Fund (GRRF)

State of Tennessee

Disaster recovery, business / nonprofit support

Varies

Varies

Disasterdependent

Based on disaster allocation

Typically 25%

Following federal disaster declarations

Hazard Mitigation Grant Program (HMGP)

Federal Emergency Post-disaster Management mitigation projects Agency (FEMA) / TEMA

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Plan Implementation

Grant

Agency

Plan Implications

Maximum Amount

Matching Amount Required

Healthy Built Environments (HBE)

TN Department of Health

Healthy built environments to improve health

$2,000 – $80,000

None

Annually (typically March)

Land and Water Conservation Fund (LWCF)

TN Department of Environment & Conservation (TDEC)

Land acquisition and development of public outdoor recreation areas and facilities

Varies

50%

Annually

Local Parks & Recreation Fun (LPRF)

TN Department of Environment & Conservation (TDEC)

Local parks, No Maximum recreation facilities, $20,000 Minimum land acquisition

50%

Annually

Neighbor to Neighbor Disaster Relief Fund

East Tennessee Foundation

Disaster recovery, cleanup

Varies

None

Rolling following disaster events

Recreation Trails Program (RTP)

TN Department of Environment & Conservation (TDEC)

Trail building, river access, signage

Varies

20%

Annually (typically April - June)

Rural Business Development Grants (RBDG)

US Department of Agriculture (USDA)

Rural business support, tourism, entrepreneurship

Varies

Typically 25%

Annually

TN Recreation Initiative Program (TRIP)

TN Department of Environment & Conservation (TDEC)

Community recreation assets, outdoor recreation development

$50,000 / year over 3 years

Local match varies by year

Annually

Tourism Enhancement

TN Department of Tourist Development

Tourism Development projects

Up to $100,000

Local match varies by year

Annually (typically July - August)

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Deadlines

Nolichucky Recover Initiative

BUILDING RESILIENT INFRASTRUCTURE AND COMMUNITIES PROGRAM (FEMA) The Building Resilient Infrastructure and Communities (BRIC) Program is a federal hazard mitigation initiative that funds pre-disaster projects aimed at reducing long-term risks to people, property, and infrastructure. The program supports large-scale, community-wide resilience projects such as flood mitigation systems, infrastructure hardening, and planning activities that strengthen a community’s ability to withstand future disasters.

COMMUNITY CHALLENGE (AARP) Supported by AARP, this competitive “quickaction” program funds local projects that make communities more livable for all ages, particularly those 50 and older. Grants support nonprofits and governments in improving public spaces, housing, transportation, and digital access.

COMMUNITY CHANGE (AMERICA WALKS) The Community Change Grants program, administered by America Walks, provides funding to support community-led projects that improve walkability and strengthen neighborhood engagement. Grants encourage partnerships, innovative approaches, and small-scale interventions that create healthier, more connected public spaces.

COMMUNITY DEVELOPMENT BLOCK GRANT DISASTER RECOVERY PROGRAM (TNECD) The Community Development Block Grant Disaster Recovery Program (CDBG-DR), administered by the Tennessee Department of Economic and Community Development, provides federal funding to support long-term recovery from major disasters. The program funds housing rehabilitation, infrastructure restoration, public facility improvements, and economic revitalization initiatives in disaster-impacted communities.

EMERGENCY WATERSHED PROTECTION PROGRAM (USDA) The Emergency Watershed Protection Program (EWP) provides assistance to help local communities address imminent threats to life and property caused by floods, fires, windstorms, and other natural disasters that impair a watershed.

Program assistance is initiated after the NRCS State Conservationist declares a local watershed emergency. All projects must have a sponsor and demonstrate reduced threats to life and property, be economically, environmentally, and socially responsible, and be designed to acceptable engineering standards.

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Plan Implementation

FEDERAL LANDS ACCESS PROGRAM (FHWA)

HAZARD MITIGATION GRANT PROGRAM (FEMA/TEMA)

The Federal Lands Access Program (FLAP), administered by FHWA, provides funding for transportation projects on public roads, bridges, trails, transit systems, and related facilities that are located on, adjacent to, or provide access to federal lands. The program is intended to improve safe and reliable access for visitors, recreation users, and surrounding communities, while supplementing state, local, and tribal resources for eligible transportation improvements.

The Hazard Mitigation Grant Program (HMGP) is a post-disaster funding opportunity that helps states and local governments implement longterm mitigation measures following a presidentially declared disaster. The program supports projects such as buyouts, stormwater and drainage improvements, protective infrastructure upgrades, and other actions designed to enhance community resilience and reduce future disaster impacts.

FLOOD MITIGATION ASSISTANCE (FEMA) The Flood Mitigation Assistance (FMA) Program provides federal funding to reduce or eliminate the risk of repetitive flood damage to properties insured under the National Flood Insurance Program.

Eligible activities include property acquisition and buyouts, structural elevations, floodproofing measures, and mitigation planning that help communities reduce long-term flood losses.

GOVERNOR’S RESPONSE & RECOVERY FUND The Governor’s Response & Recovery Fund (GRRF) is a state-directed program that provides flexible financial resources to address unmet disaster recovery needs in Tennessee. The fund supports local governments, businesses, and nonprofit organizations as they respond to and recover from major emergencies, offering assistance for rebuilding, economic stabilization, and long-term community recovery.

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HEALTHY BUILT ENVIRONMENTS (HBE) Managed by the Tennessee Department of Health, HBE grants are non-competitive and available to all 95 counties in Tennessee to support the creation of healthy built environments that protect, promote, and improve the health and prosperity of residents.

Funds may be used for convening, planning, programming, and construction.

LAND AND WATER CONSERVATION FUND (LWCF) Administered by the Tennessee Office of Outdoor Recreation, the LWCF program is a federal program that provides matching grants to states for distribution to state and local governments for the acquisition and development of public outdoor recreation areas and facilities. All land associated with funded projects must be publicly owned, and LWCF grants require a one-to-one match.

Nolichucky Recover Initiative

LOCAL PARKS & RECREATION FUND (TDEC)

RURAL BUSINESS DEVELOPMENT GRANTS (USDA)

The Local Parks & Recreation Fund (LPRF), administered by the Tennessee Department of Environment and Conservation, provides grants to local governments for the development and enhancement of public parks and recreational facilities. Funding supports projects such as park construction, facility upgrades, greenway development, and land acquisition that improve outdoor access and overall community livability.

The Rural Business Development Grants (RDBG) program, administered by the U.S. Department of Agriculture, provides funding to support the growth and development of small businesses in rural communities. The program assists public entities and nonprofit organizations with projects such as business training, technical assistance, infrastructure development, and facility improvements, all aimed at strengthening local entrepreneurship, expanding economic opportunities, and promoting long-term rural economic vitality.

NEIGHBOR TO NEIGHBOR DISASTER RELIEF FUND (EAST TENNESSEE FOUNDATION) The Neighbor to Neighbor Disaster Relief Fund, administered by the East Tennessee Foundation, provides financial support to communities recovering from natural disasters. The program assists nonprofit organizations and local partners with immediate relief, cleanup, rebuilding, and long-term recovery efforts designed to restore community stability and resilience.

RECREATIONAL TRAILS PROGRAM (TDEC) The Recreational Trails Program (RTP) is a federal grant initiative designed to help states develop and improve recreational trails for a variety of users.

The Tennessee Department of Environment and Conservation (TDEC) administers the program and provides funding for trail-related projects, including land acquisition, new trail construction, trail rehabilitation and maintenance, trailhead and access improvements, and safety and educational initiatives that promote responsible trail use.

TENNESSEE RECREATION INITIATIVE PROGRAM (TDEC) The Tennessee Recreation Initiative Program (TRIP), administered by the Tennessee Department of Environment and Conservation (TDEC), provides funding to support the development of community recreation facilities and outdoor amenities across the state. The program assists local governments in expanding access to public recreation through the construction of new facilities, park improvements, and outdoor infrastructure projects that promote active lifestyles.

TOURISM ENHANCEMENT (TDTD) Managed by the Tennessee Department of Tourist Development, this grant supports tourism development projects that create or expand publicly accessible attractions, facilities, or events designed to enhance a destination’s appeal to visitors. Funding may be used to improve tourismrelated assets and experiences that attract and serve visitors, with a focus on projects that strengthen overall destination competitiveness and visitor engagement.

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