On the agenda: Iowa City Board of Supervisors - Work Session - May 27, 2026 — surveillance camera (May 27)

Board of Supervisors Meeting Agenda
Wednesday, May 27, 2026
9:00 a.m.
Boardroom 301

Work Session

9:00 a.m.

Health & Human Services Bldg., 855 S. Dubuque St., Iowa City, IA 52240
Phone: 319-356-6000 | Website: www.johnsoncountyiowa.gov
View livestream: http://bit.ly/jocomeeting
Participate by joining the Zoom Meeting:
https://us02web.zoom.us/j/84388010803?pwd=ewdruutsbkdkqitmbgv1vc9yogc0zz09
Meeting ID: 843 8801 0803
Listen live by dialing (312) 626-6799 (audio only)

MEETINGS OF THE BOARD OF SUPERVISORS
Johnson County, Iowa
Elected Officials

Chairperson Jon Green
Vice Chairperson Lisa Green-Douglass
Supervisor V Fixmer-Oraiz
Supervisor Mandi Remington
Supervisor Rod Sullivan
Attorney Rachel Zimmermann Smith
Auditor Julie Persons
Recorder Kim Painter
Sheriff Brad Kunkel
Treasurer Scott Finlayson
County Departments

Ambulance
Conservation
County Assessor
Case Management
Emergency Management
Finance
Human Resources
Information Technology
Iowa City Assessor
Medical Examiner
Physical Plant
Planning, Development & Sustainability
Public Health
SEATS
Secondary Roads
Social Services
Veterans Affairs

Johnson County, Iowa

Location
Meetings are generally held in the Johnson County Health and Human Services
Building Third Floor Boardroom 301, 855 S. Dubuque St., Iowa City.

Agenda Packets
To be in compliance with Iowa Code Section 21.4, Board of Supervisors meeting
agendas are posted on the bulletin board outside the first floor elevator a
minimum of 24 hours prior to the scheduled meeting. After such time has
passed, the posted agenda will not change; however, agenda packet attachments
may be modified or added until the start of the meeting.

Order of Discussion
Board members reserve the right to move items from the order listed on the
agenda. A person may address matters not on the agenda during the Public
Comment item. Please be aware that the Board is limited in their ability to
respond to such inquiries and the Iowa Code prohibits the Board from
deliberating or acting on items not appearing on the agenda.

Additional Information
Supplemental documents to agenda items are public record and are attached to
the online agenda packet, with the exception of those corresponding to executive
sessions. Minutes of formal meetings are published in accordance with Iowa
Code.
Board of Supervisors regular weekly formal meetings are recorded and televised
on Cable Television City Channel 4 and can be viewed via webcast on
http://bit.ly/jocomeeting.
Johnson County strives to host inclusive, accessible meetings and events that
enable all individuals, including individuals with disabilities, to engage fully.
Language interpretation is available, please advise the Board of Supervisors
Office at least 48 hours in advance. To request a modification, inquire about
accessibility, or request language interpretation, contact the Board of Supervisors
Office at (319)356-6000 or email [email protected].

Published: 5/22/2026 04:00 PM

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Agenda

Board of Supervisors

Wednesday, May 27, 2026

Work Session Agenda
Meetings of the Johnson County Board of Supervisors are open to the public and are generally livestreamed.
To join electronically, please visit bit.ly/jocomeeting. Written comments may be submitted to
[email protected]. If you require accommodations to participate, please contact the Board Office
at (319) 356-6000 prior to the meeting. Public comment is at the discretion of the Chairperson and will be
limited to three minutes per speaker. Due to public meeting laws, the Board may only discuss or act on matters
presented on this agenda. Welcome.
A. 9:00 a.m. Call to Order
1. Call to Order
2. Roll Call, Establishment of Quorum
3. Approval of Agenda
B. Business From the Public
1. Public Comment, limited to 3 minutes per speaker
C. Work Session Business, not to exceed 15 minutes per item
1. Receive update on the Emma Goldman Clinic fiscal year 2026 Service Agreement and its
organizational impacts in Johnson County
2. Receive update on the Lone Tree Community School District Library fiscal year 2026 Service
Agreement and its organizational impacts in Johnson County
3. Receive update on Rural Economic Development
4. Discuss Amendment Number 1 to Contract Number ITPG 20-027 with Iowa Department of Natural
Resources Grant Agreement in the amount of $0 for tree planting at the County Administration Building,
Health and Human Services Building, and GuideLink Center
5. Strategic Plan Committee update
6. Discuss state and federal legislative issues, including updates on the Urban County Coalition, pending
legislation affecting Johnson County, and representation of County and Supervisor positions
7. Discuss operational issues of the Board of Supervisors Office
D. Business from Supervisors, not to exceed 3 minutes per item
1. Discuss request from Supervisor _____ for _____
E. Closed Session - Real Estate
Possible closed session, pursuant to Iowa Code Section 21.5(1)(a) (1)(j), to discuss the purchase or sale of
particular real estate only where premature disclosure could be reasonably expected to increase the price
the governmental body would have to pay for that property or reduce the price the governmental body
would receive for that property
Johnson County, Iowa

Published: 5/22/2026 04:00 PM

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Agenda

Board of Supervisors

Wednesday, May 27, 2026

F. Closed Session - Real Estate
Possible closed session, pursuant to Iowa Code Section 21.5(1)(a) (1)(j), to discuss the purchase or sale of
particular real estate only where premature disclosure could be reasonably expected to increase the price
the governmental body would have to pay for that property or reduce the price the governmental body
would receive for that property
G. Adjournment
1. Adjournment with the next meeting of the Board of Supervisors scheduled on May 28 at 9:00 a.m.

Johnson County, Iowa

Published: 5/22/2026 04:00 PM

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Dana David
Administrative Associate

5/21/2026

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Project Overview

Primary Goals

Agenda

Services Supported

Local and Community Trends

Q&A

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Agreement Overview:
Reduce the financial burden of healthcare to
low-income residents of Johnson County
Primary Goal:
Increase access to gender affirming care for
Johnson County residents

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Services Supported:

With this grant we were able to help support routine health care
exams, lab work, and follow-up visits for low income and
uninsured residents of Johnson County.

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Local and Community Trends

Trends in coverage:
• High deductible/co-pay plans
• Existing and expanding limitations to Medicaid in Iowa
5

• Insurance company’s definition of “medically necessary”
Trends in service:

• Limited providers
• Long wait times for appointments
• cost

Sample Footer Text

5/21/2026

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?? Questions ??

Sample Footer Text

5/21/2026

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Lone Tree Schools
Johnson County Board of Supervisors
May 27th, 2026

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About Lone Tree Schools
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About 400 Students
One Building | PK-12
Library: School and Community
My Hometown
○

3rd Generation

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Lone Tree Library
School Library
Community Library
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Chase Williams
Antelope Lending Library

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Community Library
School Year

Summer

Monday, Tuesday, & Thursday

Tuesday | 10:00a to 4:00p

3:30p to 7:00p
1st Saturday of Month

Wednesday | 3:30p to 7:00p
Thursday | 12:00p to 3:30p
1st Saturday | 8:30a to 10:30a

8:30a to 10:30a
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Antelope Lending Library
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13.5 hours of service
152 visits
checked out 53 books
36 items used in-house (games
played, books read on the
bookmobile, etc)
Distributed 97 snacks & 10
hygiene items

From a child patron: "We played these games last time,
then we went online to buy them for our house, but they
were too expensive." Our staff responded: "Good thing we
have it here and we have a copy you can check out and
take home to play - you don't need any money!"
During our Extant Reptiles fun at Lone Tree a young child
was holding a big snake so gently. One of our team
commented, "You are being so kind and brave." The child
nodded his head slowly and said, "I'm not always brave,
but right now I am."
Upon receiving a backpack through our summer reading
program, a child said, "Now I don't have to have a boring
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red backpack. I can have a cool one!"

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Antelope Lending Library

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Goal/Purpose
We want our library to be a place that serves our community in
a variety of ways. We do this through offering it as both a
school library and a community library. Adding the Antelope
Lending Library was an opportunity to provide more for our
community during the summer months.

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Executive Summary
Meeting Date:

May 27th, 2026

Agenda Language:

Rural Economic Development update

Prepared by/Contact:

Sarah Thompson, Economic Development Coordinator, PDS

Attachments:

Update PPT Presentation, Information about IncDev, U of I Students’
Grocery Store report, Agri-CULTURE roadmap

☐

This agenda item contemplates action which would have financial or budgetary implications
of $50,000 or more beyond those already authorized within the approved budget, has been
discussed with the Finance Director as required, and includes a fiscal note from the
Finance Director.

☐

This agenda item contemplates a contract and has been reviewed by the County
Attorney’s Office as required

☒

This agenda item DOES NOT contemplate a contract or action which would have a
financial implication

Background
I will update the Johnson County Board of Supervisors about what has been going on in rural
economic development. I will talk about community milestones, a pilot “food desert” project I’m
working on, a small developer workshop for this fall, Agri-CULTURE Iowa updates, and
continuing education. All questions welcome.

913 South Dubuque Street  Iowa City, Iowa 52240  319-356-6083  www.johnsoncountyiowa.gov

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2026 Mid-Year
Economic
Development
Coordinator
Program Update

Johnson County
Planning,
Development and
Sustainability
Presented by:
Sarah Thompson

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Overview of Focus Areas
In 2026, my work has centered on these major initiatives:
1. Rural Communities (business retention and attraction, downtown
rehabilitation, housing)
2. Rural Grocery Pilot Project (food access and rural vitality)
3. Local Small Developer Workshop (housing and small-scale
development capacity building)

4. Agri-CULTURE Iowa Collaboration (agritourism, regional identity
and local foods)
5. Continuing Education (I will be taking certification classes to
become a Certified Entrepreneurial Development Professional)

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Rural Community Engagement
Across Johnson County

Johnson County’s rural communities, Lone Tree, Hills, Oxford, Swisher,
Shueyville, Solon continue to show strong initiative and collaboration through:
• Volunteer Economic Development groups
• Hometown-Pride Committees
• Resident-Led Advocacy efforts
• Rural Businesses Lunch and Learns

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Rural Community Engagement
Across Johnson County
Across these communities, volunteers:
• Champion local priorities and community identityShueyville, Swisher, and Lone Tree all took advantage of Branding Grants

• Provide on-the-ground insight for County projectsWe held housing forums in Swisher, Hills, Solon, and Lone Tree.
Sarah, Ilsa, and Maddie did a grocery survey in Lone Tree.

• Help guide conversations on growth, development, and business attractionSwisher has opened several new businesses in the recently rehabbed Rose Barn-

(Including a Massage Therapist, Plants and 3D Printing, Home décor, and Swisher Sips)
Oxford has opened a new restaurant (Ox Bar & Grill) and a new clothing store (Mindy’s Backroad
Boutique)
Lone Tree, Hills and Solon have had successful events and local art in the past year.
All of the communities sent representation for our housing forums

• Serve as key partners in long-term rural vitality efforts

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Local volunteer groups are working to strengthen their

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economic futures through:
• Identifying priority sites for redevelopment or small-scale
infill (e.g. Rose Barn in Swisher).

How Rural
Communities
Attract New
Business

• Recruiting essential services and locally-owned small
businesses (e.g. food/coffee trucks on Fridays in Hills)
• Showcasing community character and amenities through
events, branding, and social media (e.g. Swisher, Shueyville,
and Lone Tree with new branding and Hills with a mural)
• Supporting developers, entrepreneurs, and new business
owners through personal outreach (e.g. Oxford, Swisher,
Solon, Hills, and Lone Tree with new businesses opening)
• Coordinating with County staff on housing, food access,
agritourism, and infrastructure needs (e.g.
Agri-CULTURE, rural communities, and the unincorporated
areas of Johnson County)

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Rural
Grocery Pilot
Project —
Why It
Matters

• Many rural Johnson County residents lack
nearby grocery access, relying on Iowa City
or neighboring towns.
• This creates barriers for families and older
adults.
• Local farmers lose opportunities to expand
markets and diversify revenue.

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Project Scope & Pilot Community
• Initial focus community: Lone Tree chosen for demographics and geography.
• Additional communities considered: Swisher, Solon, Shueyville, Oxford, Hills.
• Partnering with Local Foods, Ilsa & Maddie, to survey residents of Lone Tree
on their grocery habits
• Target users: rural households, young families, elderly residents, and local
producers.
• Worked with John Pappa John students over a semester to have them help us
gather research to make informed decisions.

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Research
Project goals (in partnership with UI consulting team):
• Understand rural attitudes toward grocery solutions.
• Examine community-owned models and hybrid low-staff/unmanned options.
• Review comparative case studies across multiple states.
• Deliver a pilot recommendation for State of Iowa consideration
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• Rural grocery models succeed when right-sized

and tech-supported.

• Hybrid low-staff/unmanned stores significantly

What We
Learned

reduce labor costs while maintaining access.

• Multiple sourcing channels (co-ops, food hubs,
regional vendors) improve affordability and
reliability.

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• Build a pipeline of local small-scale
developers who can complete attainable

Local Small
Developer
Workshop
— Purpose

housing and mixed-use projects in small towns.

• Increase regional development capacity
through training, coaching, and networking.

• Workshop developed in collaboration with
IncDev, East Central Iowa partners, and local
practitioners.
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Workshop Planning & Design

• April–May: outlined curriculum topics, delivery formats, and potential
instructors.
• Confirmed need for a four-week hybrid model combining IncDev
online content + local in-person sessions.
• Discussed adding an in-person graduation/mixer to build community
and professional connections.

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Agri-CULTURE Iowa — Strengthening Agritourism

• Strengthen Johnson County’s agritourism
identity.
• Support local farms through coordinated marketing
and shared storytelling.
• Develop long-term assets that elevate the region as a
connected destination.

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• Seasonal storytelling video series for member farms

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(spring, summer, fall).
• Collective 2-minute promotional video highlighting the
full network.

2026–2027
AgriCULTURE
Program
Roadmap

• Illustrated agritourism map (print + digital) to promote
cross-visitation.
• Planning for Movable Feast summer events
(family-focused + adult-focused experiences).
• Collaborative countywide Recipe Book project (stories,
photography, seasonal recipes).
• ANF Iowa + Iowa Football Game Day promotions to
amplify local foods.
• Continued expansion of shared branding and countywide
agritourism identity.

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Summary Next Steps
• Finalize grocery pilot site and funding path
• Launch the Local Small Developer Workshop in partnership with IncDev,
ECICOG, South of 6, Dream City, Housing Fellowship, JC Affordable
Housing, & Rural Communities
• Roll out Agri-CULTURE Iowa 2026 assets: videos, map, and Movable
Feast events
• Prepare for 2027 agritourism strategy components (recipe book,
game-day campaigns)

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Advancing My

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Professional Development

Expanding expertise through the International Economic Development
Council (IEDC) by pursuing certification as an Entrepreneurial Development

Continuing
Education &
Professional
Development

Professional (EDP)
– Strengthening skills in entrepreneurship support, ecosystem building, and
rural economic development
Applying for additional certification through the Professional Developers of
Iowa (PDI)
– Gaining additional training aligned with Iowa-specific development
strategies and best practices
Applying best-practice economic development tools directly to:
– Rural grocery access work
– Small-developer capacity building
– Local business attraction and retention
– Strengthening hometown pride and volunteer-led initiatives across Johnson
County

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Questions or Comments?
Thank You
Sarah Thompson

Economic Development Coordinator
Planning, Development and Sustainability
Department
319-356-6083
[email protected]
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Johnson County
Planning, Development, and Sustainability
Final Report

Prepared by:
Rural Impact Consulting
S160 Pappajohn Business Building
Iowa City, IA 52242

Marlene Walters, Michael Murnin, Brooks Murphy,
Luke Weckel, Elaina DeWulf

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Table of Contents
Executive Summary........................................................................................................ 3

Project Purpose, Problem Statement, and Boundaries of Analysis................................ 3

Objectives....................................................................................................................... 4

Methodology.................................................................................................................. 4

Key Findings....................................................................................................................5

Final Recommendations............................................................................................... 16

Risks and Considerations.............................................................................................. 21

Implementation Plan.................................................................................................... 23

Bibliography..................................................................................................................24

Appendices................................................................................................................... 25

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Rural Impact Consulting
S160 Pappajohn Business Building
Iowa City, Iowa 52242

Executive Summary
The following report was prepared for the Johnson County Planning, Development, and Sustainability
department to examine the challenges rural communities face with access to local grocery stores and
to evaluate practical models for improving local food availability. Through expert interviews,
secondary research, comparative case studies, and analysis of sourcing, technology, and community
demographics, our team assessed how small towns, like Lone Tree, can sustain consistent grocery
services.
Our findings demonstrate the structural barriers that rural communities face, such as low population
density, high operating costs, and sourcing constraints. The primary and secondary research we
completed will show achievable ways to combat these challenges and highlight existing models that
have succeeded in other similar towns in the country. These recommendations are based on
thorough competitive and environmental analyses that allowed us to develop key insights on a
potential pilot initiative to develop rural grocery access in Johnson County.

Project Purpose, Problem Statement, and Boundaries of Analysis
On September 29th, 2025, Sarah Thompson, Economic Development Coordinator for the Johnson
County Planning, Development, and Sustainability Department, met with Rural Impact Consulting to
outline the goals and parameters of the engagement. The department aims to address the lack of
grocery access in rural Johnson County, where many residents depend on Iowa City or neighboring
towns for food purchases. This limited access creates challenges for families, older adults, and other
residents who need convenient, local options, while also limiting opportunities for local farmers to
expand revenue streams and reach new customers. The project focuses on identifying sustainable,
small-scale grocery models that can strengthen rural communities, support local producers, and
position the county to pursue potential state funding for a pilot initiative.
Lone Tree and Swisher were identified as the primary pilot locations —with a focus on Lone Tree—
due to their contrasting demographics and geographic characteristics. Additional communities for
broader consideration include Solon, Shueyville, Oxford, and Hills. Target markets include rural
households, young families, and elderly populations, as well as local farmers and producers seeking
stable and diversified market channels. While the analysis remains rooted in Johnson County, it will
incorporate case studies and comparable models from other states—such as Tennessee, West
Virginia, rural Pennsylvania, and Missouri—to inform best practices and evaluate feasibility.

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Rural Impact Consulting
S160 Pappajohn Business Building
Iowa City, Iowa 52242

Objectives
Sarah Thompson and other team members at Johnson County PDS intend to present a pilot project to
the State of Iowa by spring or summer 2026. Rural Impact Consulting has worked to achieve this by
developing a comprehensive research report to support this proposal. The report will include:
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Gathering data on rural attitudes toward local grocery solutions
Conducting research on community-owned grocery models
Examination of comparative case studies from other communities
Providing pilot recommendations

Methodology
Primary Research:​
During our research, we primarily used qualitative and mixed methods through expert interviews and
case studies to gather our data. To inform the development of a low/unmanned rural grocery model
for Johnson County, we conducted targeted interviews with experts. These conversations provided
practical, field-tested insights that shaped our feasibility assessment and operational
recommendations.
Interviews with Jenny Doty clarified project scope, highlighted the need to tailor store models to local
demographics, and identified resources—such as grant databases and additional expert contacts—to
strengthen community engagement and financial planning.
Jeanie Wells provided key operational benchmarks, including typical 1% profit margins and the need
for roughly $1 million in annual sales for sustainability. She emphasized differentiating from big-box
competitors by functioning as a community hub, reducing overhead through shared services and
nonprofit partnerships, and prioritizing right-sized product offerings that minimize waste. Her
guidance on integrating local producers informed our evaluation of supply-chain options.
Insights from Tom Mulholland reinforced the importance of community-facing strategies, including
social media marketing, unique in-store experiences, and diversified revenue streams such as
catering.
Collectively, these expert interviews supplied critical information on sustainability, financial
expectations, marketing, and community integration—forming the evidence base for designing and
assessing a viable rural low/unmanned grocery model for Johnson County.

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Rural Impact Consulting
S160 Pappajohn Business Building
Iowa City, Iowa 52242

Secondary research:​
The bulk of the secondary research conducted was the analysis of case studies concerning similar
grocery models in other rural areas in the US. Farmhouse Market (New Prague, MN) and Main Street
Market (Evansville, MN) demonstrate how hybrid, membership-based unmanned grocery models can
succeed in small rural communities. Farmhouse Market offers 24/7 keycard access for members,
minimal staffed hours, self-checkout, and camera monitoring, relying on strong community trust with
virtually no theft. Main Street Market uses a similar system (app or key fob entry, self-scanning, and
limited public hours) while navigating regulatory requirements to operate unstaffed after hours. Both
stores show that simple technology, clear membership structures, remote oversight, and community
buy-in can sustain low-labor grocery access in towns that cannot support a traditional store.
Our group analyzed existing research done by the Kansas State Rural Grocery Initiative which both
identified case study models of rural grocery stores and general best practices for starting and
successfully operating one. We also looked at more general secondary research and data on the
grocery industry and the small business environment in Iowa.
Other secondary research consisted of customer demographics, a competitive analysis, and a SWOT
and PESTLE analysis. These sources were used to determine our best plan of action to help rural Iowa
have easier accessibility to groceries. We pulled synthesized information from sources all over to
provide information on how previous unmanned grocery store models have succeeded by comparing
and contrasting other similar models.

Limitations:​
Potential risks associated with our recommendation are that the data available to us through surveys
based on the community's thoughts for this grocery store were not obtainable in time. Our primary
and secondary research is based on comparative town data. However, the data shows that a
low/unmanned grocery store is the best solution to offering a grocery store in rural Lone Tree, Iowa.

Key Findings
Rural Impact Consulting conducted both primary and secondary research to identify sustainable
solutions for improving grocery access in rural Johnson County. Our analysis focused on five key
areas: models and operating information, sourcing and supply, grants and funding, case studies, and
technology considerations. Through interviews with industry experts, review of academic and policy
resources, and examination of successful rural grocery initiatives across the country, we developed
actionable insights to guide future grocery access strategies. These findings highlight opportunities to
balance financial sustainability, local engagement, and accessibility while addressing the unique
challenges faced by small, rural communities.

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Rural Impact Consulting
S160 Pappajohn Business Building
Iowa City, Iowa 52242

Models and Operating Information​
Expanding grocery access in rural Johnson County requires approaches that meet community needs
while remaining financially sustainable. The following models represent the primary structures
explored for small-town implementation, each with unique strengths and tradeoffs.
1. Traditional Grocery Model
The traditional grocery model relies on full-time staff, consistent product availability, and a wide
range of inventory. While it ensures convenience and reliability, the financial and operational
demands can be too high for small or rural communities. Fixed costs such as staffing, utilities, and
spoilage make it difficult to sustain in low-population areas with limited customer traffic. Wells noted
that labor and benefits alone should not exceed 23% of total sales, a target that small-town stores
often cannot meet with low customer volume. However, this model provides stability, familiarity, and
a proven structure for food access when supported by adequate demand and local purchasing power.
Advantages: Familiar operation, full product selection, and stable employment.
Challenges: High overhead costs, difficulty competing with larger chains, and vulnerability to low rural
demand.
2. Co-operative Model
The cooperative grocery model allows community members to share ownership, investment, and
decision-making in the store. This model helps keep profits local, supports regional farmers, and
creates a sense of shared responsibility. According to the Rural Grocery Initiative, cooperative
ownership can take various forms, including consumer-owned, worker-owned, or hybrid structures.
These stores are often able to secure grants, low-interest loans, and community fundraising because
of their public benefit and democratic structure (Rural Grocery Initiative, n.d.). However, the
cooperative model requires strong leadership, consistent member participation, and efficient
governance to avoid burnout or management challenges. When operated effectively, co-ops can
stabilize grocery access while reinvesting 246% more revenue directly into the community.
Advantages: Local ownership, shared responsibility, reinvestment in the community.
Challenges: Requires active participation, professional management, and consistent sales to remain
viable.

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Rural Impact Consulting
S160 Pappajohn Business Building
Iowa City, Iowa 52242

3. Mobile Market Model
A mobile market model provides grocery access by bringing fresh food directly to underserved
communities using a truck or trailer. This approach eliminates the need for residents to travel long
distances to buy groceries, which is especially valuable in rural areas where store closures have
reduced access. Expert interviewee Jenny Doty highlighted challenges such as determining the right
amount of inventory, ensuring the truck is large enough to meet demand, and coordinating effective
scheduling. These logistical and operational concerns often determine whether mobile markets can
sustain long-term service. Research also notes that mobile markets face unpredictable customer
turnout and fluctuating fuel or maintenance costs, affecting overall profitability (Grigg, 2020). Despite
these challenges, mobile markets offer a flexible and visible solution that can strengthen local food
systems through partnerships with area producers and community programs.
Advantages: Flexible, low overhead, accessible to multiple communities, and adaptable to changing
demand.
Challenges: Requires careful route coordination, inventory planning, and reliable equipment to
maintain service consistency.
4. Low-Manned or Unmanned Grocery Model
The low-manned model uses self-checkout systems, surveillance, and membership access to reduce
staffing needs. Often called 'micromarkets' or 'unmanned stores,' these operations can extend
grocery access hours while minimizing labor costs, which is appealing in areas struggling to attract
workers. Because staffing costs often account for roughly 20% of a grocery store’s expenses,
low-manned or unmanned models can redirect those funds into other operational needs. This
reallocation strengthens overall financial stability and makes the model more sustainable for small
rural communities. However, this model depends on reliable technology and community trust. Theft
prevention, maintenance, and technical malfunctions can pose barriers to sustainability. Although
cost-efficient and scalable, low-manned stores often require initial infrastructure investment and local
support to succeed in smaller markets.
Advantages: Low labor costs, flexible hours, and scalability.
Challenges: Upfront technology investment, theft risk, and digital literacy barriers.
5. Multi-Functional Model
Expert interviewer Jeannie Wells identified that smaller, right-sized stores with multiple community
uses, such as a coffee corner or simple deli, can strengthen customer engagement without
overextending resources. She emphasized the importance of choosing low-waste, low-cost products
like soup, which can yield steady profits. Additionally, her experience with emerging food hub

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Rural Impact Consulting
S160 Pappajohn Business Building
Iowa City, Iowa 52242

collaborations in states such as Vermont and Montana suggests that integrating local producers and
distribution networks can enhance both economic sustainability and community connection. While
this model increases foot traffic and creates a sense of place, it requires balance, because too many
side offerings can raise overhead costs and distract from core grocery operations. When managed
carefully, multi-functional stores can serve as social anchors in small towns while supporting local
food systems.
Advantages: Encourages repeat customers, maximizes small spaces, diversifies revenue, and supports
local supply chains.
Challenges: Requires careful management to avoid overextension
Key Takeaways – Models and Operating Information
●​ Model Variation - Different grocery models offer trade-offs between community engagement,
flexibility, and operational demands.
●​ Cooperative and multi-functional models - Strengthen local ownership, revenue diversity, and
community connection.
●​ Mobile and low-manned/unmanned models - Reduce labor costs and expand access but
require careful logistics, technology, and security management.
●​ Traditional stores - Provide stability and familiarity but face high overhead and are vulnerable
to low rural demand.

Sourcing and Supply​
Sourcing and supply represent one of the most critical determinants of long-term viability for rural
grocery stores. Limited buying power, high distribution costs, and inconsistent delivery schedules
often make it difficult for small grocers to compete on both price and variety. To sustain a rural
grocery pilot in Johnson County, a multi-channel sourcing strategy is essential—one that balances
cooperative purchasing, local food partnerships, and efficient vendor coordination.
1. Joining Wholesale Cooperatives and Buying Networks
The first step is to secure access to competitive pricing and a broad inventory base. Joining a
retailer-owned cooperative such as Associated Wholesale Grocers (AWG) provides small grocers
collective purchasing power comparable to regional chains. As shown in Gowrie, Iowa, AWG
membership allowed the store to reduce wholesale costs, receive layout and merchandising support,
and stabilize supply through weekly deliveries (Keegan, 2023).
Cooperatives offer benefits beyond pricing. They provide logistical support, product variety, and
financing programs that simplify inventory management. Independent stores can also form local

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buying groups to pool orders, as seen in North Dakota’s Rural Access Distribution (RAD) cooperative
(Hodur, 2025). By aggregating demand, member stores gain economies of scale, lower per-unit costs,
and consistent deliveries without large minimum orders.
Quantitatively, small-format grocery stores operate on gross profit margins of 24–25%, meaning
roughly three-quarters of sales revenue goes toward the cost of goods. Average weekly sales per
square foot are $11.85, or about $23,700 in total weekly revenue for a 2,000 sq. ft. store. Maintaining
this margin requires stable wholesale pricing and predictable deliveries—both achievable through
cooperative participation.
2. Leveraging Food Hubs and Local Producers
Beyond broadline distributors, partnerships with regional food hubs strengthen the store’s local
identity, help secure affordable, fresh inventory, and position the model more favorably for local
grants that prioritize community impact and local sourcing. In Johnson County, the Field to Family
food hub aggregates produce, meat, dairy, and eggs from local farms, while the Camp Creek Food
Hub in nearby Kalona offers similar services. Food hubs function as mini-wholesalers for local goods,
allowing small stores to stock high-quality regional products without managing dozens of individual
farm contracts.
Integrating local products builds community trust and creates differentiation that large chains cannot
replicate. Successful rural stores use this dual approach—buying shelf-stable goods through co-ops
while sourcing fresh products locally—to create a “farmers’ market feel” within a modern grocery
setting. This model also shortens the supply chain, reducing transportation costs and keeping more
food dollars in the local economy.
3. Efficient Inventory and Vendor Coordination
Strong vendor relationships and disciplined inventory management are vital to maintaining cash flow.
On average, small rural groceries carry 24–25 days of inventory on hand, typically $80,000–85,000 in
stock for a 2,000 sq. ft. store. Stores should plan for five to six deliveries per week from different
vendors—broadline wholesalers, beverage distributors, bakeries, and produce hubs—and coordinate
delivery schedules to minimize labor disruptions.
Establishing formal vendor agreements with clear expectations for delivery frequency, minimum
order quantities, and payment terms will help control costs. Stores should also maintain
communication logs to monitor product quality, back orders, and promotional pricing opportunities.
Allocating prime shelf or endcap space strategically can attract vendor discounts or marketing funds
that improve profit margins.

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4. Operational Efficiency and Cost Control
Because rural groceries operate on tight margins, controlling operating costs is as important as
improving sourcing. Energy use—especially from refrigeration—represents a major expense.
Upgrading to ENERGY STAR–rated coolers and closed-door refrigerated cases can meaningfully reduce
utility costs. Compressors should be placed close together for efficiency, and USDA REAP grants can
offset upfront energy investments.
Smaller, low-staffed, or unmanned store formats are emerging as viable models in rural markets.
These setups, already piloted in Minnesota and North Dakota, dramatically lower labor costs while
maintaining accessibility. For Johnson County’s pilot, combining efficient operations with diversified
supply channels will be key to long-term success.
Key Takeaways:
●​ Cooperative purchasing reduces wholesale costs and increases delivery reliability.
●​ Food hubs and local producers provide affordable fresh inventory and community
differentiation. Can leverage local producers.
●​ Disciplined inventory control—targeting ~25 days of stock and 24–25% gross
margins—maintains cash flow stability.
●​ Energy-efficient equipment and flexible staffing models reduce operating costs and improve
sustainability.
Together, these measures form an integrated sourcing strategy that balances cost control with local
identity, thus allowing a rural grocery in Johnson County to remain competitive, community-driven,
and financially sustainable.

Grant Analysis​
Rural Impact Consulting conducted a comprehensive analysis of potential grant opportunities that
Johnson County could pursue to support funding for a pilot project (Appendix A). The assessment
evaluated each grant across five key criteria: eligibility, funding alignment, application effort,
reporting requirements, competitiveness, and strategic alignment with county priorities. Based on
this evaluation, the following grants achieved the highest overall scores, indicating the strongest fit
for Johnson County’s objectives and capacity.
Grants exclusive to IA: Iowa has several local grant opportunities that can be applied for and the
following are the analysis’s top-scoring grants.. These grants rank strongly in project alignment and
eligibility, but have more extensive application processes and reporting requirements.
●​ Community Catalyst Program (21/30): Funds the rehabilitation of vacant or underutilized
downtown buildings to support local economic revitalization. Rural Iowa communities are

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strong candidates because the program prioritizes small towns with clear downtown
redevelopment needs
●​ Downtown Loan Guarantee (21/30): Helps reduce lender risk by guaranteeing part of a loan
used for downtown commercial or mixed-use redevelopment. Iowa rural communities qualify
well because the program supports essential-service projects that reactivate main streets,
such as a rural grocery store.
●​ Rural Innovation Grant Program (22/30): Funds creative projects that strengthen rural
economies, support entrepreneurship, and improve quality of life in small communities. Iowa
rural communities are strong qualifiers because the program specifically targets innovative
solutions in towns under 20,000
National Grants: There are several regional and national grants that align with Johnson County’s Rural
Grocery Initiative. They are more competitive than local grants, but offer an opportunity to receive
more money as well. These are a couple of the highest scoring eligibility grants according to the grant
analysis.
●​ Business Builder Grant (22/30): Provides early-stage funding to help small food and farm
businesses grow through equipment purchases, technical assistance, and market expansion
support.
●​ HFFI FARE Fund (21/30): Provides grants to expand healthy food access in underserved
communities, focusing on sustainable grocery models and local food retail.

Case Study ​
Case studies are a valuable tool when comparing key demographic insights, financial models,
sourcing, supply, etc. The following two case studies demonstrate feasible “unmanned/low-staff”
projects that have been successful for multiple years. Using the information we have gathered
through this secondary research, we will focus our attention on effective practices and
implementation strategies that have been replicated in the past.
1. Farmhouse Market – New Prague, Minnesota (USA):
Opening in 2015, Farmhouse Market was one of the first unmanned grocery models in the U.S. It’s a
small organic/local foods grocery in a town of under 8,000 people. The store runs on a membership
model: about 275 members pay a fee (originally $99 initiation + $20 annual renewals) for 24/7 access
via a keycard swipe.
During unstaffed hours, members let themselves in and check out their groceries at a self-service
station, with purchases logged to their account. The owners monitor via cameras and can even see
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feedback. For example, if a member forgets to pay for an item, the system keeps their tab open, and
it can be resolved later. The store is only staffed nine hours a week (e.g., a few hours on set days) to
allow walk-in shopping for the general public and to handle tasks like receiving local products.
Farmhouse Market has leveraged the high trust in a tight-knit community – as one analyst noted, in a
small town, “people know each other,” and social bonds discourage theft. Indeed, the owners
reported essentially no issues with shoplifting. They even extend trust to suppliers: vendors are given
their own access cards to come in and restock their products on the shelves independently, further
reducing labor needs. Farmhouse Market’s success demonstrated that even rural seniors or less
tech-savvy residents could adapt to app-based shopping when the value (convenience and keeping a
local store open) was clear.
2. Main Street Market – Evansville, Minnesota (USA):
Inspired in part by Farmhouse Market, this store in a town of ~600 people opened in 2021 using an
unattended 24/7 model. Main Street Market’s approach combines technology with membership and
community support. Members pay $75 per year for an access app (or key fob) that unlocks the door
and tracks their visits. Once inside, they scan items with their phone and pay digitally, or use a
self-checkout kiosk if needed. The store is also open to the public a few days a week with a cashier,
allowing non-members to shop and see the store.
Similar to other rural unmanned stores, theft has not been a significant problem – the owners have
cameras in place and can remotely disable a member’s access if any dishonesty is detected. They note
that the one-time membership fee itself dissuades theft: “If you paid $75 to be here, you’re not going
to risk getting kicked out for stealing a few dollars of stuff”. A major hurdle for Main Street Market
was navigating state regulations. Minnesota’s rules initially required a staff person on-site during all
operating hours.
The owners worked with state officials for months to obtain a variance allowing the store to operate
unstaffed after hours. Under this arrangement, they hold a standard food retailer license but had to
implement specific safety measures as conditions of the variance (such as extra cameras, remote
temperature monitors, and detailed cleaning protocols). Main Street Market’s relatively low-tech,
low-budget implementation shows how a “hybrid” model (part member-only, part public access) can
balance accessibility and sustainability for a small-town grocery. The success in Evansville led the
founders to help launch a second unmanned store in another Minnesota town and to advise other
rural grocers exploring similar concepts.

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Key Takeaways:
●​ Flexible staffing that has brief staffed hours and vendor-managed stocking can significantly
reduce labor costs.
●​ Hybrid operational models (member-only + limited public hours) increase accessibility while
maintaining efficiency.
●​ Membership-based access paired with self-checkout technology enables 24/7 operations
with minimal staffing.
●​ Case studies highlight proven strategies in rural, low-staff grocery operations, emphasizing
replicable financial and operational models.
We plan to use other case studies found through the Rural Grocery Initiative (Kansas State) and our
final expert interview to ensure we are using accurate and feasible financial metrics, technology,
sourcing and supply models, ownership models, and tactics to foster community engagement.
It is important to emphasize that our recommendations will be customized to the unique
characteristics and needs of Johnson County. Rather than relying on any single case study, we will
draw on the most relevant and effective practices observed across multiple examples to develop a
tailored, community-aligned implementation strategy.

Technology Considerations: ​
Adopting an unmanned or minimal-staff model hinges on deploying the right technologies. The goal
is to replicate the critical functions of a staffed store (entry, checkout, security, and inventory control)
through automation in a cost-effective way. Key technologies and approaches include:
1. App-Based Entry and Customer Verification:
Customers would be able to register through a mobile app to access the store, using the app or a
linked key fob as a secure digital key. Registration includes identity and payment verification—similar
to Sweden’s BankID system—to ensure only authorized users enter during unstaffed hours. This
process deters theft and limits access to verified shoppers. In Johnson County, an affordable version
could use smart locks and cloud-based membership management, with RFID cards or key fobs
available for those without smartphones.
2. Self-Service Checkout Systems:
Instead of full cashier stations, unmanned stores use self-checkout through barcode or RFID scanning.
The most cost-effective option is a “Scan & Go” app, allowing customers to scan items and pay
directly on their phones using stored payment methods. This minimizes hardware costs. Stores can
also offer a simple self-checkout kiosk or tablet for those without the app or using cards/EBT. For
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3. RFID-Based Automation:
Some stores use radio-frequency identification (RFID) tags on all products to simplify checkout and
inventory tracking. In Finland, a village store uses RFID readers to instantly register all items in a
basket and verify that no unscanned products exit the store. This provides a “grab and go” experience
at a lower cost than camera-based systems, similar to Amazon Go. Though RFID requires tagging each
item and installing readers, the tags are inexpensive and offer accurate data for sales tracking and
automated restocking.
4. Computer Vision “Just Walk Out” Tech:
A more advanced, but costly option, uses artificial intelligence with cameras and shelf sensors to
detect products automatically, similar to Amazon Go stores. Ceiling cameras and weight sensors track
items taken and charge customers as they exit. The high hardware and setup costs make this difficult
for low-volume rural stores. As a result, small-town retailers typically favor simpler and more
affordable barcode or RFID systems.
5. Security and Loss Prevention Tech:
Due to no present staff, strong security is essential. Unmanned stores use surveillance cameras as
both a deterrent and a way to review incidents. For example, Sweden’s Näraffär uses six cameras in a
45-square-foot space, and Main Street Market monitors aisles and entryways. Some operators also
use remote staff or AI to watch live feeds. Access systems help prevent theft by linking every visitor to
an identifiable account. Many stores report minimal theft, crediting community trust and
accountability due to membership-based access. Safeguards, like inventory tracking, RFID portals, and
clear signage about monitoring, further discourage dishonesty.
6. Remote Monitoring and Management:
Unmanned stores rely on Internet of Things (IoT) devices and remote management to handle key
operations. Refrigeration sensors send alerts if temperatures exceed safe limits, protecting food
without daily checks. Real-time inventory software tracks stock and can automate reorders based on
sales data. A centralized dashboard allows remote managers to monitor sales, control access, and
assist customers as needed. While periodic visits are still required for restocking and cleaning, one
employee can manage multiple stores. In Sweden’s Lifvs model, a single worker oversees four to five
locations, greatly reducing labor costs compared to traditional stores.

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Cost Considerations:
Technology costs vary widely. Initial setups, such as using an app, self-checkout, and cameras, are
affordable and rely on off-the-shelf tools like tablets and smart locks. Fully automated, “just walk out”
systems, however, require heavy investment. Most small stores use the self-checkout model due low
cost, like how Main Street Market avoided $30,000–$40,000 in self-checkout hardware by using a
tablet POS system. Similarly, Finland’s RFID approach was chosen over costly camera systems. Overall,
rural unmanned stores prioritize affordable, practical tech, such as leveraging smartphones, low-cost
tags, and cloud tools rather than expensive automation.
Used Equipment:
Buying used or a mix of new and used equipment can greatly lower startup costs, though new
equipment offers warranties and service plans. Leasing requires less upfront cash but doesn’t build
equity, while owning assets, such as real estate, strengthens your balance sheet. Recent tax laws also
make purchasing equipment more appealing. For short-term needs, leasing can be cost-effective
since payments stop when the item is returned.
Energy efficiency is another key factor: modern refrigeration can reduce long-term utility costs,
making upfront investment worthwhile. Refrigeration setup is expensive; it’s best to design it
efficiently from the start and compare lifetime ownership costs, like energy use, to leasing. Consulting
an accountant and equipment expert helps ensure smart financial and operational choices.
Key Takeaways:
●​ Affordable Automation: Unmanned stores replace key staff functions—entry, checkout,
security, and inventory—with cost-effective technologies like smart locks, self-checkout apps,
and cameras.
●​ Efficient Checkout: Most small stores favor “Scan & Go” or RFID systems for simple, low-cost
self-service rather than expensive AI or camera-based options.
●​ Strong Security: Cameras, access control, and membership verification deter theft and build
trust, often resulting in minimal loss.
●​ Remote Operations: IoT sensors and centralized dashboards let owners monitor refrigeration,
inventory, and sales remotely, reducing labor needs.
●​ Smart Cost Management: Using a mix of new and used equipment, prioritizing energy
efficiency, and comparing lifetime costs to leasing helps minimize expenses and maximize
long-term value.
Together, these technologies create an efficient, secure, and affordable automation model that keeps
operations lean while maintaining customer trust. This approach allows a rural grocery in Johnson
County to stay modern and cost-effective to best serve the community

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Final Recommendations
Objective 1: Data on rural attitudes toward local grocery solutions ​
Rural attitudes toward supporting local grocery stores highlight strong community pride and a shared
commitment to sustaining local economies. As noted by Tom Mulholland, owner of Mulholland
Grocery in Malvern, IA, unique local products not only meet everyday needs but also attract visitors
from nearby towns, which creates both economic opportunity and a sense of hometown pride.
However, a hesitation among residents remains regarding product pricing. While people may initially
view higher costs as a drawback, many recognize that these prices reflect the convenience of nearby
access and the reinvestment of profits into their own community. By emphasizing transparency and
framing higher prices as an investment in local well-being, grocers can strengthen long-term trust and
loyalty.
Recommendation #1: Adopt a community-centered strategy to build trust and long-term loyalty
●​ Local identity drives customer loyalty: When local grocery stores highlight what makes them
unique, such as selling locally sourced goods or hometown brands, they reinforce community
pride. These distinctive offerings help smaller towns stand out, encourage residents to shop
locally, and draw in visitors seeking authentic, small-town experiences.
●​ Price transparency builds trust: Although pricing concerns remain a barrier, clear
communication helps reframe perceptions. Explaining that slightly higher prices support local
jobs, keep profits in the community, and maintain convenient access can help to dispel
caution. This approach helps customers feel that every purchase contributes to the town’s
long-term sustainability.
●​ Communication is key: Connecting to different ages needs a mix of outreach strategies.
○​ Older residents tend to use Facebook more often, appreciating its familiar layout and
local group features that keep them connected to community updates. In fact, 72% of
adults aged 50 and older use Facebook. Given that 19% of Lone Tree’s residents are
between 60 and 69, Facebook represents a highly effective marketing channel for
reaching a key portion of the community (AARP, 2025).
○​ Not all older residents are active on social media, traditional outreach through radio,
flyers, newspaper ads, and billboards remains vital. These methods ensure important
messages reach those who use established communication channels.
●​ Word of mouth and community ties matter: In rural areas, all three expert interviews
stressed how personal recommendations and local relationships carry significant weight.
Encouraging satisfied customers to share positive experiences or post online reviews can help
spread awareness organically, reinforcing the sense of shared investment and belonging.

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Objective 2: Develop research on community-owned grocery models​
The second project objective focused on researching community-owned grocery models and
examining where they have been most effective and how communities have achieved buy-in.
Recommendation #1: Use a cooperative model in an adaptive, collaborative form to deliver affordable
groceries to underserved rural communities.
A grocery cooperative’s business model is typically financed through small membership shares
purchased by community members, employees, or both. Success is measured by the ability to
provide essential goods and services that would otherwise be unavailable, at prices that remain
accessible to local residents (Illinois Institute for Rural Affairs, 2014). However, cooperative models
are organizationally demanding and rely heavily on community engagement.
●​ Cooperatives require intensive communication in preparatory stages. The USDA’s How to
Start a Cooperative outlines several critical steps that must be completed before operations
begin, including:
○​ Conducting a feasibility analysis, engaging stakeholders, preparing legal documents,
and electing a board of directors to oversee operations and guidance
●​ Small rural towns have unique shopping patterns, so establishing a cooperative tailored to
unique needs requires dedication, creativity, and strong community leadership. A traditional
co-op model is most viable when there is significant, sustained community buy-in (Frederick
et. al, 2014).
That said, the cooperative model can be adapted in innovative ways. While most cooperative-owned
grocery stores are consumer-operated, independent grocers can also form business cooperatives to
pool resources and reduce costs. As expert interviewee Jeannie Wells noted, about 4% of profits are
typically spent on administrative tasks such as marketing and management (Appendix 1). Across the
country, emerging cooperatives are experimenting with shared administrative systems to relieve
these expenses, blending independence with collective efficiency.

Objective 3: Comparative Case Studies​
Comparative case studies play a critical role in shaping an evidence-based pilot model. By examining
how similar rural communities have structured, funded, and operated their grocery stores, Johnson
County can avoid common pitfalls and adopt strategies with a demonstrated track record of success.
Leveraging case study resources from the Rural Grocery Initiative, alongside the Minnesota and
Northern European examples identified throughout our research, allows the County to engage in
meaningful pattern-seeking—identifying the operational, financial, and community engagement
strategies that consistently drive sustainability in low-population markets.

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Recommendation #1 - Leverage Minnesota’s Farmhouse Market model as a primary operational
reference for the Johnson County pilot.
We recommend using Farmhouse Market (New Prague, MN) as the baseline prototype for a low-staff
grocery solution. This model demonstrates that 24/7 keycard or app-based access, coupled with
self-checkout systems, can maintain convenience while meaningfully reducing labor costs. Johnson
County should adapt this approach by:
●​ Designing a small-format store (600–1,200 sq ft) optimized for speed, essentials, and local
products.
●​ Using controlled access and monitored self-checkout to sustain extended hours without
additional staff.
Recommendation #2 - Integrate operational components from a second Minnesota hybrid model to
enhance feasibility.
Minnesota’s hybrid staffed/unmanned stores provide a practical midpoint between full-service and
fully autonomous operations. To replicate their success, we recommend:
●​ Establishing limited staffed hours for stocking, customer assistance, and vendor coordination.
●​ Offering extended unstaffed hours to increase sales and convenience, and lower operating
expenses.
●​ Exploring a community volunteer, academic partnership, or co-op component to distribute
labor needs while strengthening community ownership.
Recommendation #3 - Consolidate cross-case insights to guide the pilot store’s operational design.
Collectively, these models highlight several actionable design principles that should inform Johnson
County’s next steps:
●​ Prioritize a small, high-efficiency footprint that matches the sales volume of communities
under 2,000 residents.
●​ Build the financial model around predictable community-supported revenue (memberships,
co-op contributions, or municipal partnerships).
●​ Launch the pilot as a flexible hybrid model with the ability to scale toward fully unmanned
operations as community trust, demand, and digital capacity increase.
While these case studies offer strong evidence that unmanned and hybrid formats can succeed in
small rural communities, the preferred model for Johnson County must ultimately align with the
results of the county’s resident survey.

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If survey findings indicate that residents prefer a different structure, such as a more traditional staffed
model, a co-op, or a municipally supported store, then the county should use that community
preference as the guiding direction. Our recommendations are preliminary and designed to inform
decision-making, not predetermine it.
The case studies provide replicable tactics and operational advantages, but the final model must
reflect:
●​
●​
●​
●​

Local willingness to adopt technology
Resident comfort with unstaffed hours
Perceived safety and trust
Preferences for convenience, price, and product assortment

Aligning the pilot with community preferences will increase adoption, reduce risk, and improve
long-term viability.

Objective 4: Pilot Program Recommendations​
Recommendation #1 - Pursue an unmanned/low-staffed operating model.
An unmanned or minimally staffed grocery format provides Johnson County with a cost-efficient,
scalable solution suited to small rural populations. Research and case studies show that these models
significantly reduce labor costs—rural groceries’ largest operating expense—while maintaining strong
community trust and access. Successful pilots in Minnesota, Finland, and Sweden demonstrate that
technology-enabled access, self-checkout, and remote monitoring can sustain reliable food access in
towns that cannot support a traditional grocery store. This model aligns with Johnson County’s
financial realities, community preferences, and the need for a right-sized, low-overhead store.
●​ Implement a 24/7 hybrid-access system using app-based entry, RFID/key fobs, and
self-checkout to minimize labor needs while ensuring inclusivity for less tech-comfortable
residents.
●​ Schedule limited staffed hours weekly to handle deliveries, stocking, public access, SNAP
transactions, or in-person customer questions.
●​ Adopt proven practices from case studies (Farmhouse Market, Main Street Market):
membership-based entry, strong security, and vendor-direct replenishment to reduce
overhead.
●​ Use small-footprint, modular layouts to keep utility costs low and maintain the $500–$1,000
per square foot performance benchmark for sustainability (Appendix 2).
●​ Introduce convenience items and essential non-food products to capture consistent demand
and reduce reliance on low-margin categories.

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Recommendation #2 - Diversify supply chain & food sourcing through multiple suppliers leveraging
food hubs, purchasing networks, and direct from manufacturer lines.
A diversified sourcing strategy which combines wholesale cooperatives, food hubs, regional
producers, and specialty distributors—ensures price stability, reliable delivery, and product variety for
the pilot store. Rural stores operate on thin margins (~24–25% gross after COGS), and dependence on
a single distributor increases vulnerability to stockouts, high minimum orders, and elevated per-unit
costs. By blending wholesale partners (such as AWG), regional food hubs (Field to Family, Camp
Creek), and local producers, Johnson County can maintain affordable pricing while differentiating the
store with local, fresh offerings that residents value. This approach mirrors successful models used in
rural Iowa, North Dakota, and Minnesota.
●​ Join or form a wholesale cooperative/buying network (e.g., AWG) to access big-box
chain-level pricing, merchandising support, and predictable deliveries.
●​ Partner with food hubs such as Field to Family and Camp Creek to incorporate local produce,
dairy, meat, and prepared foods that strengthen community identity.
●​ Maintain multiple vendor relationships (5–6 trucks/week is typical) to balance cost,
freshness, and product mix. Diversifying suppliers can create a more affordable cost of goods.
●​ Target 24–25 days of inventory on hand and maintain 24–25% gross margin levels to stabilize
cash flow (Western Illinois University, 2014)
●​ Diversify product offerings by adding convenience items, ready-made meals from local
vendors, and seasonal goods to increase basket size and reduce reliance on any single
supplier.
Recommendation #3 - Develop consistent funding and early start-up financing & revenue streams
through exploring grant opportunities, diversifying revenue streams, and applying an ownership
model that fits town demographics and attitudes.
Launching a sustainable rural grocery pilot requires upfront funding, predictable early-stage revenue,
and an ownership model aligned with community attitudes. Grants, loan guarantees, and microloans
can offset initial capital costs, while revenue diversification (convenience items, local vendor
partnerships, membership fees) can stabilize operations during the ramp-up period. Communities
with shared ownership—such as co-ops or hybrid public–private partnerships—often experience
stronger engagement, improved fundraising success, and long-term viability. Leveraging available
state programs while building early revenue streams positions Johnson County to meet the necessary
financial thresholds needed for small-store sustainability and success.
●​ Pursue grant opportunities such as the Community Catalyst Program, Downtown Loan
Guarantee, and Iowan Microloan to reduce start-up costs and mitigate financial risk.
●​ Explore ownership structures that fit each community—municipal partnership, co-op,
nonprofit, private, or hybrid—to increase buy-in and improve eligibility for public funding.

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●​ Build diversified revenue streams, including membership fees (proven in Minnesota case
studies), convenience goods, local vendor products, and community-supported add-ons (e.g.,
meal kits, self-serve coffee corners).
●​ Target key financial metrics: labor under 23% of sales, overhead near 3.5%, and $500–$1,000
annual revenue per square foot (Jenny Long).
●​ Use partnerships with local producers, community orgs, or service providers to create
additional revenue or rent-sharing opportunities (e.g., pop-up vendors, small ready-meal
providers, community events).

Risks and Considerations​
There are several potential risks associated with our recommendations for a low-staffed or unmanned
grocery pilot in Lone Tree and Swisher. These fall into five main categories: data limitations,
technological and logistical challenges, regulatory requirements, liability considerations, and
community engagement.
Data Limitations: The community-wide survey intended to capture Lone Tree residents’ preferences
and attitudes toward grocery solutions has not yet been conducted. As a result, our
recommendations are informed by comparative data from similar rural towns rather than directly
from Lone Tree residents. While this provides a strong directional basis, it may not fully reflect the
community’s specific preferences or readiness to adopt an unmanned model.
Technological and Logistical risks: Technology poses a notable challenge in rural settings. Many small
towns experience poor or inconsistent internet connectivity, which could affect essential systems
such as self-checkout, digital payments, and inventory management. Lone Tree’s pilot store would
require reliable broadband infrastructure and backup options to ensure continuous operation.
Logistical challenges may also arise in sourcing and transporting perishable goods. Limited
refrigerated vehicle availability and longer delivery routes can increase costs and reduce freshness.
Establishing multiple supplier relationships and local sourcing partnerships may help mitigate these
risks.
Regulatory and Licensing Risks: Iowa’s food retail regulations may present hurdles for unmanned or
low-staffed operations. For example, state code typically requires a “person in charge” on-site when a
store is open to the public. Similar pilots, such as Farmhouse Market in Minnesota, resolved this by
securing a variance after demonstrating remote monitoring and safety procedures. Johnson County
should consult local and state regulators early and be prepared to request waivers or clarifications as
needed. An Unattended Food Establishment license is required for stores using automated systems to
sell packaged goods and produce. The license fee ranges from $75 to $150 annually depending on
gross sales. Age-restricted sales (e.g., alcohol, tobacco) also introduce compliance challenges since ID

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verification cannot occur in person. Some unmanned operators avoid these items altogether, while
others use app-based ID verification or smart vending lockers. Additionally, if the store accepts
SNAP/EBT, its POS system must be specifically certified, not all self-checkout platforms meet this
requirement.
Liability and Security Risks: Operating without on-site staff increases exposure to theft, vandalism,
and liability claims. The store must invest in robust insurance coverage, remote monitoring systems,
and alarm response protocols to ensure safety and security. Reliable surveillance and emergency
procedures are critical to maintaining community trust.
Community Engagement Risk: Successful implementation depends on community acceptance. Some
residents may hesitate to use an unmanned store due to unfamiliar technology or safety concerns.
Early outreach, education, and opportunities for local ownership or membership (through a
cooperative or hybrid model) can strengthen buy-in and reduce this risk.
Overall, while these risks are significant, most are manageable through proactive planning, including
early regulatory engagement, infrastructure investment, and community outreach. Addressing these
areas early will improve the likelihood of a smooth pilot launch and long-term sustainability.

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Implementation Plan
Complete Rural Food Systems Assessment
●​ Complete and analyze the Rural Food Systems Assessment to understand resident
preferences, spending habits, and comfort with technology.
●​ Hold a community information session to present results and gather feedback.
●​ Identify 2 or 3 buildings (600-1200 sq ft.) and assess them for internet access and renovation
needs.
Choose optimal method
●​ Choose the preferred store model (hybrid, unmanned, co-op, nonprofit, or county-owned)
based on community attitudes, regulatory feasibility, and technology readiness.
●​ Meet with the Iowa Department of Inspections, Appeals, and Licensing to clarify
requirements for an Unattended Retail License and POS systems (SNAP friendly if applicable).
Begin Pilot Operations
●​ Create a detailed budget covering renovation, equipment, technology, inventory, labor, and
licensing.
●​ Begin conversations with local, wholesale, and regional suppliers (AWG, Field to Family, Camp
Creek, regional distributors).
○​ Request information on pricing, delivery schedules, and minimum orders.
●​ Apply for relevant grants (Community Catalyst, Iowa Microloan, Business Builder Grant) and
pursue local funding partnerships.
●​ Identify potential sites suitable for a grocery store. Considering factors include accessibility of
the location (public transportation and parking), zoning requirements, and match eligibility
requirements for potential grants

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Bibliography
AARP Research. (2025, January). 2025 Tech Trends and Adults 50-Plus. AARP.
https://doi.org/10.26419/res.00891.001
Adler, E. (2016, March 19). New Prague organic foods store has a self-serve twist. Star Tribune.
https://www.startribune.com/new-prague-organic-foods-store-has-a-self-serve-twist/372637521
Hirsch, J. (2016, May 12). The future of shopping just opened in this tiny Midwestern town. GOOD.
https://www.good.is/articles/farmhouse-market
Hodur, N. (2025, February). An innovative food cooperative venture provides a roadmap for success
for rural grocers in North Dakota. North Dakota Compass.
https://ndcompass.org/insights/article-of-the-month/an-innovative-food-cooperative-venture-provid
es-a-roadmap-for-success-for-rural-grocers-in-north-dakota/
Illinois Institute for Rural Affairs at Western Illinois University (2014). Rural Grocery Store Guide
Supplement December 2014 the Cooperative Model.
https://www.ruralgrocery.org/learn/rural-grocery-toolkit/step2-resources/The-Cooperative-Model-ofGrocery-Store-Ownership.pdf
International Cooperative Alliance (2025). Cooperative Values, Identities, and Principles.
https://ica.coop/en/whats-co-op/co-operative-identity-values-principles
Nguyen, C. (2016, May 23). The future of shopping is this unmanned grocery store in a tiny Minnesota
town. Business Insider.
https://www.businessinsider.com/farmhouse-markets-uunmanned-grocery-store-in-minnesota-20165
Rasmusson, Kendra (2016). "Farmhouse Market: A Small Market that’s Big on Technology," Center for
Engagement and Community Development. https://newprairiepress.org/cecd/ruralgrocery/2016/26 ,
https://newprairiepress.org/cgi/viewcontent.cgi?article=1136&context=cecd&utm_source=chatgpt.c
om
Rasmusson, K. (2017, January). A new kind of grocery store, designed for the needs of rural
Minnesota. The McKnight Foundation.
https://www.mcknight.org/news-ideas/a-new-kind-of-grocery-store-designed-for-the-needs-of-ruralminnesota/
Rural Grocery Initiative. (2022). Main Street Market: Unattended, 24/7 rural grocery store case study.
Kansas State University. https://www.ruralgrocery.org/

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S160 Pappajohn Business Building
Iowa City, Iowa 52242

Rural Grocery Initiative. (n.d.). Strategies for small rural grocers to access affordable food supplies.
Rural Grocery Initiative. (n.d.). The cooperative model of grocery store ownership. Kansas State
University.
https://www.ruralgrocery.org/learn/rural-grocery-toolkit/step2-resources/The-Cooperative-Model-of
-Grocery-Store-Ownership.pdf
Rural Grocery Initiative Case Studies – Gowrie, IA; Evansville, MN. (n.d.). Case studies.
https://www.ruralgrocery.org/
Shoptalk 365. (2022). How Farmhouse Market operates as a low-staff hybrid co-op grocery.
https://www.shoptalk365.com/
Simple Business. (2020). Inside Farmhouse Market, the U.S.’s first membership-based unstaffed
grocery store. https://www.simplebusiness.co/
Star Tribune. (2021, April 11). Tiny Minnesota town opens 24-hour, self-service grocery store.
https://www.startribune.com/
Statista. (2023). Global cashierless store technology market and adoption data.
https://www.statista.com/
USDA. (2012). Co-ops 101: An Introduction to Co-ops. Cooperative Information Report 55.
https://www.rd.usda.gov/files/cir55.pdf

Appendices
Attach supplemental materials, such as interview transcripts, full survey results, or detailed data that
supports your report but is too lengthy for the main sections.

Appendix A - Grant Analysis
Grant Analysis
Grant Airtable from Expert Interview Jenny Doty

Appendix B - Interview with Jeannie Wells​
[email protected]
Full Transcript
Rural Impact consulting met with Jeanie over Zoom on October 20th at 9:00 am. Jeanie’s experience
from both consulting firms serve our project very well. We hoped she would offer insight into

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community buy-in, common successes or failures that new grocery stores encounter, and any
experience she might have working with food hubs or non-profits. Here’s the initial list of questions:
1.​ How can rural grocery stores gain strong community buy-in?
2.​ From your experience, what factors most impact the success of a rural grocery store model?
a.​ How do you determine which ownership or operational structure best fits a particular
town?
b.​ Which indicators—such as population size, community attitudes, or town
characteristics—have the greatest influence on store success?
3.​ What strategies help rural grocery stores remain sustainable and successful long-term?
a.​ What common barriers to success do rural grocery stores face?
4.​ What are the biggest mistakes you’ve seen grocery store startups make?
5.​ Have you seen examples of grocery stores partnering with food hubs or food access initiatives
(such as Field to Family)?
Our interview with Jeanie Wells provided critical guidance for shaping sustainable grocery models in
Johnson County. Wells emphasized that success in rural communities depends less on competing with
large retailers and more on differentiation and community integration. Local stores should focus on
communicating their value by keeping dollars in the community, providing local jobs, and serving as a
community hub rather than attempting to match chain store pricing.
As previously mentioned, Wells also outlined key financial and operational benchmarks that will
inform our feasibility analysis. Rural grocery stores typically operate on a one percent profit margin
and must reach approximately one million dollars in annual sales to achieve sustainability. She
highlighted the potential for shared administrative services and partnerships with nonprofits to
reduce overhead costs and access grant funding. These strategies could be replicated in Johnson
County to improve the long-term viability of future grocery initiatives.
In addition, Wells identified that smaller, right-sized stores with multiple community uses, such as a
coffee corner or simple deli, can strengthen customer engagement without overextending resources.
She emphasized the fact, however, how it’s important not to invest in products that will cut into
profits margins and create waste. Soup, for example, is cheap and easy to store, which makes it a
perfect product to sell. Her experience with emerging food hub collaborations in states like Vermont
and Montana suggests that integrating local producers and distribution networks can enhance both
economic sustainability and local food access.
Overall, this interview will directly inform our recommendations by grounding the project in realistic
financial expectations, emphasizing community engagement as a success factor, and identifying
partnership models that can support Johnson County’s rural grocery pilot program.

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Appendix C - Interview with Jenny Doty​
[email protected]
Summary of Interview:
Rural Impact Consulting met with Jenny via Zoom on Monday, October 20th, at 2:30 pm. Using
Jenny’s knowledge from the RGI projects and data was very impactful for our research. The RGI is a
program from Kansas State University that has analyzed 5 pilot projects in rural communities around
the US. RGI has large amounts of data and connections that could be impactful for our pilot
recommendations, and a vast understanding of rural grocery insights and potential
requirements/recommendations. Here’s our initial list of questions:
1.​ Opinions on ways that these grocery stores can stay sustainable and successful for the long
term?
a.​ What recurring patterns have you seen?
b.​ Distribution
c.​ Community engagement
d.​ Barriers to success?
2.​ How do you navigate the process for applying for and receiving grants?
3.​ How did you figure out best-selling products/inventory needs?
a.​ How you navigate change within these products
i.​ Willingness to pay
4.​ Out of the events you assist in planning, what aspects of these events are most successful?
a.​ How and when should we implement them?
5.​ Grants through non-profits - importance and viability?
6.​ Central admin work for multiple grocery stores?
a.​ Importance and viability
7.​ What other connections could you provide/contacts to continue the conversation?

Insights:
Our interview with Jenny Doty provided valuable guidance and clarity regarding our project’s scope
and deliverables. Jenny offered several strategies for fostering community buy-in by identifying and
addressing the community’s core needs and challenges. She emphasized the importance of
demographic insights, such as Lone Tree’s significant population of residents aged 60–69, as a means
to strengthen community engagement and build social momentum for project implementation.
Jenny also introduced us to nine unique rural grocery store models that have demonstrated success in
similar contexts. She underscored the importance of tailoring the business model to each community

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rather than imposing a one-size-fits-all approach. These models included, but were not limited to,
cooperative ownership, adaptive reuse of existing buildings, nonprofit management, municipal
ownership, and school-run grocery operations. Jenny highlighted the potential advantages of each
model and provided access to additional resources for further exploration. We plan to follow up with
her in the future to gain deeper insights into these approaches.
In addition, Jenny identified several key databases that could support our research, including a grant
database that allows filtering by “Iowa” or “National.” We intend to use this tool to conduct a more
comprehensive grant analysis for Johnson County, helping us identify public funding opportunities
available to support the project.
Jenny also offered to connect us with two additional experts: Tom Mulholland, owner of Mulholland
Grocers in Malvern, Iowa, and Teresa, who manages food hubs across the state. Tom recently
redeveloped a rural grocery store in a community with demographics similar to Lone Tree, and we
hope to gather recent financial data from him to inform our financial projections for Johnson County.
Overall, this interview was highly informative and instrumental in shaping our project direction. The
insights, resources, and connections provided by Jenny will significantly enhance the quality and
impact of our pilot recommendation for Johnson County. We plan to follow up soon to secure the
expert connections discussed during our conversation.

Contact #3: Tom Mulholland Contact: [email protected]
Appendix D - SWOT Analysis
Full Environmental Analysis

SWOT Analysis
Strengths
●​ Strong institutional backing and
credibility.
●​ High community engagement.
●​ Robust local food system.

Opportunities
●​ Increase in state, federal, and
philanthropic grants.
●​ Strategic supply chain support.
●​ Innovative grocery models.

Weaknesses
●​ Limited Population Base.
●​ Early planning stages.
●​ Logistics and supply chain challenges.

Threats
●​
●​
●​
●​

Thin margins limit flexibility.
Competition from big box retailers.
Limited growth potential.
Disproportionate infrastructure

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vulnerabilities.

Appendix E - Competitive Analysis
Full Competitive Analysis
Johnson County PDS

Table to Table

Misfit Market

OVERVIEW

Johnson County Planning,
Sustainability, and
Development is in the
early stages of developing
a mobile grocery store
initiative designed to
improve access to fresh
produce in rural and
underserved areas of
Johnson County. The
project aims to address
local food deserts by
delivering affordable,
locally sourced groceries
directly to residents.

Table to Table is a
nonprofit food recovery
and distribution
organization based in
Johnson County, Iowa.
Each day, Table to Table
collects surplus food
from participating
donors and delivers it
directly to local
agencies such as food
pantries, shelters, meal
sites, youth programs,
and housing
organizations.

Misfits Market is an
online grocery delivery Dollar General is an
service focused on
American discount retail
reducing food waste and chain that offers a wide
improving access to
variety of everyday
affordable, high-quality household products at low
groceries. The company prices. Many of its rural
sources its products
locations also provide a
from “misfit” or surplus limited selection of
produce, which are
grocery items, positioning
items that are perfectly the store as a convenient
edible but often rejected one-stop shop for basic
by traditional retailers
needs.
for cosmetic reasons.

COMPETITIVE
ADVANTAGE
What value
do you offer
customers?

- Locally sourced,
farm-to-community
model.
- Designed specifically for
rural food deserts.
- Supported by county
data and sustainability
partnerships.
- Affordable pricing to
increase healthy food
access.

- Deep local impact
within Johnson County.
- Same-day delivery
preserves food
freshness and quality.
- Large network of local
donors and recipient
partners.
- Free food distribution
strengthens community
relationships.

- Dominant presence in
rural and underserved
markets.
- Low operating costs
allow consistently low
prices.
- Reliable product
availability through
efficient distribution.
- Strong brand recognition
for convenience and
affordability.

- Reduces food waste
through sustainable
sourcing.
- Nationwide delivery
with affordable,
high-quality products.
- Appeals to
eco-conscious and
younger consumers.

Dollar General

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- Community
organizations that
provide food to
residents in need
(including youth
programs, food
pantries, and shelters)
- Community members
who receive food
through these
organizations.

Rural Impact Consulting
S160 Pappajohn Business Building
Iowa City, Iowa 52242

TARGET
MARKET

- Targets rural
communities within
Johnson County that lack
access to fresh produce
and other grocery
essentials
- Local farmers and food
producers, who would
benefit from expanded
distribution channels
through the initiative.

MARKETING
STRATEGIES

Planned outreach will
- Active social media
likely involve:
- Maintains a modest
presence, particularly on - Convenient and
- Community engagement social media presence, TikTok and Instagram.
affordable alternative to
and local events to raise
particularly on
- Paid digital advertising traditional grocery and
awareness about the
Facebook, where it
campaigns highlighting retail stores
initiative.
shares impact stories
sustainability and
- Primary shopping
- Information campaigns
and newsletter updates. affordability.
destination in small
through the Johnson
- Leverages
- Experiential and
communities.
County website and other word-of-mouth referrals community-based
- Seasonal product
local media.
among distribution
marketing, such as
assortments and frequent
- Collaborative efforts with organizations and local pop-up events
promotions reinforce its
local organizations and
donors to expand
promoting local
reputation for value and
producers to build trust
participation.
engagement and food
accessibility.
and visibility.
waste awareness.

PRODUCTS &
SERVICES

- Fresh produce, meats,
- Collecting surplus
dairy, and beverages
produce and goods
(both alcoholic and
- Fresh fruits and
from farms, restaurants,
non-alcoholic).
vegetables sourced from
processors,
- Name-brand products
local farms.
warehouses, grocery
such as Organic Valley,
- Dairy products, eggs, and
stores, and local
Tony’s, Califia Farms,
meats.
gardeners.
Annie’s, and LaCroix.
- Pantry staples such as
- Food is rescued and
- In-house “Odds and
grains, beans, and baking
redistributed on the
Ends” branded products
essentials.
same day it is collected,
made from food rescued
- Basic household
minimizing storage time
from potential landfill
necessities.
and preserving quality.
waste.

PRICING &
COSTS

- County plans to sell
produce at or near
- As a nonprofit, Table
wholesale prices to ensure
to Table operates
affordability.
entirely through
Project has not yet
donations, community
secured grant funding, but
partnerships, and
ongoing research and
government grants.
development will help
identify potential funding

- Environmentally
conscious consumers
who value sustainability
and want to help reduce
food waste.
- Rural and small-town
residents who lack
access to fresh,
affordable produce.

- Budget-conscious
individuals and families,
particularly those living in
rural or underserved
areas.

- Housewares (dishes,
storage containers,
cookware)
- Cleaning and paper
supplies
- Health and beauty
products
- Seasonal décor and gifts
- Limited grocery and
frozen food options
- Arts and crafts materials

- Misfits Market operates
on a flexible subscription
model.
- Customers are billed
Multi-price strategy, with
weekly based on order
most products priced
size, with a minimum
between $1 and $7.
purchase requirement
that varies by location.
- Lone Tree, Iowa, the

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sources and partnerships
to support long-term
sustainability.

minimum order is $45
per week for a family of
four.
- In-house delivery
system where possible
- Contracts with
third-party logistics
providers in regions
outside its direct service
network.

Extensive regional
distribution network,
- Managing both inbound
logistics from suppliers
and outbound shipments
directly to stores.

- Innovative,
sustainability-driven
business model.
- Reduces food waste by
repurposing imperfect
goods.
- Appeals to
eco-conscious and
budget-focused
consumers.

- Strong brand recognition
- Stable and budget
friendly prices.
- Wide variation of product
availability.

- Limited Population Base.
- Early planning stages.
- Logistics and supply chain
challenges.

- Relies heavily on logistics
and shipping costs.
- Limited funding and
- Limited personal
reliance on
connection to local
donations/grants.
communities.
- Operates primarily within - Quality inconsistencies
Johnson County —
due to surplus-based
restricted scale.
sourcing.
- Dependent on volunteer - Requires internet access
labor for consistency.
and credit card use —
barrier for some rural
customers.

- Limited fresh food options in
many stores.
- Employee turnover and low
wages affect service quality.
- Stores sometimes perceived
as cluttered or poorly
maintained.
- Not tailored to
community-based or local
sourcing.

- Increase in state, federal,
and philanthropic grants.
- Strategic supply chain
support.
- Innovative grocery models.

- Expand partnerships with
local grocers, farms, and
restaurants.
- Expand into smaller, rural
- Increase grant funding
delivery zones.
through sustainability and - Partner with local farms or
food equity initiatives.
co-ops to localize
- Implement tracking
operations.
technology to measure and - Develop lower-cost or
showcase impact.
SNAP-eligible subscription
- Partner with mobile
tiers.
grocery or nonprofit
models to expand reach.

- Expand fresh produce and
healthier food options.
- Partner with local suppliers
to improve image and quality.
- Leverage technology for
inventory and customer
insights.

DISTRIBUTION
CHANNELS

- Potential mobile grocery
van that collects produce
from Iowa City area farms
and grocery stores and
distributes it to
neighboring rural towns.

STRENGTHS

- Established reputation
and trusted community
relationships.
- Strong institutional
- Strong local donor
backing and credibility.
network and volunteer
- High community
base.
engagement.
- Robust local food system. - Proven logistics model
with same-day food
redistribution.

WEAKNESSES

OPPORTUNITIES

Rural Impact Consulting
S160 Pappajohn Business Building
Iowa City, Iowa 52242

- Delivers directly to
over 50 partner
organizations.
- Partners with more
than 250 food donors
across the region.

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THREATS

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- Thin margins limit flexibility.
- Competition from big box
retailers.
- Limited growth potential.
- Disproportionate
infrastructure vulnerabilities.

- Food donation variability
affecting supply
consistency.
- Economic downturns
reducing donor
contributions.
- Rising fuel or vehicle
maintenance costs.
- Volunteer shortages
limiting operations.

Rural Impact Consulting
S160 Pappajohn Business Building
Iowa City, Iowa 52242
- Rising fuel and delivery
costs.
- Competition from other
grocery delivery services
(Imperfect Foods, Amazon
Fresh).
- Consumer preference for
in-person grocery
experiences.

- Competition from Walmart,
Family Dollar, and online
retailers.
- Rising transportation and
labor costs.
- Rural economic decline
limiting consumer spending.
- Negative public perception
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About the Incremental
Development Alliance

We envision neighborhoods regenerated by small developers who care
deeply about the places where they live and build. The Alliance helps local
entrepreneurs and civic leaders strengthen their neighborhoods through
small-scale real estate projects.
We are an Alliance of practitioners who train small developers, helping
citizens strengthen their own neighborhoods and helping city champions
get the kind of development their community wants. We are a 501(c)(3)
nonprofit, founded in 2015. We aim to inspire and enable thousands of small
(1-3 story) development projects, championed and developed by local people.
We focus on infill development, helping people stay, return, and contribute
to the place they love.

WHAT WE DO

HOW WE DO IT

We offer aspiring developers
training and mentorship to
help them take the first steps
toward their small-scale real
estate development projects.

•

We coach civic leaders how to
cultivate patient, healthy real
estate development at scale
accessible to locals, starting
with supportive regulation.

•

•
•

Design + deliver training
for groups at various stages
of the development process
Offer training to
governments, foundations,
and nonprofits to
troubleshoot challenges
Speak at conferences and
events
Implement in our own
communities

contact: [email protected]

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What is Incremental
Development?
Today, city-building is dominated by large developers with institutional investors
who build in big, expensive chunks like subdivisions and shopping centers. However,
the neighborhoods we love most tend to be ones that were built gradually over
generations. That is what we mean by incremental development: small projects
that work in chorus to improve a place over time.
By focusing on the smallest steps we can make in the right direction, we also
open the door for a broader range of people to participate in and benefit from
development. When many neighbors take on small projects, they spread the risk
and build momentum, making a place stronger and more adaptable.
Within many existing neighborhoods, there are plenty of opportunities to create
value that are simply too niche or dispersed to attract big developers. The best
people for the job are locals who know and love their own communities,
and who can cultivate a livelihood from small-scale projects.

FOR EXAMPLE...
•
•
•
•
•
•
•

A local potter creates a pop-up market to sell her wares and invites other
craftspeople to share the space.
A neighborhood church leases their parking lot during the week to a
BBQ truck and farm stand from the community garden.
A group of neighbors create a DIY dog park near the post office by
cleaning up an overgrown lot.
A local bakery creates a mobile coffee & croissant cart to serve at events
and test out new locations.
A young couple buys their first home and converts it to a duplex.
A few dentists build a new clinic on the block with three rental units
upstairs.
A barber rehabs an old mainstreet building and adds another story so he
can live above the shop.

contact: [email protected]

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C.3.d

Our Services
Educate | Coach | Create
WE TRAIN SMALL DEVELOPERS
Our Small Developer Workshops on small scale real estate development are
all about project formation. We take a big picture view of neighborhood-based
development to help attendees analyze what makes a good project, how a building
makes money, and how small developers interact with the broader ecosystem
of professionals in the built environment. By the end of the Workshop, aspiring
developers will feel more prepared to take the first steps on their own project and
city champions will see inside the black box of real estate transactions.
Our Small Developer Boot Camps build on the foundational training from the oneday Workshops. The Boot Camp is an opportunity for participants to pull out a map,
pencil, and calculator and take action on an actual project with the guidance of
seasoned small developers. In small groups, participants work through exercises
like digesting their zoningcode, drawing a basic site plan, creating a financial pro
forma model, and creating a pitchpackage for investors, all applied to their own
specific project.

WE START IMPORTANT CONVERSATIONS
We offer lectures, educational conference sessions, and seminars on incremental
development in theory and practice. All lectures are paid speaking appearances
by faculty, founding members, or recommended voices within the Alliance. Topics
focus on the speaker’s subject expertise but may include:
•
•

•
•

What does incremental development look like in practice? Story-heavy
presentations on incremental development projects. Motivational in effect.
Why is incremental development important and what are the barriers to its
success? Persuasive presentations geared toward a general audience or local
decision-makers involved in the development process.
How do you become a small developer? A high-level overview aimed at the
beginner. This is a teaser length intro to our training workshops.
How do you become a city that supports small developers? A high-level
overview aimed at public officials. This is a teaser length intro to our coaching
work.

contact: [email protected]

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Agri-Culture Iowa | 2026–2027 Program Roadmap
(DRAFT)

C.3.e

Theme: Seasonal Stories. Shared Map. Collective Experiences.

2026 GOAL 1: Seasonal Storytelling Video Series
Purpose
Elevate each member farm’s unique story while building a shared regional identity for Johnson County agritourism.

Deliverables
●
●

60-second branded video for each participating farm
(for social media, websites, and listings)
One 2-minute collective feature video highlighting all paying members
(primary promotional asset for Agri-Culture Iowa)

Creative Partner
●

Sam Hall (or equivalent filmmaker)

Seasonal Rollout Strategy
Each farm is filmed during its peak season, capturing authenticity, activity, and visual abundance.
Spring
●
●

Lucky Star Farm (Goat Yoga)
Stacie’s Greenhouse & Flower Shop

Summer
●
●
●

Calyx Creek Lavender & Lodging
Land Alliance Folk School & Retreat
Walker Homestead Farm & Winery

Fall
●
●
●

Cedar Ridge Distillery
Colony Acres
Wilson’s Orchard & Farm

Outcomes
●
●

High-quality, evergreen video assets for each farm
A shared promotional film clearly communicating
“Many places. One destination.”

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2026 GOAL 2: Illustrated Regional Map (Digital + Print)

C.3.e

Purpose
Make Agri-Culture Iowa visible, tangible, and memorable through a shared visual identity.

Deliverables
●
●
●

Custom illustrated map depicting each member location
Website-embedded interactive image
Printed postcard/rack card for distribution

Creative Partner
●

Anna Praegitzer, Praegitzer Designs (or equivalent design artist)

Design Features
●
●
●

Hand-drawn or illustrated style (warm, whimsical, destination-driven)
Icons or mini-illustrations unique to each location
(lavender fields, orchards, goats, pumpkins, berries, distillery, vineyard, etc.)
Clear geographic flow encouraging exploration and multi-stop visits

Distribution
●
●
●
●

At member locations
Visitor centers and partner hotels
Events, festivals, and pop-ups
Included with wine, tickets, or lodging confirmations

Outcomes
●
●

A unifying visual identity for the cooperative
A take-home asset that encourages cross-visitation

2026 GOAL 3: “Movable Feast” Sundays (One Event)
Purpose
Convert awareness into shared, ticketed experiences across farms.

Format (Both Events)
●
●
●
●

Sunday experience featuring three locations
Guided or self-paced movement
Branded passport or stamp card
Coordinated ticketing and transportation guidance

Event 1: Family-Centered Movable Feast
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Tone: Playful, educational, accessible
Timing: Early August

C.3.e

Experience Elements
●
●
●
●

Hands-on farm activities
Light food tastings or picnic-style offerings
Animal encounters, gardens, and demonstrations
Short travel distances

Target Audience
●
●
●

Families
Multi-generational groups
Day-trip visitors

Event 2: Adult-Focused Movable Feast
Tone: Elevated, relaxed, experiential
Timing: July
Experience Elements
●
●
●
●

Wine, cider, spirits, or curated tastings
Chef-driven bites or small plates
Storytelling moments at each stop
Optional live music or sunset finale

Target Audience
●
●
●

Couples
Friend groups
Culinary and agritourism travelers

2026 Success Metrics
●
●
●
●
●

Video views and social engagement
Map distribution and website traffic
Tickets sold per Movable Feast
Cross-visitation between farms
New or renewed paying members

2027 GOAL 4: Collaborative Agri-Culture Iowa Recipe Book
Purpose
Create a lasting, tangible storytelling asset that celebrates Johnson County farms through food, people, and place.

Project Overview
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Agri-Culture Iowa will develop a collaborative recipe book featuring recipes, photography, and short narrativesC.3.e
from
participating farms and venues. The book will reflect seasonality, local ingredients, and the lived experiences of
Johnson County producers.
This project builds directly on 2026 investments in photography, video storytelling, and shared branding.

Deliverables
●
●
●

Professionally designed print recipe book
Digital version (PDF or web-based)
For each participating location:
○ 3–5 recipes highlighting farm products or signature experiences
○ Short written story (origin, family history, land stewardship, or seasonal tradition)
○ Professional photography (farm, food, people, landscape)

Content Themes
●
●
●
●

Seasonality and the agricultural calendar
Farm-to-table and value-added products
Family traditions and rural entrepreneurship
Land stewardship, education, and community connection

Distribution Strategy
●
●
●

●

Sold at participating farm locations
Offered through county visitor channels
Used as a promotional gift for:
○ Tourism partners
○ Sponsors
○ Donors and grant funders
Digital version shared via websites and email campaigns

Public Benefit & County Impact
●
●
●
●

A lasting cultural artifact documenting Johnson County agriculture
Ongoing promotional value beyond a single season
Support for local farms through sales and visibility
Strengthened food tourism and regional identity

Evaluation Metrics
●
●
●
●
●

Number of books printed and distributed
Sales volume and distribution points
Digital downloads or page views
Number of participating farms
Use in tourism and partner promotions

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C.3.e
2027 GOAL 5: Collaborative ANF Iowa Football Game Day Promotion

Purpose
Capture high-traffic fall attention and connect agriculture, local food, and Iowa pride through a shared game-day
presence.

Partner
●

America Needs Farmers Iowa (ANF Iowa)

Core Concept
Leverage Iowa Football Game Days as recurring promotional moments where Agri-Culture Iowa members are
collectively visible—before, during, and after games.
Guiding Message:
“Eat local. Visit local. Cheer local.”

Program Elements
1. Game Day Digital Collaboration (Evergreen + Seasonal)
●
●
●

Short-form, game-day themed video clips using existing footage
Shared ANF + Agri-Culture Iowa branding
Coordinated posting calendar across:
○ Instagram
○ Facebook
○ TikTok
○ Email newsletters
○ ANF Iowa channels

Uses existing evergreen assets; minimal lift once templates are established.
2. Featured “Game Day Farms” Rotation
●
●

●

Highlight select Agri-Culture Iowa locations each home game or weekend
Tie promotions to seasonal offerings:
○ Apple cider
○ Pumpkins
○ Tailgate snacks
○ Wine, spirits, flowers, fall experiences
Sample CTAs:
○ “Heading home from the game? Make it a farm stop.”
○ “While you’re in town, check out…”

3. Physical Presence (Optional / Pilot)
●
●

Co-branded rack cards or postcards (using illustrated map)
Inclusion in:
○ ANF tailgate zones
○ Partner bars and restaurants
○ Visitor information points
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4. Post–Game Day Destinations

C.3.e

Positioning member locations as:
●
●
●

Sunday recovery stops
Family-friendly next-day outings
Adult-focused tasting and dining experiences

Supports:
●
●
●
●
●

Orchards
Distilleries
Wineries
Farm dinners
Lodging-based members

Timing
Fall 2027 (Football Season)
Aligned with:
●
●
●
●

Orchard season
Harvest events
Lavender wind-down
Winery and distillery traffic

Outcomes & Value
●
●
●
●

High-visibility exposure during Iowa’s most attended weekends
Reinforces agriculture as culture + experience
Strengthens partnership with ANF Iowa
Drives cross-traffic to rural destinations

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C.4.a

Executive Summary
Meeting Date: May 27, 2026
Agenda Language:

Consider amendment to the Iowa Department of Natural
Resources grant agreement.

Prepared by/Contact:

Genevieve Anglin, Grants Manager

☐

This agenda item contemplates action which would have financial implications and has
been discuss with the Finance Director as required and includes a fiscal note from the
Finance Director.

☐

This agenda item contemplates a contract and has been reviewed by the County
Attorney’s Office as required.

☒

This agenda item DOES NOT contemplate a contract or action which would have a
financial implication.

Background:
Johnson County previously entered into a grant agreement with the Iowa Department of
Natural Resources for tree planting at the Administration and Health and Human Services
Buildings, and the Guidelink Center.
The proposed amendment does not change the total grant award amount or the scope of
the project. The amendment moves funds from the indirect cost line to the salaries line to
better align the grant budget with anticipated project expenses.
Fiscal Note:
There is no change to the total grant award amount as a result of this amendment.
Recommendation:
Recommend the Board Chair sign the amendment to the Iowa Department of Natural
Resources grant agreement.

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C.4.b

IOWA DEPARTMENT OF NATURAL RESOURCES
Amendment Number 1 to
CONTRACT NUMBER ITPG 20-027
Between
IOWA DEPARTMENT OF NATURAL RESOURCES
And
JOHNSON COUNTY

Project Title: increasing Opportunities in Iowa to Protect, Enhance, and Expand Community Forests
Subaward Budget Period and Project Period of Performance: January 1, 2026, through December 1, 2027
Federal Awarding Agency: U.S. Forest Service
Federal Award Number: 23-DG-11094200-394
Not to Exceed Amount of Reimbursement to Subrecipient: $18,374
IN WITNESS THEREOF, the parties hereto have executed this Contract Amendment on the day and year last specified
below.

DEPARTMENT OF NATURAL RESOURCES
By:

Date:
Jeff Goerndt, State Forester

JOHNSON COUNTY
By:

Contractor Signatory

Date:

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C.4.b

This Contract Amendment is entered between the Iowa Department of Natural Resources (DNR) and Johnson County
(Contractor). The parties agree as follows:
Section 1 STATEMENT OF PURPOSE
1.1 Purpose. The purpose of the Subrecipient Agreement Amendment is to amend Section 8 of the original
Agreement by removing indirects from the spending budget and by moving the $829.76 from that line and adding
that amount to the Personnel Planting, Care & Maintenance line for a total of $6,361.50. Indirects were not
requested.
Section 2 DURATION OF CONTRACT AMENDMENT
2.1 Term of Contract Amendment. The term of this Agreement Amendment is May 18, 2026, through December 1,
2027, unless terminated earlier in accordance with the Termination section of the Original Agreement. However,
this Agreement Amendment must not begin until it has been signed by both parties.
Section 3 BUDGET AND REIMBURSEMENTS
Table A in Section 8.1 of the Original Agreement is replaced with the following:
TABLE A
Tree Purchasing
Supplies
Personnel Planting, Care & Maintenance
Indirect
Total (should equal Approved Amount)

$ 9,666.12
$ 2,346.38
$ 6,361.50
$0
$ 18,374.00

The amount of $829.76 will be moved from the Indirect line in Table A and added to the Personnel Planting, Care &
Maintenance line eliminating the indirect line.
Section 4 EFFECT OF AMENDMENT ON ORIGINAL AGREEMENT PROVISIONS
All provisions of the Original Agreement shall remain in full force and effect unless specifically changed by this
Amendment.

2

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