YOUR STRUCTURE
• What type of organizational structure is best for you?
• How much formality do you want?
• Who will serve as your fiscal agent?
• Do you have legal protection for your byway members?
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE
Various types of organizational structures have evolved to meet the needs of many different byways. For example, the byway organization for the Ashley River Road (South Carolina) grew out of local efforts to preserve the region’s historic and scenic character. In 1995, the National Trust for Historic Preservation listed the Ashley River Historic District as one of the “Most Endangered Places.” A community workshop held in 1996 chartered the Ashley River Conservation Coalition (ARCC), a private nonprofit corporation, to design and coordinate a community-based comprehensive growth management plan for this threatened area. ARCC prepared the corridor management plan and nomination for the 2000 designation of the Ashley River Road as a National Scenic Byway. Visitors can tour Drayton Hall, the oldest preserved plantation house in America that is open to the public. YOUR STRUCTURE:
Types of Organizational Structures: Several Models Work for Byways
hat do scenic byways have in common with lemonade TYPES OF ORGANIZATIONAL STRUCTURES W stands and Egyptian pyramids? Each requires some level of organization. Of course, most eight-year-olds can Keep the get a roadside beverage enterprise up and running in a matter TIP! Law on of hours while the pyramids took lifetimes to create. Still, Your Side the key is finding the structure that serves you without getting in your way. The same can be said of assembling a byway organization. As you evaluate your organization’s structure Fortunately, you don’t need to study lemonade stands or and recruit volunteers, it is pyramids to successfully create a byway organization. In fact, very important to inform there are several basic organizational models that can be volunteers of any legal risk personalized to fit most byway situations. Each model has its own characteristics, strengths and limitations. or liability they assume in associating with your Choosing the Right Organization for You organization and the actions There are many valid forms of organization for byways. In fact, they should take to avoid there may be more than one structure that will meet your liability. (See Appendix B.) needs. The key is to pick the one that best serves your interests and best reflects the group that you have gathered.
This guide introduces basic organizational structures. You may find that your byway is best served by more than one of these basic models. When it comes to byway organizations, there are very few “purebreds.” Most groups are “hybrids;” they have selected a mix of organizational pieces that fit their specific needs.
In addition, many groups find that their organizations evolve and change over time. As the needs of the byway change, an organization recreates itself to meet new and different corridor needs. Select a structure that meets your current needs and understand that it is a “work in progress.” Every so often, it’s a good idea to evaluate your organizational structure to make sure it is working for you.
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 65 YOUR STRUCTURE:
Common Structures Organizational Models TYPES OF ORGANIZATIONAL STRUCTURES
A. Citizen Group D. Government Agency as Lead The simplest model is the citizen’s group, Another fairly simple format is when a a collection of community members or single government entity agrees to be concerned citizens who gather together the lead agency for the group, allowing to accomplish a goal. the group to utilize its legal status and B. Nonprofit Organization administrative structure. An individual organization, usually a E. Joint Powers Entity nonprofit corporation, is also made An organization made up of governments up of private citizens, though the act that can include public entities such as of becoming a legal organization municipalities, the USDA Forest Service and carries specific requirements, benefits the State Department of Transportation. and obligations. F.Customized Structure C. Cooperative Agreement An organizational hybrid created to meet This is an agreement between organizations unique byway needs. interested in working together in a relatively formal manner.
66 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 46 YOUR STRUCTURE:
How Much Formality? If non-governmental entities (citizens and private organizations) are the primary members of the group, then Far and away decide how formal an organizational structure needs to be. “ If you are just starting to pursue byway designation, you may not the best prize need a very formal organization and may do fine with some well-organized and committed individuals. If you have secured life offers is the TYPES OF ORGANIZATIONAL STRUCTURES designation and are now looking to implement a corridor management plan that will impact a variety of communities, chance to work the effort it takes to create a formal organization is probably well worth the effort. Remember, an organizational structure hard at work should meet the needs and goals of the individual byway group. Strength does not always flow from structure if the structure is worth doing. not right for the organization. ” Theodore Roosevelt Eventually, your group may consider the more formal structure of incorporation. A legal designation, incorporation carries certain benefits, but the creation and maintenance of a corporation requires efforts that may take time away from your primary focus. Again, there are no absolutes. If you are not planning to have paid employees, grants, contracts or cash donations, you may be able to set up a citizen group without pursuing formal incorporation. You can have another agency (private nonprofit or some kind of public entity) serve as your fiscal agent and act as your financial administrator. You still make the decisions, but the fiscal agent carries out receiving, tracking, and disbursing of funds on your behalf. This service may cost money. For those groups who lack financial background or a legal structure to handle financial matters, a fiscal agent may be a good option.
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 67 YOUR STRUCTURE:
Are Government Agencies Involved? Organizational A single governmental agency may take leadership responsibility TIP! Growing for the byway. This can often be a very simple arrangement, Pains especially when a large portion of the corridor runs through federal or state land.
If it seems that most or all of the players at the table are
TYPES OF ORGANIZATIONAL STRUCTURES Organizations move through representatives of government entities, then it may be life cycles, just as people do. worth forming a joint powers entity. This is a formal way for Author Judith Sharken Simon government agencies to work cooperatively through the formation has identified “5 Life Stages of of a joint, yet separate entity. This new organization—the Nonprofit Organizations”: joint powers entity—allows participating members to transfer Stage One: Imagine and Inspire authority to the joint powers entity for specific roles or services. Doing so can reduce duplication of services and increase continuity. (“Can the dream be realized?”) If not all of the primary players are government entities and/or Stage Two: Found and Frame you don’t need or want to transfer authority, then a cooperative (“How are we agreement (also called a memorandum of understanding or interagency agreement) may be the answer. Cooperative going to pull agreements can involve public (government) and/or private this off?”) entities. A cooperative agreement outlines how two or more Stage Three: Ground and Grow entities will relate in a particular setting. (“How can we build this to be viable?”) Stage Four: Produce and Sustain (“How can the momentum be sustained?”) Stage Five: Review and Renew (“What do we need to redesign?”) It may be helpful to recognize your byway’s stage of development.
68 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
COPY AND DISTRIBUTE Key Organizational Questions Keep these questions in mind as you select among organizational structures.
• WHAT is your byway’s purpose? What organizational structures will best meet your needs? TYPES OF ORGANIZATIONAL STRUCTURES
• WHO is interested in, or impacted by, what happens to the byway corridor? How will the diversity of interests be represented?
• WHERE is the corridor located? State, federal, or private lands?
• WHO will provide human and financial support? Citizen volunteers? Government employees? Local businesses?
SIDE A Center Resource Byways America’s by Created
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 69 YOUR STRUCTURE:
COPY AND DISTRIBUTE
Key Organizational Questions (continued)
• WHAT are your funding sources? Federal? State? Local? Private? Corporate? Individual? TYPES OF ORGANIZATIONAL STRUCTURES
• HOW will finances be handled? Fiscal agent? Incorporation?
• WHAT needs are not being met by your current organizational structure?
SIDE B Center Resource Byways America’s by Created
70 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
Which One’s for You? A Closer Look This section of the manual, “Your Structure,” focuses on these organizational structures. You’ll learn about the basic characteristics of each structure, its advantages and disadvantages, and read case studies from America’s Byways: WHICH ONE’S FOR YOU?
Citizen Group ...... 72-83 CASE STUDIES Native American Scenic Byway (South Dakota) ...... 77-79 The Lincoln Highway (Illinois) ...... 80-83
Nonprofit Organization ...... 84-102 CASE STUDIES Seaway Trail National Scenic Byway (New York) ...... 94-98 Turquoise Trail National Scenic Byway (New Mexico) ...... 99-102
Cooperative Agreement ...... 103-110 CASE STUDY Top of the Rockies Scenic and Historic Byway (Colorado) ...... 107-110
Government Agency as Lead ...... 111-126 CASE STUDIES Flaming Gorge-Uintas Scenic Byway (Utah) ...... 116-118 Pacific Coast Scenic Byway (Oregon) ...... 119-122 Loess Hills Scenic Byway (Iowa) ...... 123-126
Joint Powers Entity ...... 127-133 CASE STUDY Edge of the Wilderness National Scenic Byway (Minnesota) ...... 130-133
Customized Structure ...... 134-151 CASE STUDIES Creole Nature Trail National Scenic Byway District (Louisiana) ...... 136-139 Multi-State Byway Organizations ...... 140-146 Utah Highways 191 and 163 (Utah) ...... 147-148 Ohio Byway Links (Ohio) ...... 149-151
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 71 YOUR STRUCTURE:
Start Simple: Citizen Groups Focus on Results
CITIZEN GROUP ooking for a way to get a group up and running quickly? L Do you want to focus on results? Do bylaws, organizational charts and officer elections deflate your enthusiasm? Some groups operate very effectively without those things as a citizen group or citizen committee. How do they do it?
Even large organizations can usually trace their roots to a small loosely organized group with a shared concern, hope or goal. Increased structure, formality and complexity come with growth.
Many organizations have such humble beginnings because starting simple allows a group to focus on its goals and build on its successes. By delaying the development of a more formal structure, there are fewer distractions to drain the group’s precious resources of time and energy.
Along Colorado’s San Juan Skyway, projects are accomplished with “just a handshake.” A community group, called Friends of the San Juan Skyway, receives valuable assistance and leadership from the Office of Community Services at Fort Lewis College.The organization is a powerful testament to what a determined group of citizens can accomplish.Working with a variety of partners, the group developed a comprehensive historic preservation plan that has led to the implementation of a multi-million dollar project to preserve 13 highly visible endangered historic sites and protect thousands of acres of historic landscapes along this All-American Road.
72 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
At a Glance: Citizen Groups The following chart will help you understand the benefits and limitations of citizen groups.
Citizen Group Basic Characteristics Limitations Benefits CITIZEN GROUP • Often the first phase • Not required to • Simple to create. in group formation. have bylaws, which can create a lack • Can be a group made • Group members of structure and up of a wide variety set direction and clarity in decision of individuals and activities. making/authority. organizations.
• May have bylaws, • Members are • Has the ability to elected officers and personally liable move quickly to get an organizational for organizational things done. structure, but lacks actions. legal protection.
Citizen Group with Outside Fiscal Agent
• Fiscal agent takes • Cannot hire staff • Can utilize another responsibility that except through a organization’s expertise funds are received fiscal agent or and status in financial and accounted another agency. matters. for/spent properly.
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 4673 YOUR STRUCTURE:
Simplicity Allows Sharper Focus Legal Structure Citizen groups, as this generic name suggests, are fairly simple TIP! in design. The key component is a committed team of citizens Creates sufficiently organized to carry out some function. Legal Protection Citizen groups can be started much easier and more quickly than forming a legal organizational structure. They require no CITIZEN GROUP Over time, many citizen groups bylaws, operate with less formality and require less paperwork. do adopt team rules, develop This structure often works well as a group initially forms. It bylaws, elect officers and create allows a group to focus on its goal, build momentum and attract organizational procedures. interest in its activity. It may become a jumping-off point for However, without taking steps developing a more formal organization down the road; however, some groups work effectively within this structure to form a legal structure, you for many years. may not have legal protection. Watch Out for Organizational Speed Bumps A loose structure can create a few bumps on the road to success. Citizen groups can be susceptible to inconsistency in how they function. Without written guidelines, the group’s operations may reflect individual styles more than agreed-upon norms. The group may lack clarity regarding decision making, conflict resolution and scope of activities, slowing the progress and conveying disorganization to the broader community. New members may find it difficult to join, since the group’s procedures and structure are not clearly articulated.
When there is a lack of formal records, changes in the group composition can leave the group without needed information and expertise. This is especially important if history and decisions have not been documented or a neutral place for storing records has not been identified. Without the separate legal identity that comes with incorporation, the group can’t hire staff or handle a significant amount of funds except through an agency that has legal status. This also means that group members can be held personally liable for the group’s activities. For additional information on liability see Appendix B.
74 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
Partnering with a Fiscal Agent Many citizen groups minimize these limitations by obtaining The Fiscal financial and administrative assistance from an outside fiscal agent (or fiscal sponsor). A fiscal agent is an organization that Agent’s Tasks agrees to accept and be responsible for monies on your behalf. Depending on the contract, Byways often contract with a fiscal agent that acts as the the fiscal agent may: financial department for the group. The fiscal agent receives CITIZEN GROUP funds, dispenses payments and tracks how the money is spent. • Perform administrative services
It is common for byway groups to ask a local government • Receive funds and jurisdiction, such as a city or county, to assist them in this dispense payments capacity. These local governments will usually agree as they have an active or vested interest in the success of the byway. • Track how the money is spent The fiscal agent assumes responsibility and liability for financial • Prepare financial reports matters, including the responsibility of ensuring that funds are used appropriately. Trust is essential. Importantly, the group • Accept grant funds should maintain a good relationship with the fiscal agent, since the group’s business is generally a minor part of the fiscal agent’s activity. Most fiscal agents charge a fee for this service, although a few may be persuaded to donate their services.
A fiscal agent is required only if money in the form of grants, fees, dues, wages or cash donations pass through the organization. If there are no paid staff members and financial activity is limited to in-kind donations, a fiscal agent may not be needed. For example, receiving donated printing services from one entity and meeting space from another can avoid the need for a fiscal agent. Still, as a loosely structured byway group grows, some other form of tighter organizational structure will likely be needed.
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 4675 YOUR STRUCTURE:
While fiscal agents perform critical and necessary functions, it is wise to be aware of possible problems:
• You will not have direct control over the funds, but will need to deal with one or more intermediaries at the fiscal agency to arrange disbursement;
• There could be delays in accessing funds; and CITIZEN GROUP • Changes in personnel at the fiscal agency could result in delays or miscommunication.
Importantly, maintain a positive relationship and clear communication with your fiscal agent. In searching for a fiscal agent, you may want to consider organizations that have demonstrated an interest in programs or projects similar to yours. It will be easier to find a fiscal agent if your project enhances or furthers that organization’s purposes and/or if that organization benefits in some way from being associated with your byway.
The Village of Ruidoso acts as fiscal agent for Billy the Kid National Scenic Byway (New Mexico). Many citizen groups depend on local units of government, a regional planning agency, or an outside non-profit organization to assist them with their financial needs.
76 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
CASE STUDY: Native American
Native American Scenic Byway (South Dakota): Committed to Okiciapiye – Helping Each Other he Native American Scenic Byway is a Starting to Work Together
T 101-mile route running through the In November 2000, a meeting was held to CITIZEN GROUP Crow Creek and Lower Brule Sioux Indian discuss organizational structure. The initial Reservations in South Dakota. In many group included tribal members, the Bureau ways, the byway organization parallels the of Indian Affairs, local businesses, local surrounding landscape—uncomplicated, development organizations, chambers of open and unbuilt. commerce, the convention and visitors The road stays close to the Missouri River, bureau, town boards, the historical society, a with glimpses of prolific birdlife, prairie dogs museum, the Dakota Indian Foundation, the and reintroduced buffalo. An ancient story State Department of Transportation, State unfolds through cultural, historical and Tourism, the Army Corps of Engineers, and archaeological sites located along the byway. the South Dakota Department of Game, Lewis and Clark were among the early Fish and Parks. visitors. With non-stop prairie vistas, it is Byway organizers realized some key partners easy to imagine the rich indigenous and were missing. The group decided to expand historic legacy of this land. An important the network to include county commissioners, goal of the byway is to provide learning RC&D’s (Resource Conservation and opportunities about native peoples and Development), the Great Lakes Association, respect for the environment. the National Park Service, the National Grassland (USDA), and area schools. The organizers also agreed to make efforts to extend the hand of cooperation to regional contacts in economic and community development.
The Native American Scenic Byway practices the traditional principle of okiciapiye—meaning helping each other. The byway organization makes ongoing efforts to extend the hand of cooperation to a wide range of partners. Members are asked to make a non-cash commitment such as erecting and caring for a wayside exhibit or working on a marketing project.
Case Study continued on next page
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 4677 YOUR STRUCTURE:
CASE STUDY: Native American
Working Together Works! Byway representatives brainstormed a list of the benefits of working together:
• To share information with each other and • To collaborate on environmental issues combine resources as a force for preservation of resources
CITIZEN GROUP along the byway • To jointly and consistently interpret the themes of the byway • To combine efforts in marketing the byway
• To provide resources for educating • To track visitation along the byway the public and to raise awareness of Indian culture and the history of central • To plan for the Lewis and Clark South Dakota Bicentennial, expected to bring many additional visitors to the area • To become an instrument of reconciliation between the tribes and non-Indians, • To conduct joint long-range development resulting in improved cohesiveness planning
• To work at providing infrastructure • To foster the involvement of all affecting the byway (e.g. cellular phone communities along the byway deadspots) • To develop and maintain byway standards (e.g. signage, colors) and other criteria for excellence
Culturally sensitive tourism generates an understanding of the unique history and culture surrounding the Native American Scenic Byway. The Smith Ranch Buffalo Interpretive Center will give visitors a personal in-depth experience with buffalo and the role they played in the lives of the Plains Indians.
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78 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
CASE STUDY: Native American
Defining the Group Success so Far What type of group? Participants decided After evaluating several structural options, that their organization would follow some of members decided to operate for the time-being these basic principles: as an informal citizen’s group, with the Bureau of Indian Affairs serving as the
(1) financial considerations and fiscal agent. There would be no dues CITIZEN GROUP ability of certain types of groups structure, but membership enrollment to handle money; would come with a non-cash commitment (2) respect for tribal sovereignty; such as erecting and caring for a wayside exhibit, or joint marketing. The group valued (3) maintaining the traditional principle the open communication and informal of okiciapiye—meaning helping cooperative arrangements that were part each other; of their informal (and effective) structure— and it’s working just fine for this byway (4) multi-jurisdictional concerns related organization. to law enforcement, emergency medical situations, and hunting Note: Without losing the informality of their and fishing; and organization, the group has recently incorporated as a 501(c)(3) nonprofit, in order to become (5) flexibility to operate both on a eligible for certain grant programs. site-specific basis as well as on matters related to the byway at large.
Lakota, Dakota and Nakota tribes have been hosting visitors to their lands for centuries. Today, the tribes welcome travelers at the “Circle of Tipis” information center at Oacoma, South Dakota. Visitors can observe dancers and drum groups, taste traditional Sioux foods, watch tribal artisans at work, and learn about Indian Country. (Photo: Daphne Richards-Cook)
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 4679 YOUR STRUCTURE:
CASE STUDY: Lincoln Highway The Lincoln Highway (Illinois): Formalizing A Citizens’ Organization
eople come from near and far to study its The byway organization can trace its roots CITIZEN GROUP Phistoric pavement. Conceived in 1913, to people whose focus was the highway the Lincoln Highway was the first paved itself, including the pavement and the transcontinental highway built in the original road alignment. In fact, advocates United States. It connects the east and have been studying the route for decades. west coasts, extending 3,389 miles across Along the way, individuals with other thirteen states, with Illinois in the middle. interests—tourism, history, preservation Known as “Main Street of America,” the and economic development—were attracted 179-mile highway segment in Illinois to initiatives involving the road. When connects 32 Illinois communities in eight 20 to 30 people with diverse interests counties. The road also literally serves as started showing up at the informal monthly one of the “main streets” for many of the meetings, the group’s focus began to expand communities it passes through, including beyond the pavement. Members began to five Illinois Main Street communities and look at the structures and treasures on several other downtowns. and around the highway, as well as the communities it runs through.
Just outside Malta, Illinois, you’ll find the first paved “seedling mile” on the Lincoln Highway. The one-mile segment of pavement was laid in 1914 to demonstrate the superiority of concrete roads. To get to the paved segment, motorists had to travel on rutted, often muddy, gravel roads before experiencing the smooth, newly paved highway. After smooth driving, motorists then had to bump along the gravel road to return home. Using this strategy, highway advocates were successful in securing public funding for a coast-to-coast highway, and also convinced industries and civic groups to invest private money into paving the highway. (Photo credit: Ruth Frantz)
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80 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
CASE STUDY: Lincoln Highway
Organizational Evolution In 1999, the group formally established the The present group that would become the Illinois Lincoln Highway Coalition by Illinois Lincoln Highway Coalition began electing a Board of Representatives and coalescing in 1997, initially to pursue adopting bylaws and a strategic plan. designation as a state heritage tourism Individuals are elected to serve three-year demonstration project. Since then, the terms (staggered) on the 15-member board, CITIZEN GROUP group has evolved into a stable organization with the board chair appointed every year. with approximately 40 core members Although the bylaws don’t explicitly require representing tourism partners, historical a diverse board, the membership includes a societies, chambers of commerce, Main wide range of geographic and professional Street organizations, municipalities, state interests each year. The group also attempts agencies and citizens interested in the to maintain that balance as openings highway. The mailing list includes some occur. Representatives from the Lincoln 300 interested agencies, individuals, Highway Association, a national organization businesses and organizations. interested in the history of the road, and from the Illinois Department of As the group continued to grow, members Transportation districts, without whom felt a need to formalize their structure. this effort would not have succeeded, Ray Keller, Illinois Lincoln Highway serve as ex-officio members to the Board. Coalition chair and city planner explained, “As we got further along and had more Decision making is a process that involves projects in the works, we thought it would everyone who attends the meetings. There be best to formalize the organization.” is open discussion, consensus and usually general agreement. The board serves as a “We needed to have some kind of organiza- decision-making mechanism only when the tion that existed somewhere other than larger group in attendance fails to come to in our own minds. It became important to consensus on an issue. actually ‘be on the books’ and have an organization that would carry the ball for the future and the projects we had going on. It was an important step that allowed us to move from one person’s vision to a collective group vision.”
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CASE STUDY: Lincoln Highway
Designation Cooperation managing the byway designation. The plan The Illinois Lincoln Highway Coalition has also identifies strategies for ensuring the recently been incorporated as an independent long-term fiscal sustainability of the group’s business entity and has filed for nonprofit efforts, particularly focusing on needs and status. This allows the Coalition to accept resources to be secured after the fifth and final
CITIZEN GROUP funding directly from the State, rather than year of FHWA byway administration funds. through a third-party fiscal agent, and to As the organization matures and the number provide its board members an extra layer of and sophistication of its activities grow, liability protection. To complement the tools the business plan includes strategies for available through the corridor’s National transitioning the organization from being led Scenic Byway designation, the Coalition also by a “working” board, made up of volunteer secured designation of the corridor as an board members that also act as staff, to a Illinois Heritage Tourism Demonstration “governing” board, which will predominantly Project in December 2000. With access to the focus on policy development and building grants and technical assistance associated with relationships with other organizations. To both designations, the Coalition has been begin this process, the Coalition recently quick to take advantage of the resources contracted with the Northern Illinois Tourism available to establish a toll-free telephone Development Office, which has been providing hotline and an interactive Web site, and to informal though extensive support to the effort, publish a new corridor map. to provide dedicated part-time staff to serve as One of the Coalition’s major accomplishments the Coalition’s executive director, project in recent years was the completion of its coordinator, and sales manager. Over the business plan, developed with expert assistance next three to five years, the roles and over a 12-month period. Among the principle responsibilities of the board members and the elements included in the document, the staff will crystallize into an organizational business plan outlines strategies for product structure that they collectively believe will be development, marketing initiatives and manageable and sustainable over time.
“We needed to have some kind of organization that existed somewhere other than in our own minds. It became important to actually ‘be on the books’ and have an organization that would carry the ball for the future and the projects we had going on. It was an important step that allowed us to move from one person’s vision to a collective group vision.” Ray Keller, Illinois Lincoln Highway Coalition Chair and City Planner for DeKalb, Illinois
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82 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
CASE STUDY: Lincoln Highway
Personal Commitment to know some good people and I’ve learned There’s no doubt that Coalition members a lot from them.” The diverse backgrounds are committed to their byway. Like many of group members create a rich environment byway organizations, the Coalition is a mix for acquiring new knowledge, skills and of citizen volunteers and individuals that experience. represent their professional affiliations and People involved with the Illinois Lincoln CITIZEN GROUP organizations. While many people see the Highway Coalition are also motivated by byway as complementary to their formal job a tremendous sense of pride. They’ve positions, they often put in a lot of personal accomplished something that a lot of time on projects, going above and beyond people told them they couldn’t do. Said one their normal work responsibilities. member, “We were told we couldn’t succeed, It’s apparent that this byway organization we’d never make it. Now they’re standing enjoys working together. A byway member proof of an organization that proudly and expressed this sentiment, “I’ve really gotten consistently delivers results.”
The Illinois Lincoln Highway Coalition has developed a Business Plan to provide organizational direction, establish business goals and objectives, identify funding sources, and chart a long-term strategic and sustainable course of action.
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 4683 YOUR STRUCTURE:
The Benefits of Nonprofit Organization: Advantages for Byway Groups NONPROFIT ORGANIZATION
veryone has some familiarity with nonprofit organizations. ESuch organizations play an important role in meeting a community’s charitable, religious, educational and social service needs. Despite the prevalence of nonprofit organizations, many people are not familiar with what truly defines these groups.
In 1988, travelers in West Virginia could choose a different route—newly opened Interstate I-64. Businesses along the old route, the Midland Trail, found themselves in an economic downturn.“It was like the faucet had been turned off.”To promote travel and tourism in the region, people joined together to form the Midland Trail Scenic Highway Association, a nonprofit, tax-exempt 501(c)(3) organization.Today, the large 23-member Board of Directors oversees byway activities.The Midland Trail’s “Freedom Trek” rides are popular with bicyclists. In 2001, cyclists retraced the footsteps of Booker T. Washington in a 450-mile “Ride Across the Virginias.” Special guests joined the ride along the way—journalists, authors, historians, religious leaders, politicians and tourism specialists. (Photo: G.P.Cooper, Quikpage Publishing Company)
84 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
At a Glance: Nonprofit Organization The following chart will help you understand the benefits and limitations of nonprofit organizations.
Nonprofit Organization
Basic Characteristics Limitations Benefits NONPROFIT ORGANIZATION • Can be a corporation, • Restrictions apply • Can be tax-exempt – trust, association or to activities. receive gifts tax-exempt partnership, depending and buy goods tax- on state law. • Documentation is only exempt (as allowed by proof of existence. state law). • Most popular form is Poor documentation corporation. Others puts members • Can borrow funds (trust, association or at liability. without putting partnership) are rare. members at risk. • All activity must match • May or may not be charter and bylaws. • Many foundations will tax-exempt. only contribute to • Annual filings with state nonprofit organizations. • Funding sources include and federal government grants, contributions, may be required to • Can hire staff and enter contracts. maintain existence. into contracts. Corporation • Has identity separate from the people involved. Is treated as a person in most legal arenas.
• Can enter into contracts, incur debts, hire/fire employees.
• Members can not “profit” (financially) from membership.
• Organizations can make profits, which must be used for their defined purpose.
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 4685 YOUR STRUCTURE:
Interestingly, when people think of nonprofit organizations, they’re usually thinking of nonprofit corporations. Three Help for other types of nonprofits are rare among byway groups: TIP! Nonprofits partnerships, associations and trusts. When we discuss nonprofit organizations in this section, we mean nonprofit corporations. Nonprofit organizations differ from for-profit organizations in that their “profits” cannot be distributed The National Council of NONPROFIT ORGANIZATION to stakeholders such as the owners or investors. The “profits” Nonprofit Associations that a nonprofit earns, if it provides a service, must be (NCNA) is a network of reinvested in the organization. 37 state and regional associations of nonprofits The Advantages of Incorporating representing more than One of the biggest advantages of a nonprofit corporation is 17,000 nonprofits throughout that the act of incorporating creates a legal entity separate from the country. Find out who its founders and members. This can help shelter directors and provides information, training members from legal and financial liability, assuming procedures and leadership within your and policies are well documented and followed. Also, nonprofit state by contacting: corporations continue to exist beyond membership changes. This means that volunteers or even board members can National Council of resign and be replaced without dissolving the organization. Nonprofit Associations Incorporating also lends a degree of continuity and respectability that is attractive to funding sources and other community 1030 15th Street, NW organizations. Suite 870 Washington, DC 20005 The incorporating procedure varies from state to state, but it generally involves drafting a legal incorporation document Phone: (202) 962-0322 often known as the articles of incorporation. Then the group Fax: (202) 962-0321 files the document with the proper state office, usually the E-mail: [email protected] Secretary of State’s office. The particular information required to incorporate can be sought from the state office Web page: responsible for incorporation. The organization generally http://www.ncna.org must also hold an initial board of directors meeting and adopt initial bylaws. Once incorporated, the entity must follow the legal guidelines that apply, such as annual filing with the state organization and state and federal income tax returns.
The Benefits of Nonprofit Organization continued on page 89
86 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
COPY AND DISTRIBUTE Forming Your Nonprofit Organization: A Checklist for Byways
very nonprofit organization must have a carefully developed structure and operating NONPROFIT ORGANIZATION Eprocedures to effectively fulfill its purpose. Good governance starts with helping the organization begin on sound legal and financial footing in compliance with the numerous federal, state and local requirements related to nonprofits.
You can complete the incorporating procedure yourself. Many good resources are available to guide you through the process. You can also hire someone to do it. Although many nonprofits are formed without aid from an attorney, it’s a good idea to seek legal advice, if only to review your work.
❐ Determine the purpose of the organization. Every organization should have a written statement that expresses its reason for being.
❐ Form a board of directors.The initial board will help translate the ideas behind the organization into reality through planning and fundraising. As the organization matures, the nature and composition of its board will also change. ❐ File articles of incorporation if you wish to incorporate. State law governs the requirements for forming and operating a nonprofit corporation. ❐ Draft bylaws. Bylaws, the operating rules of the organization, should be drafted and approved by the board early in the organization’s development. ❐ Develop a strategic plan.The strategic planning process helps you express a vision of the organization’s potential. Outline the steps necessary to work toward that potential, and determine the staffing needed to implement the plan. Establish program and operational priorities for at least one year. ❐ Develop a budget and resource development plan. Financial oversight and resource development (e.g., fundraising, earned income and membership) are critical board responsibilities.The resources needed to carry out the strategic plan must be described in a budget and financial plan. ❐ Establish a record keeping system. Corporate documents, board meeting minutes, financial reports and other official records must be preserved for the life of the organization.Your organization needs to document compliance with federal, state and local laws. Records could be subject to audits.
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COPY AND DISTRIBUTE Forming Your Nonprofit Organization:
A Checklist for Byways (continued)
❐ Establish an accounting system. Responsible stewardship of the organization’s NONPROFIT ORGANIZATION finances requires the establishment of an accounting system that meets both current and anticipated needs. ❐ File for an Internal Revenue Service determination of federal tax-exempt status. Nonprofit corporations with charitable, educational, scientific, religious or cultural purposes have tax exempt status under section 501(c)(3), or sometimes section 501(c)(4), of the Internal Revenue Code.To apply for recognition of tax-exempt status, obtain form 1023 (application) and publication 557 (detailed instructions) from the local Internal Revenue Service office.The application is an important legal document, so it is advisable to seek the assistance of an experienced attorney when preparing it. ❐ File for state and local tax exemptions. In accordance with state, county and municipal law, apply for exemption from income, sales and property taxes. ❐ Meet the requirements of state, county and municipal charitable solicitation laws. Many states and local jurisdictions regulate organizations that solicit funds within that state, county or city. Usually compliance involves obtaining a permit or license and then filing an annual report and financial statement.
Other steps include: ❐ Obtaining an employer identification number from the IRS. (Some states also require a separate tax identification number.) ❐ Registering with the state unemployment insurance bureau.
❐ Applying for a nonprofit mailing permit from the US Postal Service. ❐ Obtaining directors’ and officers’ liability insurance.
This information is adapted from the National Center for Nonprofit Boards (now known as Board Source), an organization dedicated to increasing the effectiveness of nonprofit organizations by strengthening their boards of directors. Visit www.boardsource.org.
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Tax-Exemption Isn’t Automatic Many people assume that tax-exempt status automatically Online comes along with being a nonprofit corporation. This isn’t TIP! the case. Tax-exempt status is neither guaranteed nor Help automatic for a nonprofit organization. Tax-exempt status is dependent upon the express purpose for which the organization is formed and the methods by which that Find valuable information NONPROFIT ORGANIZATION purpose will be accomplished. These should be stated in related to nonprofits at the articles of incorporation. What this means is that the http://www.irs.gov.The activities of the organization must fit within certain state Internal Revenue Service, and federal guidelines. Department of the Treasury Tax-exemption is more complicated than people often provides tax information, realize, involving various types of taxes and levels of forms and publications. government. The federal tax code affects the numerous types of nonprofits differently. Also, organizations that qualify for exemption from paying federal income taxes on some or all of their income are not necessarily eligible to receive contributions that are tax deductible for the donors.
You may know the term “501(c)(3),” a common type of tax-exempt corporation. This is actually a reference to a particular section of the federal tax code. There are several other categories of tax exemption based on the purpose of the organization. Each category has specific limits with regard to the kinds and amounts of activities (such as political and fundraising) that the organization can engage in. Many nationally designated byways are represented by, or organized as, nonprofit corporations. See Appendix C for a list of types of tax-exempt organizations. To determine which type of tax-exempt status your byway qualifies for, seek advice from someone who is familiar with your organization and the legal aspects of nonprofit corporations.
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What Is a Foundation? Nonprofit Organizations Formed to Give and Serve NONPROFIT ORGANIZATION
oundations are nonprofit, charitable, tax-exempt Forganizations that provide grants to support a wide variety of charitable causes and concerns. They are created with endowments—gifts of money, stock or other assets from individuals, families and corporations that choose to dedicate some of their private resources to serve the public good. These gifts or assets are typically invested and the income generated is used to make grants.
Foundations can be divided into several distinct types:
• Independent Foundations are the most common type of private foundation. They are generally founded by an individual, a family or a group of individuals. They may be operated by the donor or members of the donor’s family—a type often referred to as a family foundation— or by an independent board.
• Community Foundations are organized to serve specific geographic regions. They receive their support from a variety of donors, rather than a single family or company.
• Corporate Foundations are created with gifts from for-profit companies to carry out the company’s charitable activities. (Some companies may also choose to make direct gifts without using a separate foundation, often through corporate giving programs.)
• Operating Foundations typically do not make grants. These types of foundations often use funds to conduct research or provide a direct service, such as operating its own charitable programs.
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Foundations are governed by strict Internal Revenue Service (IRS) regulations. For example, the IRS requires that independent and corporate foundations:
• Pay out at least 5 percent of the year-end fair market value of their assets.
• Pay an excise tax of 1 or 2 percent on their earnings. NONPROFIT ORGANIZATION • Give money only to nonprofit organizations, with a few rare exceptions.
• Refrain from lobbying or political activity.
Any byway organization interested in forming a foundation should seek legal advice. Building a strong financial foundation is an important goal for all byway organizations. Minnesota’s Edge of the Wilderness Scenic Byway has established an endowment fund in partnership with a local Charitable Community Foundation. An endowment is a permanent capital fund established from contributions. Contributions to the fund are invested to earn income and grow the capital. Approximately 50% of the “total return” on the fund will be distributed, with the other 50% being retained within the fund to keep it growing for the future.
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What Is a Friends Group? Helping Hands from
NONPROFIT ORGANIZATION Nonprofit Organizations
veryone knows the value of friends. Friends are our advocates, Eallies, helpers and promoters. Just as we need personal friends, byways need professional friends.
Friends Groups are widely recognized citizen organizations that work to enhance the quality of life in their communities. For many years, Friends Groups have actively supported public libraries, schools, nature centers, zoos, wildlife refuges and many other worthwhile organizations and causes. Friends Groups can be formed within a community, a region, a state or as a national organization.
The historic Beckwith Ranch is located within the Frontier Pathways Scenic & Historic Byway corridor in south central Colorado. From 1870-1930, this was the pre-eminent ranch in the region and an important landmark. By the 1960s, the Beckwith Ranch included only ten intact ranch buildings, all suffering from years of decay and neglect. In the early 1990s, a new nonprofit 501(c)(3) organization, “The Friends of Beckwith Ranch,” formed to save and interpret the ranch. The Friends arranged to get the ranch complex donated to the nonprofit organization.The members have mustered support to stabilize the structures and restore the farmhouse for adaptive reuse as an interpretive center along the byway.
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What Can Friends Do for You? Friends provide things that an organization can’t supply “You’ve Got for itself, such as specific services, volunteers, funding or TIP! to Have advocacy. It’s important that Friends Groups have clear objectives and well-defined, publicly understood goals. They Friends” support, promote, improve and expand the work of another When it comes to famous
agency or organization. As a separate, independent entity, a NONPROFIT ORGANIZATION Friends Group can operate in ways that are not possible for friends, these organizations the primary organization (such as a byway group). A Friends can serve as role models: Group has its own officers and organizational structure. Friends of Public Libraries Frequently, Friends are focused on fundraising activities. www.folusa.org/html/fact The Acadia Byway (All-American Road) has benefited sheets.html from gifts by the Friends of Acadia, an organization dedicated Friends of National to protecting Acadia National Park and the surrounding Wildlife Refuges communities. Established in 1986, this impressive Friends www.refugenet.org Group has donated over $2 million in grants. Friends Groups whose primary objective is fundraising generally organize as Most National Forests and a nonprofit corporation with 501(c)(3) tax-exempt status. National Parks also have Not only does the organization receive tax benefits, but active Friends Groups. contributors and benefactors are also entitled to a personal tax deduction by making a gift or donation to the organization. The primary disadvantage to forming a 501(c)(3) is the limits on lobbying efforts. Friends Groups that are interested in significant lobbying activities should consider forming as a 501(c)(4) organization.
A Friends Group can be a strong advocate for a local byway and the scenic byways program. A Friends Group would not manage your byway, but could complement the byway’s goals and mission by providing important funding and political support.
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CASE STUDY: Seaway Trail Seaway Trail National Scenic Byway (New York): Making Big Dreams Come True
ig byways need big organizations. Visitors can experience the byway’s rural NONPROFIT ORGANIZATION BTotaling 454 miles, New York’s Seaway flavor, as well as find high culture in cities like Trail National Scenic Byway is one of the Rochester and Buffalo, which offer a myriad of biggest! The byway receives support from museums and historic sites. With a route that one of the premier organizations in the hugs the shores of two Great Lakes, water National Scenic Byways Program. recreation is abundant and fishing is a year-round sport. The byway parallels the St. Lawrence River, Lake Ontario, Niagara River and Lake Erie. The initial byway organization has been Travelers enjoy a drive with naturally scenic in existence since 1978, and has grown landscapes, welcoming harbors, city skylines, to include two nonprofit corporations and historic lighthouses, numerous state parks and five full-time staff members. The two quaint villages. Fresh fruits and vegetables can nonprofits complement one another, but be found at roadside markets, county fairs, and fulfill distinct and separate roles. Although you-pick farms. Byway communities offer their objectives are different, both boards celebrations year-round, such as the Irish are dedicated to serving byway visitors and Festival, Blues & Jazz Festival, Great Pumpkin strengthening the overall Seaway Trail. Fest and more. Each has its own membership program.
New York’s Seaway Trail may well be the “Grand Dame” of byway organizations.With two independent nonprofit corporations and a full-time staff, it is the largest byway organization within the National Scenic Byways Program.The byway’s success can be traced back to some proven best practices—communication, commitment and cooperation.
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CASE STUDY: Seaway Trail
The Seaway Trail, Inc. Membership to Seaway Trail, Inc. provides Seaway Trail, Inc. is a 501(c)(6) nonprofit a variety of valuable benefits to byway corporation focused on byway management, businesses and organizations. The $75 administration and promotion. The 16- annual fee includes listings on the Web site member Board of Directors is made up of (www.SeawayTrail.com), in the Seaway individuals representing different geographic Trail’s newsletter and in Journey magazine NONPROFIT ORGANIZATION regions along the byway (ten counties) (200,000 copies printed). and a broad array of interests (boating, Seaway Trail, Inc. has produced a popular camping, agriculture, private sector and series of byway guidebooks on a wide range fishing). Monthly board meetings are held at of topics such as lighthouses, architecture, different locations along this lengthy byway. history, biking, shipwrecks and quilt The corporation is responsible for hiring an patterns. The books are sold to individual Executive Director, who in turn hires staff consumers (full retail cost) and to wholesalers members to carry out the organization’s (significant discount for resale). Books provide five-year Action Plan. a good source of publicity and income for the byway. Seaway Trail, Inc. general members, currently numbering over 650, elect the Board’s Directors. The general membership meets four times per year to receive staff updates on projects and initiatives.
“Community outreach has been a major benefit. As byway groups reach out to neighboring communities, resources grow and the program grows. One community will usually find three to five other communities who also want to be a part of the program and part of telling the byway’s story.They recognize the value of being part of the program.It’s all grassroots.That just energizes me.” David Fasser, (Retired) State Scenic Byway Coordinator New York State Department of Transportation
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CASE STUDY: Seaway Trail
The Seaway Trail Foundation, Inc. The Seaway Trail Foundation has developed The Seaway Trail Foundation, Inc. is a a partnership with Elderhostel, Inc. to offer 501(c)(3) nonprofit tax-exempt organization study-travel opportunities for adults aged focused on education and fundraising. The 55 and older. Hostelers stay in local nine-member Board of Directors is described accommodations and enjoy a variety of
NONPROFIT ORGANIZATION as a “good group of smart business people.” workshops and field trips to learn about They work together to solicit donations, the byway’s history, nature and culture. develop corporate giving campaigns, and Local people act as instructors and tour foster educational opportunities along the guides. Participants learn about the area byway for visitors. Because its mission is they are visiting in greater detail than they different than Seaway Trail, Inc., the Seaway would on a regular vacation experience. Trail Foundation, Inc. board composition is The weeklong agenda also includes soft also different.The Directors have backgrounds educational experiences and entertainment. in economic development, fundraising, Evenings might include opportunities to transportation and historic preservation. learn about brewing beer, yoga, or antiques. They meet as needed, or at least yearly, Folks enjoy outdoor picnics at a lighthouse, and are a self-perpetuating board. The meals at local restaurants, and even dinners current board finds its own replacements for served by community church groups. outgoing members. There are different categories of tax-deductible Executive Director Teresa Mitchell praised Foundation memberships: individual, business, the commitment of the Foundation board, and corporate. A $35 annual individual “They are people who already do a lot in membership provides free admission to the the region, but are willing to do more. Discovery Center Museum and a 10 percent Many of them serve on boards for several discount at the gift shop. The Foundation also organizations. They have the experience, established an endowment fund, which has knowledge and contacts to raise the Seaway started to receive donations. Trail to a new level.”
“They are people who already do a lot in the region, but are willing to do more.” Teresa Mitchell, Executive Director, Seaway Trail National Scenic Byway, New York
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CASE STUDY: Seaway Trail
Communication Keeps Things Moving How do two independent boards and a full-time byway staff coordinate their efforts? Communication is vital to keep everyone informed and on track.
The two boards have found several ways to trade information: • Meeting notices and agendas are shared • A newsletter contains updates on board NONPROFIT ORGANIZATION back and forth. activities.
• Board meetings include time for reports • There is a conscious effort to communicate from staff and the opposite board. regularly by phone, fax and e-mail.
• Staff members act as liaisons between • The two boards participated in a joint the two boards. strategic planning session.
• The two board chairs communicate directly with each other.
A major accomplishment of the Seaway Trail Foundation, Inc. was the successful acquisition and creation of the Seaway Trail Discovery Center. This interpretive educational facility is housed in the historic Union Hotel, a beautiful 1817 limestone building in Sackets Harbor, New York.This one-of-a-kind museum offers three floors of interactive exhibits, a gift shop and offices for staff members. Rooms that formerly served as the dining room, kitchen and guest accommodations now contain exhibits that teach curious visitors about the region’s history, nature and culture.
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CASE STUDY: Seaway Trail
Planning for the Future The Seaway Trail has reached a level of Build Meeting success that most organizations aspire to TIP! achieve; however, they are continually Attendance looking for ways to grow and improve. NONPROFIT ORGANIZATION As with many byways, funding is a constant need. The Seaway Trail has benefited from Board members look forward to state and national grants. Ultimately, meetings along the Seaway Trail.The the members would like to become a byway organization has found a unique self-sustaining organization. Many ideas way to increase meeting attendance and are being discussed and evaluated, such as forming a for-profit corporation, hiring a have fun. development director, diversifying income Several of the board meetings are sources and creating new partnerships. combined with attractive social events. It’s a byway organization with big ideas and For example, board meetings have been big accomplishments. combined with: • An island shore dinner cooked by a local fishing guide. • A holiday dinner at a historic home with entertainment by carolers. • Hard-to-get tickets to a fine arts exhibit. • A catered buffet in a stone castle with a three-piece band. People talk about these special meetings for years!
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CASE STUDY: Turquoise Trail Turquoise Trail National Scenic Byway (New Mexico): When Everyone Is a Volunteer f you’re planning to attend the monthly and 1960s, the Albuquerque Chamber of Imeeting of the Turquoise Trail Association, Commerce was heavily publicizing the remember to bring a hot dish…or a dessert… region, but gradually visitor response NONPROFIT ORGANIZATION or a salad. Combining monthly business decreased and tours to the area ceased. meetings with potluck suppers brings a nice informality to the atmosphere within this The first meeting, held at Pete’s Home of byway organization. The popular not-to-be the Half-Breed Restaurant in Sandia Park, missed meetings take place in local B&Bs, provided a glimpse of the enthusiasm that in backyards and in members’ homes. would carry this group to greater success Byway volunteer Larry Valtelhas explained, over the course of time. Byway leader “The food is terrific! We usually keep eating Carla Ward remembers the group’s first and drinking until we get a quorum (five attempts at fundraising. “We tried to take board members). After that, we conduct up a collection at the meeting and everyone our business.” was hemming and hawing. Suddenly, my husband, Ross, stood up, offered a hundred The Association was formed in 1983 by a dollars, and asked, ‘Who’s going to join me?’ handful of area business owners to promote We raised over $700 that night and had 12 tourism, preservation of scenic and historic people sign up to form the Turquoise Trail areas and overall promotion of the Trail as a Association.” specific destination. As early as the 1950s Today, the Association is a 501(c)(6) nonprofit association with over 65 members. The all-volunteer Turquoise Trail Association reflects the diversity of people who live and work along the byway.
What’s the secret to an effective all-volunteer group? The Turquoise Trail Association offers some valuable lessons. A shared vision, a strong network, effective distribution of work among members, resourcefulness, community inclusion and broad participation are organizational cornerstones of this successful byway. (Photo: Albuquerque Convention and Visitors Bureau)
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CASE STUDY: Turquoise Trail
The Past Plays into the Present The 61-mile byway is the scenic way to The byway’s unique area holds a unique past. drive between the high country of Santa Fe At one time, this was a booming coal-mining and the desert of Albuquerque. Running region. The area fell on bad times in the along the east side of the Sandia Mountains, 1950s and thriving communities became the byway allows travelers to see 15,000
NONPROFIT ORGANIZATION ghost towns. In the early 1970s, artists and square miles of central New Mexico, craftspeople arrived and converted old company including Cibola National Forest and the stores and houses into shops and galleries filled Sandia Mountain Wilderness. With more with paintings, sculpture, pottery, textiles, and more development pressure, finding jewelry, furniture, beadwork, toys, artwear and ways to manage growth is an increasing antiques. Today, these “ghost” mining towns concern along this beautiful corridor. along the byway—Madrid, Golden, and Cerrillos—are alive with art, crafts, theater, music, museums and restaurants.
The Turquoise Trail Association hosts an annual auction where bidders can buy some of the most unique items in America—perhaps in the world— that have been donated by Association members.
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CASE STUDY: Turquoise Trail
Building Participation Broad participation is so important to the Turquoise Trail Association members that they included specific “Participation Goals” as part of their corridor management plan. Participation Goals Participation Objectives NONPROFIT ORGANIZATION A. Ensure that public officials believe that 1. Continue to increase awareness of the the Turquoise Trail Scenic Byway Turquoise Trail Scenic Byway by one new Advisory Committee (SBAC) represents group or organization each month. beliefs and options of the stakeholders of the Turquoise Trail Scenic Byway. 2. Continue to meet one-on-one with stakeholders. B. Acquire greater diversity and expertise in the SBAC. 3. Continue to develop and publish press releases.
4. Involve local government staff in byway activities. Invite them to all meetings and include them on mailing lists.
5. Scenic Byway Advisory Committee should discuss expertise and diversity at monthly meetings.
6. Scenic Byway Advisory Committee members can provide names and contact information for people who should be invited to participate.
7. Staff or Scenic Byway Advisory Committee members should make individual contacts with these people to invite them to participate.
8. Develop a list of needed expertise and diversity and update as required.
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CASE STUDY: Turquoise Trail
The Scenic Byway Advisory Decision making often reflects the formality Council Begins or informality of a group. This is certainly A 13-member Scenic Byway Advisory Council true within the Turquoise Trail Association. (SBAC) was formed in 1999 from a core The bylaws give voting power to the 13 board group of the Turquoise Trail Association. members. However, the board usually polls all NONPROFIT ORGANIZATION The SBAC makes ongoing efforts to solicit the members on issues, especially important community input on the byway through ones that relate to policy. Decisions are questionnaires, a Web site, advertising in generally made by the folks that “show up.” local newspapers and public meetings. The A board member explained, “Many of the group also developed partnerships with various members don’t realize that only the board has organizations, including three counties, the an official vote. It’s that informal. It’s pretty USDA Forest Service, the Chamber of much whomever shows up for a meeting or Commerce, historical societies, landowner does work that gets to call the shots. When and homeowner’s associations, the East you’re at a meeting, it appears that everyone Mountain Legal Defense Fund, the local ski present is voting. We only go to a board vote area and tramway, and the Archeology if it’s a close vote. Most of the time, we get a Conservation District. strong consensus on issues.”
Full membership in the Association ($250 Burnout is a common problem in organizations. annual fee) provides a newsletter, the right to In all-volunteer groups, it’s not uncommon vote on byway issues, inclusion in marketing for a few people to end up with responsibility and promotional initiatives, “the chance to for a large percentage of the work. To fight meet friendly people,” and “the opportunity to burnout and retain volunteers, the Turquoise make a difference in the byway community.” Trail makes conscious efforts to try and Association members receive a business listing distribute the workload a little more evenly, in the Turquoise Trail brochure and on the often assigning two to three people to a organization’s Web site (www.turquoisetrail.org). project. Outside experts and consultants are The membership also elects the Association’s utilized as needed and as funds are available. board members. There are no limitations These committed volunteers have racked up on who can serve as board members; paid an impressive list of accomplishments. membership is not even a requirement. It’s an organization where the grassroots There is also an Associate category ($30) have taken root and are truly growing. for byway supporters that don’t need or want voting rights or inclusion in byway promotional packages. It’s simply a way to be more inclusive.
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Cooperative Agreements: Continuity through Collaboration
erhaps you have a diverse group of byway participants, COOPERATIVE AGREEMENTS Pbut are unsure how to coordinate your efforts to reach your shared goal. If your byway crosses numerous jurisdictions, you need a way to ensure continuity throughout the byway. A cooperative agreement can be a useful tool for combining the efforts of multiple entities.
Groups that want to formalize their working relationships may choose to draft a document called a cooperative agreement (also termed an interagency agreement or memorandum of under- standing). Although the document doesn’t have legal status, it does outline the responsibilities and commitments of each participating agency. In Colorado, the Los Caminos Antiquos Scenic & Historic Byway has established a Memorandum of Understanding with local counties, federal agencies, city governments, and the Colorado Departments of Transportation and Parks and Outdoor Recreation. The Great Sand Dunes National Monument draws thousands of visitors to this region each year.
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At a Glance: Cooperative Agreements The following chart will help you understand the benefits and limitations of cooperative agreements.
Cooperative Agreements
Basic Characteristics Limitations Benefits COOPERATIVE AGREEMENTS • Entities commit • Coordination of individual • Links like-minded staff/resources to a efforts not guaranteed. organizations. common goal. • Doesn’t have legal • Individual entities • Formed by a combina- standing and liability retain control over tion of agencies would revert back to their own resources. (public, private individual agencies. or both). • Relatively simple • Cannot hire staff except to create. • A cooperative through a member agreement defines the agency. • Good format for groups scope of power (when in the beginning stages and how it can be • When vaguely defined, of formation. exercised). leadership, decision making and meetings can • Not always as formal as be absent or inconsistent. a joint powers entity.
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A Mechanism for Collaboration Cooperative agreements, generally termed an interagency agreement or memorandum of understanding, are mechanisms by which two or more agencies or organizations state their intentions to work collaboratively toward a common goal. The actual agreement, a written document, can range in complexity
from a general statement of cooperation or affiliation to a more COOPERATIVE AGREEMENTS comprehensive document that outlines specific plans and procedures for accomplishing a shared goal. Regardless of its specificity, the agreement should be the foundation for a goal-directed action plan that produces concrete results.
Freight wagons no longer cross the prairies, but the legacy of the Santa Fe Trail endures as buildings, historic sites, landmarks and original wagon-wheel ruts.Today, however, much of the Santa Fe Trail is privately owned.The Santa Fe Trail Association, in cooperation with the National Park Service, works with local landowners to “certify” properties along the Trail. Certified sites become part of the National Historic Trail and are marked with an official Trail sign. A cooperative agreement is drawn up between the National Park Service and the property owner. The certification agreement is not a legal document, but rather a good-faith expression of mutual expectations and interests.The agreement is completely voluntary, and can be terminated by either party at any time. In this partnership, landowners agree to manage the site so as to protect its resources, and to provide for “appropriate” (often limited) public use. In exchange, the landowners receive technical assistance in areas such as historic preservation, archaeological protection, architecture, engineering, landscape architecture, planning, maintenance, trail building and interpretation.
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 10546 YOUR STRUCTURE: COOPERATIVE AGREEMENTS ions may feel more on-governmental agencies. on-governmental Financial expectations Glossary of terms (include acronyms) Plans Studies 4. Finances 5. Conclusion Process for reviewing/revising agreement Provisions for addition, removal or resignation of members process Termination Procedures for disbursing contributed assets remaining after agreement termination 6. Attachments written agreement. This document can be fairly written agreement. This document Building and Maintaining Effective Byway Organizations Byway Building and Maintaining Effective Title of contents Table Agencies included Purpose of agreement/mission Vision Members’ names and titles Agency roles and functions 1. General/Introductory 2. Responsibilities 3. Process Meetings Quorums Decision-making process Conflict resolution The relationship between partner organizations should be The relationship between partner outlined in a the agreement should simple or quite detailed. At minimum, involved, their intentions purpose, the parties list the group’s that each party will in working together and the resources also state what happens contribute. The agreement should The agreement should be if the organization is dissolved. with the authority to carry reviewed and approved by those commitments. out the document’s may contain the A more comprehensive agreement following components: A cooperative agreement is less formal than other is less formal agreement A cooperative corporation such as a nonprofit structures, organizational can include Cooperative agreements entity. or joint powers as well as n a mix of governmental so, the entity, does not create a new A cooperative agreement with the member significant control remain staff, resources and partner organizat agencies. As a result, The Agreement’s Components Cooperative Agreement Advantages Agreement Cooperative into such an agreement. comfortable entering Making the Grassroots Grow: Making the Grassroots Some byways use a rather Some byways agreement simple cooperative the cooperation to formalize partners,between while others draft a detailed that spells out agreement of each the responsibilities of the participants. How Complex How Cooperative Are Agreements?
COOPERATIVE AGREEMENTS
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CASE STUDY: Top of the Rockies
Top of the Rockies Scenic and Historic Byway (Colorado): A Three-County Model of Teamwork he high altitudes seem to mirror the high An Intergovernmental Cooperative
Taspirations and high levels of teamwork Agreement COOPERATIVE AGREEMENTS that exist along Top of the Rockies Scenic and The Top of the Rockies byway organization Historic Byway in Colorado. is an intergovernmental cooperative The byway winds through amazing mountain agreement among Lake, Eagle and Summit landscapes, past the two highest peaks in Counties in Colorado. This is an area whose Colorado, through Leadville, the highest economic base once relied on mining, and incorporated town in the United States now relies on tourism. Eagle and Summit (at 10,200 feet), and into pieces of Colorado Counties are home to several large ski history. Tales of indigenous peoples, early resort areas, including Copper Mountain, fortune seeking miners, and the brave men of Breckenridge, Keystone and Vail. While the the Tenth Mountain Division are an intriguing byway is a nice added benefit to these two ski part of this byway’s story. This 82-mile route counties, it plays a critical role in drawing crosses the Continental Divide twice and tourism to Lake County. For this reason, Lake traces the Arkansas River nearly to its source County has always taken a more active role in the vicinity of Fremont Pass. The small within the byway organization. Lake County communities of Redcliff, Minturn and currently serves as the administrative and Twin Lakes add distinct charm to the fiscal agent for the byway, organizing meetings, traveler’s experience. preparing grant applications, issuing Request For Proposals (RFPs) and managing funds.
A cooperative agreement can be formed by a combination of agencies—public, private or both. Top of the Rockies Scenic and Historic Byway has an intergovernmental agreement between Lake, Eagle and Summit counties in Colorado.The byway organization also includes other important partners— tourism, landowners, federal agencies, land trusts, universities, historical societies and interested citizens.
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Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 10746 YOUR STRUCTURE:
CASE STUDY: Top of the Rockies
A regional committee includes three Teamwork Works representatives from each of the three Catherine Patti, Lake County Administrator counties and a representative from the USDA and byway leader, is proud of the teamwork that Forest Service. The group doesn’t use a formal is prevalent within the byway organization. She process for making committee appointments. said, “Even though it’s kind of a loose structure, Instead, the opportunity tends to fall to those it’s been very positive and successful because of COOPERATIVE AGREEMENTS individuals interested in participating. The the teamwork. The understanding between all committee meets as needed, usually once a the counties is that whoever shows up for the month. When projects reach full swing, the meetings makes the decisions. If there’s two group meets more often. Members compare people there, then they make the decision. If calendars through e-mail, scheduling meetings there’s ten people there, then they make the when the majority can attend. decision. Decisions are made by those that Citizen volunteers support the committee, as ‘show up’ and it’s worked really well. When well as representatives connected to county decisions are made, we try to take all three administration, city planning, public relations, counties into consideration, even when they parks and recreation, chambers of commerce, a may not have a representative at the meeting. ski resort and a local college. In addition to the We try to take the whole byway into account. regional committee, Lake County maintains a It’s amazing because there’s been wonderful strong and active local committee. Byway teamwork.” organizers reach out to the local communities to find expertise when they need specific assistance.
“We’ve always stressed the importance of having a byway organization that is well represented by three basic groups: the tourism industry, local government (including state and federal agencies), and major landowners (private, local, state, or federal). Add to that interest groups such as local historical societies, land trusts, colleges and universities, and interested citizens, and you have the makings of a great byway organization. The Top of the Rockies fits that description.” Sally Pearce, State Scenic Byway Coordinator, Colorado Department of Transportation
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108 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
CASE STUDY: Top of the Rockies
Coordination Prevails The byway also reaches out to other partner Reportedly, the group has been able to reach organizations, such as the Lake County consensus in every instance since its inception. Open Space Initiative (a 20-member board comprised of federal, state, and local agencies Surrounded by National Forests (White and organizations). By working with this
Mountain NF, Arapaho NF, Pike NF and San organization, a recreational facility project at COOPERATIVE AGREEMENTS Isabel NF), the byway sees the USDA Forest Hayden Meadow was expanded to serve as Service as an important partner. There is a lot an interpretive and educational facility. of coordination on projects. For example, when the byway was outlining an interpretive The byway organization is currently updating its management plan, they knew that the USDA corridor management plan, since the group Forest Service had completed an interpretive “essentially completed all the action items” plan for Camp Hale, historical training site of in the original plan. Projects have included a the famous WWII Tenth Mountain Division. byway video, an orientation map, byway It made sense to work together, and efforts were signage, a historical walking tour brochure not duplicated. and an interpretive management plan.
Successful organizations have good leaders. Catherine Patti, Lake County Administrator, and Sally Pearce, Colorado Department of Transportation, exemplify key leadership traits: vision, organization, enthusiasm, teamwork and communication.
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Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 10946 YOUR STRUCTURE:
CASE STUDY: Top of the Rockies
Looking at Organizational Options Patti explained how a new structure will The group’s current goal is to find a structure benefit the byway. “We look forward to hiring that will establish the byway organization as a byway coordinator. We’re not being as its own legal entity. Members are researching effective as we could be, the way we are options, such as becoming a 501(c)(3) currently set up. Everyone on the committee
COOPERATIVE AGREEMENTS nonprofit organization. After that, they will is a volunteer and they all have other jobs. identify funding mechanisms to separate fiscal There is no time to participate in the monthly agency from Lake County. This will relieve conference calls with the national program, the County from time-consuming paperwork gain new knowledge and information, and and separate the byway’s finances from local have discussions with other people that could politics. The County supports these efforts. help us,” she said. While County Commissioners value the There’s no doubt that a high level of teamwork scenic byways program, they realize it ties will be part of a new organizational structure. up limited staff resources to prepare and “We’ve got a good group of people who really administer grants. see the benefits that the byway can bring to The byway organization expects that the the communities in terms of tourism and regional committee will remain the same, economic development. People really care with representatives from the three byway about the communities and they care about counties, the USDA Forest Service and maintaining the assets along the byway,” citizen volunteers. The group envisions hiring noted Patti. a part-time byway administrator. Already, a See Appendix F for a copy of Top of the $25,000 seed grant from the National Scenic Rockies intergovernmental cooperative Byways Program will help the organization agreement. move forward.
110 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
Single Government Entity at the Lead: Planning and Oversight
from One Source SINGLE GOVERNMENT ENTITY AT THE LEAD
oes your byway travel primarily through a national Dor state forest or some other type of governmentally controlled land? A common and easy organizational structure in these cases is for one governmental agency to take the lead in byway planning and oversight.
Some byways are located partially (or entirely) on public lands. In those cases, it’s common for a state or federal government agency to take the lead in managing the corridor. The National Park Service manages the Natchez Trace (All-American Road), a historic route that generally follows the old Indian trace, or trail, between Natchez Mississippi and Nashville,Tennessee. The trace was an important wilderness route for Native Americans, settlers and boatmen walking home after floating goods down the Mississippi River. (Photo: Natchez Trace Parkway)
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 11146 YOUR STRUCTURE:
At a Glance: Government Entity as Lead The following chart will help you understand the benefits and limitations when a government entity is the lead. Single Government Entity as Lead
Basic Characteristics Limitations Benefits SINGLE GOVERNMENT ENTITY AT THE LEAD
• Lead agency takes • May not have extensive • Less complex to create, responsibility that public input, particularly while still protecting funds are received and if entire byway is not in liability. accounted for properly. the lead agency’s district. • Staff person provided • Lead agency typically • Byway may lose attention without group needing provides staff to byway. when agency is faced to raise funds. with other multiple • Lead agency completes program priorities. • Ability to access agency all necessary applications. expertise and skills on • Decision making could be variety of topics. • Fairly informal. cumbersome, depending on agency procedure • Individual entities retain • Open meeting laws and structure. control over their own and public access to resources. records apply. • Can lose momentum if the key proponent on • Decision making could staff leaves the area. be streamlined with single entity process.
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Key Federal Agencies There’s nice synergy between the National Scenic Byways Program and some of the programs sponsored by the USDA Forest Service (USFS), National Park Service (NPS) and Bureau of Land Management (BLM). Many byways have also formed important partnerships with the U.S. Fish & Wildlife Service and the National Wildlife Refuges. In addition, byways SINGLE GOVERNMENT ENTITY AT THE LEAD are often linked to important NPS resources such as National Monuments, National Battlefields and National Historic Sites. All of these federal agencies share a mission that is, in part, devoted to caring for public lands, providing recreational opportunities for visitors and preserving historic, natural, cultural, scenic, recreational and community resources.
Over half of the National Scenic Byways and All-American Roads cross federal lands. So, it’s natural that federal agencies are playing a lead role along the byways. Across the country, staff members from the USFS, BLM and NPS are serving as byway leaders and members of byway organizations.
In other cases, byways are benefiting from leadership provided by a state Department of Transportation, a county, a city, or a regional planning agency. A combination of national and state or local governmental jurisdictions could also exist.
The USDA Forest Service provides important byway leadership. In Montana and Wyoming, the Beartooth Highway (All-American Road) is one of the most spectacular National Forest drives on this continent.The route’s management falls under the jurisdiction of three National Forests: Custer, Shoshone, and Gallatin National Forests.
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 11346 YOUR STRUCTURE:
Leadership Contributions Frequently, the governmental entity where all or most of the byway is located takes responsibility for managing the corridor, typically as part of a broader management plan. The agency may assign a staff person to commit a certain amount of time to the byway using agency funds. For byways trying to find ways to support a dedicated staff person, this is highly SINGLE GOVERNMENT ENTITY AT THE LEAD beneficial. However, this can also create a problem when the assigned staff person accepts a new position, moves from the area, or must balance multiple responsibilities.
The lead agency often forms partnerships with other governmental entities or local citizen groups, enriching the byway’s scope. The lead governmental agency usually retains decision-making power and secures funding for the byway, rather than establishing a separate byway organization for these functions. Sometimes a separate organization forms to address specific activities, such as marketing and coordinating with local businesses along the route. Preserve Citizen Input Channels The byway program calls for a high degree of citizen involvement. It takes time and effort to make sure that public input is included. Because a government agency may normally handle decisions within its own structure, it’s important to clarify how local citizens can have ongoing participation in the process. This is especially necessary when a portion of the corridor falls on federal lands, but also includes some state or privately owned lands.
Public input is not just encouraged, it may be required by law in some states. Open meeting laws vary from state to state, but they generally specify requirements for meeting notifications, meeting times, meeting locations, and meeting records. Be aware of the laws in your state.
114 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
Federal Agencies Designate Special Roads Did you know? The USDA Forest Service The U.S. Fish and Wildlife Service maintains had the first national over 3,000 miles of “Refuge Roads.” These designation of scenic byways public roads provide access to, or exist within a with its National Forest unit of, the National Wildlife Refuge System. An SINGLE GOVERNMENT ENTITY AT THE LEAD Scenic Byways Program in estimated 25 million people annually visit refuges 1988. A total of 9,126 miles to observe and photograph wildlife, 7 million to are designated as National hunt and fish, and more than half a million to Forest Scenic Byways across participate in educational programs. the United States. The Bureau of Land The National Park Service oversees National Management (BLM) Heritage Corridors and National Historic Trails. administers the Back In this program, the federal government does Country Byways program. not own or manage any of the land as it does There are 69 Back Country in traditional national parks. Instead, citizens, Byways for visitors to businesses, nonprofit, cultural and environmental explore and gain a better organizations, local and state governments, and understanding of public land the National Park Service work together to management and resources. preserve and celebrate the region’s cultural, The BLM’s Back Country historical and natural heritage. Byways program was created to meet the needs of the 43 percent of Americans who say driving for pleasure is their favorite recreation.
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 11546 YOUR STRUCTURE:
CASE STUDY: Flaming Gorge
Flaming Gorge-Uintas Scenic Byway (Utah): A Federal Agency Plays the Leading Role
he USDA Forest Service is a particularly On the Flaming Gorge-Uintas Scenic Byway SINGLE GOVERNMENT ENTITY AT THE LEAD Timportant byway partner. Over 100 in Utah, that person is USDA Forest Service National Forest Scenic Byways are also employee Brent Hanchett. designated as state scenic byways. More than half of the National Scenic Byways and It might be easy for the byway program to get All-American Roads (designated by the U.S. lost in a long list of other tasks and duties, Department of Transportation) have dual since most staff members have multiple designation as National Forest Scenic Byways program responsibilities. It’s rare to have a (designated by the USDA Forest Service). full-time person devoted to scenic byways. Others cross National Forest lands, but do Luckily, Hanchett does not view the scenic not currently have National Forest Scenic byway as “just another assignment.” He has Byway designation. developed a strong personal interest in the program, and his agency supports it as an An Agency Representative important priority. to Call Your Own Hanchett serves as the Scenic Byway In most cases, the federal agency appoints a Coordinator. He organizes meetings, handles staff member to oversee byway management day-to-day administrative issues and does issues. Having a person with formal byway the legwork to manage the 82-mile byway responsibilities can be a tremendous asset. located in northeastern Utah.
The national forest transportation system is extensive and diverse. Many byways have strong partnerships with the USDA Forest Service, including Utah’s Flaming Gorge-Uintas Scenic Byway. Along this route, a USDA Forest Service staff member serves as the byway leader, providing valuable administrative and technical support. (Photo: Jerry Sintz)
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CASE STUDY: Flaming Gorge
The Flaming Gorge-Uintas Scenic Byway A majority of the committee members serves as a vital transportation corridor come from government agencies (state and getaway for people who are interested and federal). The public is represented in visiting some nationally recognized through two elected county commissioners. attractions, including the Flaming Gorge Committee members represent:
Reservoir and Dam, the Flaming Gorge SINGLE GOVERNMENT ENTITY AT THE LEAD National Recreation Area, the Green River, • Daggett County and Unitah County (the and the Dinosaur National Monument and two counties the byway passes through) Quarry. The Flaming Gorge National • Utah Regional Travel Board (the byway Recreation Area contains nearly half of the is an important tourism tool) byway. The Dinosaur National Monument and Quarry is one of the world’s greatest • Bureau of Land Management (the byway sources for dinosaur skeletons and draws passes through BLM land) visitors from all over the world. In this area, travelers can experience the essence of • Utah State Parks & Recreation (the the “real West” through the existence of byway is adjacent to a state park) world-class rock art and the western folklore • Regional office of the Utah Dept. of of early explorers, mountain men, Transportation (the byway is a outlaws and cowboys. state highway)
Local Participation • Utah Division of Wildlife Resources Although a federal agency could choose (the byway’s theme is “Wildlife Through to handle byway issues in-house, a key the Ages”) component of the National Scenic Byways Program is the formation and participation • Superintendent of Dinosaur National of a local byway organization. Flaming Monument (a key byway attraction) Gorge has pulled together an effective • USDA Forest Service, Ashley National Scenic Byway Committee, chaired by the Forest (the lead agency) USDA Forest Service District Ranger. The committee is comprised of “people who It’s a structure that seems to work. The group can affect things and make things happen. meets about six times a year or on an as-needed They are the partners who have an interest, basis. There is good attendance at meetings commitment and funding.” (eight to ten people). The committee members all have a stake in the byway’s success.
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Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 11746 VYOUR STRUCTURE:
CASE STUDY: Flaming Gorge
A strong sense of teamwork exists among Flaming Gorge-Uintas Scenic Byway has the Scenic Byways Committee. “Barriers found a successful formula: agency and have broken down. It’s amazing how public support, a committed byway leader, well this group works together. They are an effective byway organization, resources extremely cooperative. We’ve done away and enthusiasm. with lines,” said Hanchett. In one instance,
SINGLE GOVERNMENT ENTITY AT THE LEAD a local county had some extra asphalt. Crossing county lines, the asphalt was used to pave five byway turnouts (located in both counties).
Players within the committee have provided matches for grants. In addition, matches have come from other local stakeholders. For example, Red Canyon Lodge, located on the byway, has provided matching funds. A network of 70 different agencies and entities has partnered on byway activities, events and funding. Hanchett explained, “This organization works well and gives tremendous support to get things done along the byway.”
Several National Scenic Byways and All-American Roads have dual designations.Three New Mexico byways are also designated as National Historic Trails through the National Park Service: El Camino Real, Historic Route 66 and Santa Fe Trail. Observant visitors can find original road “scars” along the El Camino Real (The Royal Road). For over 300 years, El Camino Real was the primary route between Mexico and New Mexico, stretching 1,200 miles from Mexico City to Santa Fe (where it joined the Santa Fe Trail and continued on into Colorado). Native Americans, pioneers, missionaries, traders, ranchers, miners, soldiers and explorers used the rugged route.Wagons drawn by horses, mules and oxen took many weeks to complete the arduous journey. (Photo: Dan Scurlock)
118 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
CASE STUDY: Pacific Coast
Pacific Coast Scenic Byway (Oregon): ODOT Partners with the Public yway organizations have an important The Byway’s Path SINGLE GOVERNMENT ENTITY AT THE LEAD B relationship with their state’s Department The Pacific Coast Scenic Byway (Highway of Transportation (DOT). The DOTs provide 101) journeys 360 miles along the full length technical assistance, oversee highway projects, of Oregon’s coast. Stunning coastal scenery, coordinate grant programs, designate state charming small towns, museums, public scenic byways, and act as a liaison between beaches, breathtaking viewpoints, historic nationally designated byways and the Federal bridges, lighthouses, unusual plants and Highway Administration. Along Oregon’s animals ensure a delightful experience for Pacific Coast Scenic Byway, that DOT the visitor. Additionally, there are state relationship is even stronger. and federal forestlands, wildlife refuges, the When the Oregon Transportation Commission Yaquina Head Outstanding Natural Area, the designated US 101 as a state scenic byway in Dunes National Recreation Area, and many 1991, the Oregon Department of Transportation other special places. (ODOT) became the official proponent of this route. Although it’s not the usual organizational path, coastal communities had been urging ODOT to pursue designation for US 101 as a National Scenic Byway.
Led by the Oregon of Transportation (ODOT), the 360-mile Pacific Coast Scenic Byway has formed working partnerships with a large, diverse group of coastal agencies and entities. When the corridor management plan was being created, nine regional planning agencies held 57 public meetings up and down the coast to gather input for the plan.
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CASE STUDY: Pacific Coast
Beautiful, functional bridges designed by meetings, citizens worked together to identify Conde B. McCullough (1887-1946) can be the byway’s significant features and intrinsic found along the Pacific Coast Scenic Byway. qualities. Once the defining features of the ODOT has invested millions of dollars byway were agreed on, management goals, working to preserve and restore these objectives, strategies and implementation
SINGLE GOVERNMENT ENTITY AT THE LEAD architectural treasures. Because of its dedication steps were outlined for each feature. to maintaining the historic coastal bridges, This information became the framework ODOT received a Best Practices for Byways for the CMP. award in 2001 in a competition sponsored by the Federal Highway Administration, Although the CMP public process took America’s Byways Resource Center and the lots of time and work, it had significant American Association of State Highway and positive benefits: Transportaion Officials (AASHTO). 1. The CMP became a plan that The byway passes through 26 incorporated the diverse spectrum of coastal cities, 7 counties and 11 distinct landscape communities could support. regions. Over 40 state parks are interspersed 2. It laid the groundwork for many and all of the beaches are considered public successful project initiatives with parkland. Developing unity among such a multiple partners, such as Oregon Parks large, diverse group takes a lot of work. and Recreation, USDA Forest Service, ODOT Forms Partnerships and local communities. ODOT formed two important working 3. It built a foundation of public trust partnerships with existing groups that and involvement along the byway. represented the voices of the coastal communities: Coast Policy Advisory The time and effort paid off. The Pacific Committee on Transportation (CPACT) Coast Scenic Byway received unanimous and Oregon Coast Visitors Association support for its application as a National (OCVA). Scenic Byway from local communities. To address fears of land use restrictions and CPACT and OCVA played a key role by general mistrust of government programs, helping facilitate meetings that brought the CMP allows withdrawal from the together constituents to define the corridor program at any time if “the original management plan (CMP) for the route. conditions of their participation change.” Over a ten-month period, culminating in Withdrawal for other reason is addressed by 1997, nine regional planning groups held a biennial review process. 57 public meetings up and down the coast to gather input for the byway plan. In the
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120 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations ORSRCUE SINGLE YOUR STRUCTURE:
CASE STUDY: Pacific Coast
Designated Duties OCVA is focused on marketing and promotion The Pacific Coast Scenic Byway upgraded its of the byway. Coastal communities are affected designation from a National Scenic Byway by tourism more than anywhere else in to an All-American Road in 2002. ODOT Oregon. Beset by failing timber and fishing continues to coordinate byway activities with markets, tourism in the cities and villages CPACT and OCVA. ODOT dedicates staff along the coast is increasingly important to resources to support the byway, providing economic viability. OCVA is comprised of valuable administrative assistance and chambers of commerce, visitor and convention technical expertise. bureaus and other attractions interested in marketing the coast. The group serves as a CPACT is focused on the political and clearinghouse for traveler inquiries about the GOVERNMENT ENTITY AT THE LEAD physical aspects of the byway. Members byway and distributes the Pacific Coast Byway of CPACT facilitate corridor planning, brochure. Meetings are held quarterly—up and coordinate infrastructure efforts, and identify down the coast—and a newsletter fact sheet is potential funding sources. CPACT also sent out weekly via e-mail. has the important job of reviewing and ranking project applications that have been In addition, ODOT presents byway-related submitted for the annual FHWA National information at OCVA’s annual tourism Scenic Byway grants program. In Oregon, workshop. OCVA also distributes a popular all byways rank their applications, then annual “Mile-by-Mile Guide to Highway the State Byways Committee considers 101” that is free to travelers. OCVA actively those priorities in compiling the state’s markets the byway with the Oregon Tourism overall ranking. Commission, who, in partnership with ODOT, performs the marketing function CPACT members are city, county and port for Oregon’s State Byway Program. representatives from the length of the coast. They also welcome the public, tribal representatives, and representatives from other Oregon state agencies and federal agencies (Bureau of Land Management, USDA Forest Service, and U.S. Dept. of Agriculture). To allow broad participation, quarterly meetings are held in different coastal locations and in Salem (Oregon’s capital) during the legislative session.
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CASE STUDY: Pacific Coast
Coordinated Efforts Today, many of the implementation steps, There are lots of logistical challenges in including projects that were identified in the coordinating activities along a lengthy original CMP, have been completed or are byway. For example, meeting participation is now funded. With the help of CPACT and more difficult for people, often volunteers, OCVA, ODOT is about to embark on the
SINGLE GOVERNMENT ENTITY AT THE LEAD who must travel long distances. In addition, process of updating the CMP to capture all summer is an extremely busy tourism season of the byway’s successes and make necessary for coastal businesses and it’s hard to find revisions to site goals. Once again, the group time for byway activities. The organization will turn to the public for input. relies on e-mail, faxes, mailings and phone Lea Ann Hart-Chambers, ODOT Scenic calls to keep everyone up-to-date. Byways Specialist, summed up the byway Turnover in organizations is natural, but it organization’s strength, “One of the greatest does slow progress and break continuity. accomplishments was finding consensus To maintain the knowledge in the group, among a large diverse group of constituents. the Executive Directors of OCVA and They agreed that national designation was CPACT, along with ODOT, make a a very positive goal. The businesses and conscious effort to orient and educate communities realize that there is a benefit in new members on byway issues. linking together in a joint effort. There is a strong commitment to making the byway a special experience for those who travel it.”
In June 2002, the Pacific Coast Scenic Byway’s designation was changed from a National Scenic Byway to an All-American Road. Once again, the nomination received strong public support. Byway representatives received a plaque from U.S.Transportation Secretary Norman Y. Mineta and FHWA Administrator Mary E. Peters in Washington, DC.
122 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
CASE STUDY: Loess Hills Loess Hills Scenic Byway (Iowa): Building an Organization Focused on the Byway t’s taken some time, but the Loess Hills Back Up: What’s a Loess? SINGLE GOVERNMENT ENTITY AT THE LEAD Iroute now has an organization focused on The Loess Hills region is a unique landform managing this unique nationally designated that ranges from one to fifteen miles wide and scenic byway in western Iowa. With direction approximately 200 miles long. This deep loess from the Golden Hills Resource Conservation (pronounced “luss”) is found only two places & Development (RC&D) and Western Iowa in the world: western Iowa and the Yellow Tourism Region (WITR), the Loess Hills River Valley of China. These corrugated Scenic Byway Council was formed in the fall “dunes” of windblown sediment were formed of 2000. over thousands of years by the deposition and erosion of the wind-blown silt. Today, the rugged landscape and strong local contrasts in weather and soil conditions provide refuge for a number of rare plants and animals.
The diverse 13-member Loess Hills Scenic Byway Council includes a teacher, a naturalist, directors from economic development organizations, a convention and visitor’s bureau representative, a small business owner, a county engineer, a state forester and a staff member from an Iowa welcome center.
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CASE STUDY: Loess Hills
The Early Organizations council with representation from all seven Over ten years ago, Golden Hills RC&D counties. The newly selected byway council first provided funding and technical assistance to met in October of 2000 and a part-time byway start the Loess Hills Hospitality Association coordinator was hired.
SINGLE GOVERNMENT ENTITY AT THE LEAD (LHHA). The original intent of WITR and A Composite Leadership Golden Hills RC&D was that this pilot group would become a regional organization, The Council includes representatives from the expanding north and south to include all Iowa Department of Transportation (IDOT), seven counties along the byway. The LHHA’s the Iowa Department of Natural Resources goal was generating tourism revenue through (DNR), the State Historical Society, the tours of the Loess Hills, which they still offer. RC&D, the Western Iowa Tourism Region, as The LHHA chose to keep its focus on tourism well as representatives from each of the seven in a two-county area, creating the need to counties. An at-large representative also sits find another organization for management on the Council. of the seven-county, 220-mile Loess Hills “There’s been a conscious effort to include Scenic Byway. people with a variety of backgrounds and A few years later, Golden Hills RC&D and different areas of expertise on the Council,” WITR were the catalyst for the creation of the said Shirley Frederiksen, Golden Hills RC&D Loess Hills Alliance, which was established to Coordinator. For example, the group includes be a regional voice for the seven-county area. a teacher, a naturalist, directors from economic Although the group had interests in the byway, development organizations, a convention and its focus became land use and stewardship visitor’s bureau, and an Iowa welcome center. issues. With a full agenda, the group did not In addition, a small business owner, a county have time for byway management. engineer, and a state forester lend their expertise to the Council. An organization whose primary focus was the byway was still needed. After attending the The DNR, IDOT, and the State Historical National Scenic Byways Workshop at Society appoint their own representatives to Washington, D.C., in June 2000, the RC&D the Loess Hills National Scenic Byway and WITR created a council whose mission Council. Other Council members, (including is “to provide a high quality experience to visi- the seven county representatives) are appoint- tors traveling the Loess Hills National Scenic ed for one-year renewable terms by the Byway.” Knowing the new council needed to be Western Iowa Tourism Region and Golden a workable size and still draw from different areas Hills RC&D. The RC&D and WITR issue of expertise, the founders opted for a 13-member invitations to serve on the Council and an invitation is viewed as a positive opportunity.
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CASE STUDY: Loess Hills
RC&D Coaches the Byway The Loess Hills National Scenic Byway Currently, the RC&D organizes and leads Council is growing into a strong, healthy the meetings. The Council plans to elect a byway organization. Within its first year, the chairman and apply for a 501(c)(3) IRS status. group has conducted a familiarization tour, Council members are volunteers and meet on updated the byway brochure, developed a a monthly schedule. Issues are usually talked coloring book, planned a successful dedication SINGLE GOVERNMENT ENTITY AT THE LEAD out and resolved through open discussion, event, and participated in strategic planning. often coming to general consensus. The administrative and organizational coaching from Golden Hills RC&D and Although the RC&D is providing technical WITR allow Council members the time assistance for initial direction to the Loess and opportunity to develop an effective Hills National Scenic Byway Council, the structure that will ensure their future and goal is for the Council to eventually direct its the future of the byway. It looks like the own projects and programs. The RC&D third time is the charm for the Loess Hills serves as the Council’s fiscal agent and will National Scenic Byway. probably continue in this capacity for the immediate future.
Byway volunteers often work side-by-side with staff members. Visitors to the Loess Hills Scenic Byway receive a warm welcome at the Harrison County Historical Village & Iowa Welcome Center.The facility serves as a museum, byway information center and gift shop. Greeters include (L to R): Kathy Dirks, Museum/Welcome Center Coordinator; Doris Sprout, Volunteer; and Wally Finken, Museum Staff Member.
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Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 12546 YOUR STRUCTURE:
CASE STUDY: Loess Hills
Note: Over 30 years ago, Congress established a By working together on local RC&D Councils, unique program within the U.S. Department of communities, all levels of government, and Agriculture (USDA) that empowered rural people grassroots organizations develop and implement to help themselves. USDA wanted to assist local solutions to widespread problems and create people by providing tools and technical support to opportunities that will help sustain rural
SINGLE GOVERNMENT ENTITY AT THE LEAD stabilize and grow their own communities while communities, local economies and natural protecting and developing natural resources. In resources. Currently, 348 local Resource return, local “Councils” provide local direction Conservation and Development Councils and planning and coordinate implementation of operate across America. specific projects within their boundaries. The focus on local direction and control has made the RC&D (Resource Conservation and Development) one of the Federal Government’s most successful rural development programs. RC&D encourages local residents to work together and plan how they can actively solve environmental, economic and social problems facing their communities.
The people of western Iowa get things done. Over three years, many groups, organizations, and individuals participated in planning and developing the Loess Hills Scenic Byway. An estimated 200 volunteers helped to chart the Loess Hills corridor management plan with assistance from state and regional agencies.
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Joint Powers Entity: Formal Government Partnership
joint powers entity is a formal way for government entities JOINT POWERS ENTITY A to work together. Joint powers entities are governed by state law and may be known by other names, such as joint powers agency, joint powers board, a compact, or a joint exercise of powers. The partnership brings a group of government agencies together to work towards a common purpose. This may reduce duplication of services, coordinate efforts across a geographic region or create an economy of scale that saves effort and money. In forming a joint powers entity, the participating entities transfer a measure of control over decisions and resources to the joint powers entity.
Popular Gooseberry Falls can be found along Minnesota’s Lake Superior All-American Road.The North Shore Management Board (NSMB), a multi-jurisdictional joint powers board, was a key partner in developing the byway’s corridor management plan. Today, an informal citizens group (Lake Superior All-American Road Planning Council) has been formed to implement the CMP.(Photo: Minnesota Office of Tourism)
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At a Glance: Joint Powers Entity The following chart will help you understand the benefits and limitations of a joint powers entity.
Joint Powers Entity
Basic Characteristics Limitations Benefits JOINT POWERS ENTITY Depending on individual • Individual government • Scope of power sharing state law and statutes: units give up a measure can be considerable. • Allows for the exercise of control. • Can hire staff and enter of power by one or • Usually cannot be into contracts. more government used to include non- units on behalf of governmental agencies. • Able to make decisions other participating across multiple government units. • State laws outline jurisdictions quickly. • Generally, exclusive to powers and limitations. government agencies. Not all states have enabling legislation. • Formal way for government bodies to join together in a board around a particular issue. • Joint powers entity decisions are binding for all involved entities. • A joint powers agreement defines the scope of power (when and how it can be exercised). • The joint powers entity is accountable as a public agency. • May create a separate legal entity. • Open meeting laws and public access to records apply.
128 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
Who Joins a Joint Powers Entity? A joint powers entity usually involves only public entities, such Joint Powers Entity as local government units (cities, towns, counties, etc.), school Agreement districts, political subdivisions, and state or federal agencies. This can be a drawback for byway organizations that want to Components include non-governmental public entities—perhaps convention and visitors bureaus, land trusts or other citizen organizations. Subject to the state laws governing the joint powers JOINT POWERS ENTITY Private groups and citizens can still be involved in the byway, entity, the agreement but they would have contracts, agreements or another secondary typically contains: relationship with the joint powers entity. • Purpose of the agreement A joint powers agreement can allow participating parties to act • Power that will be shared jointly or to act on behalf of the members. This might mean • Method to accomplish that one entity coordinates all of the wayside services, such as the stated purpose refuse removal, along the byway. It could also involve several • Termination criteria entities pooling funds to promote the byway. In this case, the joint powers entity, rather than the individual entities, would • Method for distributing (at termination) have control over those funds. the accumulated funds/resources Formal through Documentation You must check with your The foundation of a joint powers entity is a formal written state, as the laws related agreement. This document outlines the nature and extent of to joint powers entities the power-sharing agreement. It can be relatively simple or vary from state to state. quite detailed and comprehensive. Participating entities determine the method of decision making. They may opt for consensus or simple majority; often groups choose a combination of the two. State Authorization Required The joint powers entity can either be time-limited or indefinite, but this should be stipulated in the agreement. The formation of a joint powers entity must be authorized by your state. The limitations and powers of a joint powers entity vary from state to state; check applicable state law to know your state’s parameters. Not all states have enabling legislation. All general statutes and acts governing the formation of cooperative agreements apply to joint powers entities. #
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CASE STUDY: Edge of the Wilderness Edge of the Wilderness National Scenic Byway (Minnesota): Consolidating Leadership and Rural Resources
JOINT POWERS ENTITY ural communities have a long history of Town of Stokes and the Town of Marcell. The Rworking together to accomplish big tasks. population of the area, commonly referred to This is the way barns were raised, quilts were as the “Edge of the Wilderness,” is relatively sewn and crops were harvested. It still works sparse, with approximately 2,000 residents. that way in many parts of rural America. By The population increases in summer months pooling resources, small communities can when seasonal residents flock to numerous accomplish more, expand their services and area lakes. strengthen their political voice and influence. Although the Edge of the Wilderness This is the idea behind the Northern Itasca National Scenic Byway isn’t a joint powers Joint Powers Board (NIJPB), a consolidated entity, it owes its beginnings to one—the governing body that represents five local units Northern Itasca Joint Powers Board. of government in northeast Minnesota—the City of Bigfork, Town of Bigfork, City of Effie,
Edge of the Wilderness National Scenic Byway has cultivated positive relationships with local, state and national legislators and government officials.These individuals lend valuable support to byway initiatives. Here, Congressman James Oberstar releases a bald eagle during an Edge of the Wilderness dedication event. (Photo: John Bray, MnDOT)
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CASE STUDY: Edge of the Wilderness
The Cooperative Agreement Service convened a task force charged with To meet the growing needs of full-time and developing a corridor management plan for part-time residents, members of the NIJPB Highway 38. This is a busy route shared by signed a cooperative agreement in 1987. local residents, tourists and commercial traffic Their mission is to “retain the natural beauty such as frequent logging trucks. The Northern of the area while progressing to provide our Itasca Joint Powers Board represented JOINT POWERS ENTITY diverse population with opportunity, economic communities on the northern end of the viability, and a quality of life that will carry on route, while an ad hoc committee represented into future generations.” Board members are communities on the southern end. empowered to make specific decisions on This joint task force worked for months behalf of the communities that they represent. developing a corridor management plan. In this part of the state, Highway 38 courses During this process, they decided to nominate up and down and around curves—that’s part of Highway 38 as a scenic byway. The 47-mile its charm. Locals named it “Highway Loop-de- Edge of the Wilderness Scenic Byway received Loop” in the early days. The area is a rustic state scenic byway designation in 1994 and slice of Minnesota, with more than 1,000 lakes National Scenic Byway designation in 1996. nestled amid landscapes of remarkable natural In outlining the corridor management plan, beauty. There are still more trees than people the group also concluded that some type of here, offering classic north-woods seclusion. organization should be established to manage The Edge provides some of Minnesota’s most ongoing needs, issues and concerns within popular fishing, camping, trail, winter sports the byway corridor. Discussions led to the and resort opportunities. formation of a nonprofit 501(c)(4) organization to initiate and oversee activities In 1992, the Minnesota Department of along the byway, the Minnesota Highway 38 Transportation, the Minnesota Department of Leadership Board. A new byway organization Natural Resources and the USDA Forest was born.
“Some of the benefits of designation are hard to measure.There is a feeling of gratification when local people begin to realize their area is unique and special.It increases the level of pride and self-esteem.National designation has enhanced our status in the world.” Tarry Edington, Edge of the Wilderness Scenic Byway, Minnesota
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CASE STUDY: Edge of the Wilderness
The Byway Organization Today Integral Partnerships Today, the Minnesota Highway 38 Leadership Partnerships remain integral to the byway’s Board has over 100 voting members strengths. The organization works hard to representing a variety of entities and nurture positive relationships with key organizations, including Itasca County, agencies and leaders at all levels—local,
JOINT POWERS ENTITY townships and cities along the byway; regional, state and national. Because of this, state and county historical societies; local the group has accumulated an impressive list school districts; citizens-at-large; Minnesota of accomplishments: Timber Producers Association; retail and service businesses; lake associations; Edge • Finished an interpretive plan and installed of the Wilderness Business Association; interpretive panels along the byway. Edge of the Wilderness Lodging Association; • Created a Web page (www.scenicbyway.com) Grand Rapids Area Chamber of Commerce; that was designed and managed by local high Grand Rapids Convention and Visitors school students. Bureau; Bigfork Lions Club; and others. The Northern Itasca Joint Powers Board • Constructed an interpretive kiosk and park continues to be an important partner. in coordination with a new streetscape and bridge for Bigfork, a gateway community. At the annual meeting, the general Kiosks were also constructed in Grand membership elects nine directors to lead Rapids and Effie, with a future one scheduled and conduct the official business of the for Marcel. Leadership Board. The directors serve three- year terms. A President, Vice-president/ • Successfully support a paid byway coordinator President-elect, Secretary and Treasurer are position. This individual shares office space chosen from within the board of directors. at the USDA Forest Service Ranger Station. Board meetings are held once a month at various locations along the byway. The full • Programmed reconstruction of the entire membership is invited to attend quarterly byway to meet travel and safety needs while meetings. A clear, comprehensive set of bylaws maintaining and enhancing the byway’s spells out the processes and procedures that character. help this group run smoothly. • Created greater awareness of the byway through successful marketing, communication and public relations activities, such as community celebrations and dedication events.
• Raised funds for a variety of byway projects.
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CASE STUDY: Edge of the Wilderness
Most recently, the Leadership Board collaborated with the Itasca County Board Although the Edge of the Wilderness of Commissioners to place a one-year National Scenic Byway is not a joint powers entity, it owes its beginnings to one. moratorium on all new signage along the corridor. This will allow time to formulate a The Beginning of a plan to protect the integrity of the byway JOINT POWERS ENTITY and surrounding communities. It’s a good Byway Organization example of government and citizens working together. 1987 A joint powers Life has always been a little bit harder for agreement is signed, those folks who choose to make their homes creating the Northern Itasca Joint Powers along the Edge of the Wilderness. Even Board (NIJPB) in rural the most rugged individuals realize there northern Minnesota. 1992 are some things you can’t accomplish A task force is alone. It’s always been that way. Working formed to develop a corridor management together is an important way of life; in plan for Highway 38. fact, it’s a matter of survival in this neck NIJPB represents the of the woods. # 1994 northern end of the The task highway, while an ad force nominates hoc citizens group Highway 38 as a represents the Minnesota State southern end. Scenic Byway. 1996 The task force nominates Highway 38 as a National Scenic Byway. 1998 A nonprofit 501(c)(4) organization, the Minnesota Highway 38 Leadership Board, is created to manage the byway.
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Customized Organizational Structures:
CUSTOMIZED ORGANIZATIONAL STRUCTURES Finding the Perfect Fit
electing an organization model is a lot like hunting for the S perfect pair of shoes. For shoes, the secret is finding the ones that match your size, your style and your situation. While tennis shoes might be your neighbor’s choice, you may feel more comfortable in cowboy boots.
The same is true of organizations. There is no “one-size-fits- all.” The perfect organizational model is the one that fits your byway’s unique needs and goals. Choose the structure that is most comfortable for you.
Byway organizations have different beginnings. In 1990, a concerned group of citizens marched from Snoqualmie Pass to the Seattle waterfront to publicize the need to save forests and open spaces nearby. From that group of concerned activists, the nonprofit Mountains to Sound Greenway Trust was formed. Now a coalition of 68 people, the trust’s representatives include major landowners and managers along Interstate 90, foresters, business representatives, recreation groups, environmentalists and government agencies. In the first decade of the trust’s existence, over 80,000 acres of forest and park land have been placed into public ownership. Volunteers have planted trees, built trails and removed eroding logging roads along this 100-mile National Scenic Byway.
134 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
This guide introduced five basic types of organizational structures, from informal citizen groups to formal nonprofit corporations and joint powers boards—although there are many other ways to collaborate. Groups Tailor Their Structures Several different types of organizational structures have evolved to meet the needs of many different byway CUSTOMIZED ORGANIZATIONAL STRUCTURES organizations. There are as many ways of organizing groups as there are groups themselves. In the following pages, you’ll find additional case studies that illustrate new ways that grassroots organizations work together. Byway groups are finding creative solutions to meet their organizational needs. For example:
• Created by state legislation, the Creole Nature Trail (Louisiana) was established as a state agency, similar to a water or soil conservation district.
• Multi-state organizations have emerged to coordinate efforts and share resources on byways that run hundreds and thousands of miles, crossing state lines and boundaries.
• In southern Utah, rural communities are using technology to create a “virtual tourism community network.”
• In Ohio, fourteen byways have formed a collaborative organization focused on supporting and serving the needs of the byways within the state.
As your group grows and changes, so should your thinking about the group’s structure. When your size and needs change, it may be time to try on something new. This applies to shoes and it applies to organizations. Groups do not need to be attached to one structure forever. A group may start as an informal citizens group and eventually form a nonprofit corporation. A byway that is led by a government agency may add a nonprofit friends group. A nonprofit organization may become a partner in an interagency agreement. There’s an endless set of good options and arrangements.
Successful byway organizations find organizational structures that work. They find the perfect fit. #
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CASE STUDY: Creole Nature Trail
Creole Nature Trail National Scenic Byway District (Louisiana): Created by Legislation, Fueled by Pride
CUSTOMIZED ORGANIZATIONAL STRUCTURES fter a visit, you can easily understand why People who live in this part of the country are Athe Creole Nature Trail is affectionately intimately connected to the water. Shrimp dubbed “Louisiana’s Outback” and “America’s boats, oil tankers, offshore oil platforms and Last Great Wilderness.” The more than 180- freighters traveling up the Intracoastal Canal mile-long byway winds along bayous, marshes are common sights. Recreational fishermen are and the shore of the Gulf of Mexico. An often seen on the waterways along the route. overwhelming sense of water, wildlife and raw Life by the Gulf of Mexico also presents nature permeates the scenery. tremendous challenges, such as hurricanes. In fact, segments of the byway are official hurricane evacuation routes.
When the Louisiana legislature created the Creole Nature Trail National Scenic Byway District, it laid the foundation for a local byway organization that does an outstanding job. The group shares the region with the world, promoting colorful stories, beautiful natural surroundings and a rich Cajun and Creole culture reflected in the region’s food, music, dancing and place names. Birds are everywhere along the Trail. Birders flock here to see roseate spoonbills, spring warblers, Vermilion flycatchers, geese, ducks, pelicans and millions of songbirds migrating along the Central and Mississippi Flyways.
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CASE STUDY: Creole Nature Trail
The Formal Organization Begins Membership consists of: When legislation created the Creole Nature • Two representatives appointed by the Trail National Scenic Byway District in 1995, Calcasieu Parish Police Jury the state of Louisiana actually formalized an organization that had been promoting the • Three representatives appointed by the byway for more than twenty years. Early on, Cameron Parish Police Jury CUSTOMIZED ORGANIZATIONAL STRUCTURES local government bodies, tourist commissions, business organizations and interested citizens • One representative appointed by the recognized they could stimulate economic Cameron Parish Tourism Commission development and tourism by working • One representative appointed by the together to create and advance the Creole Department of Transportation Nature Trail. • One representative appointed by the Designated in 2002 as one of only 21 All- Calcasieu legislative delegation American Roads in the country, the trail was among the first 14 routes to receive a • One representative appointed by the National Scenic Byway designation in Southwest Louisiana Convention September 1996. It remains the only nation- & Visitors Bureau ally designated route in Louisiana. In addition to the formal board of The state legislation established a nine-mem- commissioners, a broad network of individuals, ber board of commissioners and outlined its organizations and federal agencies supports powers, duties and functions. As the byway’s the work of the Creole Nature Trail. For governing board, the Creole Nature Trail example, two National Wildlife Refuges National Scenic Byway District consists of and one State Wildlife Refuge and Game appointed leaders from Cameron and Preserve exist along the byway. These key Calcasieu Parishes (counties). stakeholders have contributed land and labor for byway pullouts and interpretive projects. The Cameron Parish Preservation Alliance is an asset to the trail. A current project involves restoration of the Sabine Pass Lighthouse, a historic landmark on a western byway spur.
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CASE STUDY: Creole Nature Trail
The unique legislation established the The legislation requires that meetings are District as a state agency, similar to a water announced with reasonable notice, and that a or soil conservation district. This gives the quorum (a majority of the board) must be District certain rights, powers and privileges. It present for any business to be transacted. also means the organization can act as its own District meetings are held quarterly, but the
CUSTOMIZED ORGANIZATIONAL STRUCTURES fiscal agent. The District also has the ability to executive committee meets monthly or tax; however, the board doubts there would be bimonthly. Commissioners are not compensated sufficient public support to get this on a ballot. for their time and service, but they can be The District is also legally responsible for its reimbursed for expenses they incur in carrying actions and decisions. out District duties.
District commissioners serve four-year terms. It’s a formal structure that provides The nine commissioners vote to elect a board organizational stability and continuity. For chairman and vice-chairman. The District example, if a commissioner resigns, there is a works on a wide range of issues to implement defined process to appoint a successor. The its corridor management plan, including public state legislation laid out a framework that participation, intrinsic quality management, ensures an ongoing byway organization. marketing, highway design and maintenance standards, interpretation, fundraising, visitor Funding and Financing services and partnerships. Sub-committees Like most byway organizations, the Creole allow members to participate in their areas Nature Trail Scenic Byway District must of expertise. find funding and resources to accomplish its goals. The District does not receive state funding, but it has successfully secured a Empowered Leadership number of grants. The match for the grants was provided by the parish police juries The Creole Nature Trail Scenic District, because of (county commissions) and the Southwest state legislation, can: Louisiana Convention & Visitors Bureau (1) Enter into written contracts and agreements (SWLACVB). (2) Hire employees (3) Sue and be sued (though neither has The SWLACVB is a longtime supporter happened to-date) of the trail. Because this group views the (4) Receive contributions, donations, grants and District’s mission as compatible with its own, money from public and private sources the SWLACVB has provided significant financial and administrative contributions. The SWLACVB Executive Director is an active byway proponent, and her staff members frequently assist with byway projects.
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CASE STUDY: Creole Nature Trail
One SWLACVB staff member devotes more Although the State of Louisiana created the than half of her time to help the District. Creole Nature Trail National Scenic Byway District, there are elements that Financial sustainability is an important legislation cannot mandate. They include the issue. The District is in the final stages of enthusiasm, commitment, and dedication of creating a “Friends Group” (a nonprofit
those folks involved with the byway. The CUSTOMIZED ORGANIZATIONAL STRUCTURES organization), whose primary function will local byway organization does an outstanding be fundraising. The Friends Group will be job sharing the region’s best: colorful stories, able to accept tax-deductible donations from beautiful natural surroundings, and a rich individuals and industries, such as the large Cajun and Creole culture that is reflected petrochemical companies along the byway. in the region’s food, music, dancing and Money raised will be used as matching funds place names. for grants and other corridor projects. The District will retain all management authority Certainly, community pride and southern for the Creole Nature Trail. hospitality now fuel the legally developed organizational structure. #
A distinctive landmark on the western spur of the Creole Nature Trail is the 85-foot tall Sabine Pass Lighthouse, which guided vessels for over 95 years (1857-1952). Over the years, ownership of the lighthouse passed from hand to hand.Today it is privately owned. Hurricanes, tides, vandals and neglect have taken their toll on the historic property, but thanks to a newly formed group, the Cameron Preservation Alliance, restoration efforts are underway.The current owners have agreed to give the Alliance a long-term lease on the lighthouse property so that it can be properly restored. Monte Hurley (center), Chairman of the Creole Nature Trail National Scenic Byway District, stands with the driving force behind the preservation efforts—sisters Hilda Crane (left) and Carolyn Thibodeaux (right).
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 139 YOUR STRUCTURE:
Multi-State Organizations: Finding Ways to Work Together
CUSTOMIZED ORGANIZATIONAL STRUCTURES y their very nature, byways present significant organizational Bchallenges. These lengthy corridors seem to ignore neatly laid out political and jurisdictional boundaries like property lines, city limits, county lines, state borders and federal land zones. Groups that don’t normally work together may find themselves sitting around a conference table to discuss a byway project.
Some routes are hundreds, and even thousands, of miles long. For example, Route 66, The Mother Road, started in Chicago and ran 2,448 miles across eight states before terminating at a pier in Santa Monica, California. Today, the New Mexico segment of Route 66 is a nationally designated scenic byway.
Helping visitors find their way is an important byway issue.These logo signs point the way along three multi-state routes.
140 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
On these “long haul” routes, it requires extra effort to coordinate activities across state lines. Committee members may be spread out over a three-, six- or ten-state area. Byway representatives must often travel long distances to attend a meeting. Consequently, face-to-face communication is limited. Still, funding and fiscal management must be agreed on. It takes creative solutions to overcome the logistical challenges.
It also takes a great deal of creativity, flexibility and commitment CUSTOMIZED ORGANIZATIONAL STRUCTURES to overcome interpersonal challenges. People must be able to set aside local interests and loyalties to work on large-scale multi-state initiatives. It’s important to have a broad-based regional mindset.
Despite the obstacles, there are significant benefits. Multi-state organizations are finding ways to share information, maximize resources and create a more seamless travel experience for byway visitors.
The Historic National Road Alliance Covers Six States In 1806, President Thomas Jefferson signed legislation to build the nation’s first interstate highway linking the eastern seaboard with the western frontier. Known as the National Road, the highway traversed six states. The Road carried people, mail and goods, speeding development and commnication across the country. People flooded the highway, bringing their customs, languages, building styles, religions and farming practices. Today, National Road communities reflect the cultural diversity of those who chose to make their homes along this historic transportation corridor. Mile-markers, tollhouses, historic inns, stone bridges and segments of bricked road remain tangible vestiges of the past.
The Historic National Road Alliance, a 501(c)(3) nonprofit membership organization, works to preserve, protect and interpret the National Road heritage. The organization is incorporated through the State of Indiana, and the Historic Landmarks Foundation of Indiana (Eastern Regional Office) provides a home address for the group.
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The Alliance Board of Directors is comprised of 18 members, with three representatives from each of the Historic National Road states: Maryland, Pennsylvania, West Virginia, Ohio, Indiana and Illinois. The Alliance meets quarterly and holds a biennial conference. Individual states have developed their own management plans and management entities, which vary from state to state in structure and function. CUSTOMIZED ORGANIZATIONAL STRUCTURES Glenn Harper, (former) president of the Historic National Road Alliance (Ohio Historic Preservation office), explained, “One of the things that’s unique about this organization is that we recognize up front that each state is doing its own thing and is heavily involved in all kinds of activities related to the Historic National Road in their own states. The important thing about the Alliance is that we can come together and we can talk about our common interests, our common goals and objectives. We can share experiences and knowledge about activities in each of those states.”
In 2002, the six-state Historic National Road was designated as an All-American Road. Currently, the Historic National Road Alliance is working to (1) create a single identifying route marking sign/logo for all six states, and (2) coordinate interpretive efforts to tell a unified story of this historic road.
The Historic National Road Alliance works together to create a seamless travel experience across a six-state corridor.
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Ohio River Scenic Byway Touches Three States The Ohio River Scenic Byway at times hugs the river, then twists and turns its way past cypress swamps and scenic overlooks, archaeological sites and stately mansions. It’s an area rich in history. Prehistoric people built towns here. Settlers used it as a primary way west. The steamboat made it the center of transportation and the industrial revolution. CUSTOMIZED ORGANIZATIONAL STRUCTURES Before the Civil War, the River was an important boundary between slave and free-states, and the Underground Railroad was active to help African-Americans find safe passage to the North. In this century, the Ohio River transports the region’s coal and provides extensive outdoor recreational activities.
In a unique partnership, three byway organizations from three different states joined together to provide information and resources to help visitors enjoy this 942-mile route. Early on, Ohio, Indiana, and Illinois recognized the potential benefits of cooperating on specific projects.
Byway representatives coordinate marketing, interpretation, and signage along the three-state Ohio River Scenic Byway.
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 143 YOUR STRUCTURE:
Long-Distance Success Working on a byway committee that is geographically dispersed is a challenge. It’s not easy, but you can develop relationships and accomplish goals when your group is spread over long distances. How can you communicate, coordinate efforts and succeed?
1. Compile a complete committee roster with 9. Realize that work coordinated over long names and contact information. Keep it current. distances takes more time. Plan for this when CUSTOMIZED ORGANIZATIONAL STRUCTURES 2. Set clear, realistic goals. Focus on one or two you set deadlines. key goals for the year. 10.When possible, meet in a central location or 3. Write down your goals and work plans. Provide rotate meeting locations. copies to all committee members. 11. If you can’t meet in-person, explore videocon- 4. Communicate.Take time to schedule phone ference options. Some local universities or units appointments with other committee members. of government may have equipment available. Don’t leave communication to chance. 12. Use technology to your advantage. Consider 5. Hold regular committee conference calls. on-line collaboration tools, such as a Schedule them in advance and provide a discussion forum. meeting agenda before the call. 13. Put faces with names. Have a group photo 6. After a conference call, send follow-up messages taken and give people a copy for their desks and meeting notes. or bulletin boards. 7. Use e-mail, fax and voice mail, but don’t rely 14.Talk about how your committee is functioning. on them for all communications. Keep in touch Discuss ways to improve communication by phone. and coordination. 8. Send regular updates to other committee 15. Share success. Find ways to celebrate and members, including progress reports. publicize the group’s accomplishments.
The Ohio River Scenic Byway has broken new ground. It’s the first multi-state effort to develop uniform marketing and interpretive plans, as well as uniform signage. The states worked together to submit grant applications for three multi-state projects. When funding was awarded, multi-state committees were formed and each state signed up to take the lead on a project. One state is taking the lead on signage, another on marketing, and another on interpretation.
Although it’s an informal arrangement, it’s working. And there are clear benefits for both the individual byway organizations and the travelers.
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Mississippi River Parkway Commission Traverses Ten States From head to toe, it stretches 2,552 miles. The Mississippi River winds its way from Minnesota to the Gulf of Mexico in Louisiana, crisscrossing ten states. Paralleling this historic river is the Great River Road, one of the oldest, longest and most unique scenic drives in North America. CUSTOMIZED ORGANIZATIONAL STRUCTURES
Formed in 1938, the Mississippi River Parkway Commission (MRPC) is a multi-state organization that works collectively to preserve, promote and enhance resources of the Mississippi River Valley and to develop the highways and amenities of the Great River Road. The National MPRC acts as an umbrella organization that ties together all ten of the Mississippi River states: Arkansas, Illinois, Iowa, Kentucky, Louisiana, Minnesota, Mississippi, Missouri, Tennessee and Wisconsin.
Each state has its own separate commission established by state statute or Governor’s Executive Order. Membership consists of state legislators, state and local officials, and general members appointed by the governor or state agency directors of the individual state.
The Mississippi River Parkway Commission helps to synchronize efforts along the ten-state Great River Road.
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The National MRPC Board of Directors includes the chairs of the individual commissions. The National MRPC Chair is known as “The Pilot” and is elected by the general membership each year.
The general membership of the National MRPC, a 501(c)(3) nonprofit corporation, gathers twice
CUSTOMIZED ORGANIZATIONAL STRUCTURES each year at the annual and mid-winter meetings. In between, six Technical Committees keep working: Transportation, Promotion, Historical/ Archeological/Cultural, Environmental/Recreation, Economic and Community Development, and Agriculture. Participation in these committees is open to both MRPC members and non-member advisors.
It’s a mature multi-state organization with a long list of accomplishments. The MRPC has successfully coordinated efforts on federal, state and local levels to leverage dollars for highway improvements, recreation trails, bikeways, scenic overlooks and historic preservation. The MRPC also promotes both domestic and international marketing, and facilitates efforts to enhance economic development and resource awareness. #
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CASE STUDY: Utah Highways 191 & 163 Utah Highways 191 and 163: Creating a Community of Communities
recarious population and employment income. However, San Juan County’s wages, Plevels threaten small rural communities payrolls and per capita income has been stable CUSTOMIZED ORGANIZATIONAL STRUCTURES throughout the country. Many of these or declining during the past few years. Another communities look to tourism as part of indicator of economic growth, new dwelling economic development plans. However, units, shows a decline in both counties. communities located in the same geographical area often compete for tourist dollars. The Utah State University research, According to Utah State University professors “Developing Virtual Tourism Community David L. Rogers and Stephen W. Clyde, the Networks,” assesses ways of creating a “sense solution probably lies in inter-community of community” among these economically collaboration when the tourism efforts focus on challenged communities. The study also a region as well as specific towns or attractions. explores the impact of marketing an entire byway as a single destination point. The The professors are studying community professors believe that when communities cooperation along Utah Highways 191 and work together, the overall tourism efforts 163 from Moab in the north to Monument increase the benefits for all the communities Valley in the south. They established economic as well as each individual place. data as benchmarks for two of the counties. Between 1997 and 1998, Grand County saw a slight increase in wages, payrolls and per capita
In southeast Utah, communities are looking for ways to collaborate, rather than compete, for tourist dollars. They have developed a “community of communities” to reach out to tourists through a cohesive regional approach, instead of as segmented cities and towns. Mountain bikers flock to the Slickrock Bike Trail, just east of Moab.This premier trail brings riders through rugged redrock terrain. A short practice loop will whet your appetite for the main course—experts only. (Photo: Angel Crane)
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CASE STUDY: Utah Highways 191 & 163
Two Approaches Probable Benefits, Developing a “community of communities” Potential Challenges incorporates two approaches: Like other teams or cooperative organizations, byway communities working collaboratively 1. Develop a tourism association. can realize greater results than what one
CUSTOMIZED ORGANIZATIONAL STRUCTURES individual or one group could achieve. 2. Use electronic information applications Collaboration allows communities to reduce to create a “virtual community” their individual tourism costs, from purchasing that parallels and complements supplies to implementing marketing tactics. the association. Collaborating communities can also increase The professors suggest that the tourism their effectiveness in lobbying for state and association, founded with a grassroots federal funds, further enhancing the economic perspective, can meld the various communities dividends of their efforts. into one marketable community package. Each of these cities and towns possesses a Appealing to tourists through a cohesive local identity and pride that enhances the regional presentation rather than a segmented community’s unique character and charm. approach holds promise for individual cities The same independence brings certain and towns in the area. challenges. Who has control? Where are The researchers have also begun to adapt the boundaries? How do the groups share electronic information applications currently responsibilities? How do they reap the available via the federally funded National benefits individually? The professors hope Scenic Byways Program (http://www.byways.org). their continued research will identify They also are reviewing other formats specific challenges and offer suggestions under development. from both “grassroots association” and “virtual” perspectives. #
Community Collaboration Potential Cost Reductions Working together, communities can reduce their individual tourism costs, including:
• Purchasing • Insurance • Marketing • Emergency and medical equipment
148 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
CASE STUDY: Ohio Byway Links Ohio Byway Links: Connecting for Success
n organizational model unique among In 1999, Ohio Byway Links was a fledgling
Astate scenic byway programs, Ohio Byway organization with a big goal of trying to help CUSTOMIZED ORGANIZATIONAL STRUCTURES Links represents a collaboration of Ohio’s Ohio’s byways and a tiny budget that was fourteen current byways. The group focuses on “collected by passing the hat.” Today, the supporting and serving the needs of the state’s organization manages nearly $500,000 in byways. It extends and enhances the work of program dollars. Ohio’s Department of Transportation. As a nonprofit educational 501(c)(3) founda- Paul Staley, Ohio State Scenic Byway tion, the group has accepted tax-deductible Coordinator, said, “Ohio’s Scenic Byways is a donations from businesses, individuals and trust grassroots-driven program that enables the accounts. The group is working on statewide traveling public to experience the many efforts to accept additional dollars to expand diverse historic, scenic, cultural, natural, programming and enhancement efforts. recreational and archaeological assets the great state of Ohio has to offer. The pride Instead of competing for funding sources, the communities exhibit and the many partnerships byways take advantage of cooperative funding that have been created, especially Ohio Byway opportunities. For example, it would be Links, have made a major impact on Ohio’s counterproductive for five individual byway Scenic Byways.” organizations in any one year to compete for a small pool of Ohio Arts Council funding. If the byways combine their project goals under the statewide Ohio Byway Links organization and initiate a five-byway collaborative application, each byway increases its potential for funding success.
Ohio Byways are highlighted in an interactive traveling display that has been exhibited at local fairs and festivals, the Ohio State Fair and the National Scenic Byways Conference.
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CASE STUDY: Ohio Byway Links
Ohio Byway Links meets twice a year As Ohio Byway Links has taken on more (spring and fall) along different byways and more projects, the group realized it was across the state. Sharon Strouse, Ohio State time to expand the leadership ranks from University Extension and Amish Country the current four (president, vice president, Byway contact, ensures that there is an treasurer and secretary). The officer
CUSTOMIZED ORGANIZATIONAL STRUCTURES educational component in every meeting. corps was increased with four regional In 2002, the focus was on interpretation. representatives at the fall 2002 meeting “Our Ohio byways have resources all held in Maumee. They will be responsible along their corridors rich in interpretive for Ohio Byways’ Communications, Public opportunities,” said Strouse. “On the brink Relations and Education/Programs within of Ohio’s Bicentennial, our organization their areas of the state. has offered educational experiences and resources to byway members and organiza- Ken Baldwin, Heritage Corridors of Bath tions to improve our understanding of the representative, is a founding member of importance of ‘interpreting your byway.’ Ohio Byway Links. Baldwin explained, It is our responsibility as byway managers to “Before Ohio Byway Links, grassroots Ohio provide access to diverse activities offering byway organizations were independent in education and skill development for a wide their local communities. Everyone was doing range of audience members.” good work, but lacked a forum to share and communicate with each other. One of the greatest benefits has been the opportunity to share our successes and failures. We’ve learned a lot and made some great friends along the way.”
Wonderful people are the lifeblood of the Ohio Byway Links, an advocacy network for the state’s 14 scenic byways.
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150 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
CASE STUDY: Ohio Byway Links
One of the organization’s strengths has • Increased public awareness of the byway been its ability to build partnerships. Active through media contacts with newspapers, partners include the Ohio Department of magazines and radio. Transportation, Ohio Department of Travel and Tourism, Scenic Ohio, the Ohio •Printed a newsletter that is distributed to over 1,000 people and agencies.
Chapter of the Automobile Association of CUSTOMIZED ORGANIZATIONAL STRUCTURES America (AAA), Model T Ford Club • Participated in a landscape aesthetics project International, and Ohio State University partnership with The Ohio Arts Council Extension. The group has worked hard to nur- and Scenic Ohio. ture positive relationships with key agencies and leaders at all levels—local, regional, state, • Created an Ohio Scenic Byway slide and national. The results are evident in an presentation and script for all 14 impressive list of accomplishments: Ohio byways.
• Drafted a constitution and bylaws and • Secured a scenic byways grant for a obtained nonprofit 501(c)(3) status. statewide marketing plan.
• Published an award-winning Ohio Byway Ohio Byway Links has found a formula that Links map and brochure. works—a clear purpose, dedicated people, strong partners and a passion for the state’s • Designed “A Sunday Drive Anyday” roads and special places. # traveling interactive display for use by byways, libraries, museums and interested communities.
“Before Ohio Byway Links, grassroots Ohio byway organizations were independent in their local communities. Everyone was doing good work, but lacked a forum to share and communicate with each other.” Ken Baldwin, Heritage Corridors of Bath representative
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 15146 YOUR STRUCTURE:
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Suggested Actions: ❐ Define your byway’s current organizational structure. Review the chart in Appendix A.
❐ List your organization’s strengths and weaknesses. Discuss ways to maximize your byway’s opportunities and minimize threats.
❐ Evaluate your organizational structure to determine if it is working for you. SUGGESTED ACTIONS ❐ Brainstorm ways to strengthen your byway organization.
❐ Talk with other byways to learn about their organizational structures.
❐ Look for models of organizational structures within your community.
❐ Schedule a “peer-to-peer” exchange with another byway organization. Learn from each other. Created by America’s Byways Resource Center Resource Byways America’s by Created
152 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE:
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References: Building Effective Nonprofit Boards BoardSource (Formerly the National Center for Nonprofit Boards), www.boardsource.org.
Starting and Running a Nonprofit Organization Joan M. Hummel, University of Minnesota Press, 1996.
Tax Information for Charities and Other Nonprofits REFERENCES Internal Revenue Service, http://irs.gov.
Information for and about Nonprofits The Internet Nonprofit Center, http://nonprofits.org/.
Developing Virtual Tourism Community Networks David L. Rogers and Stephen W. Clyde, Utah State University.
The Five Stages of Nonprofit Organizations: Where You Are, Where You’re Going and What to Expect When You Get There Judith Sharken Simon and J. Terence Donovan, Amherst H. Wilder Foundation, 2001. Notes: Created by America’s Byways Resource Center Resource Byways America’s by Created
Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 15346 YOUR STRUCTURE
154 Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations