YOUR STRUCTURE Photo Captions: 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 regionÕs historic and scenic character. In 1995, the National Trust for Historic Preservation listed the Ashley River Historic District as one of the ÒMost Endangered Places.Ó 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. Types of Organizational Structures: Several Models Work for Byways What do scenic byways have in common with lemonade stands and Egyptian pyramids? Each requires some level of organization. Of course, most eight-year-olds can get a roadside beverage enterprise up and running in a matter of hours while the pyramids took lifetimes to create. Still, the key is finding the structure that serves you without getting in your way. The same can be said of assembling a byway organization. Fortunately, you donÕt need to study lemonade stands or pyramids to successfully create a byway organization. In fact, there are several basic organizational models that can be personalized to fit most byway situations. Each model has its own characteristics, strengths and limitations. Choosing the Right Organization for You There are many valid forms of organization for byways. In fact, there may be more than one structure that will meet your 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 Òpurebreds.Ó Most groups are Òhybrids;Ó 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 Òwork in progress.Ó Every so often, itÕs a good idea to evaluate your organizational structure to make sure it is working for you. TIP! Keep the Law on Your Side As you evaluate your organizationÕs structure and recruit volunteers, it is very important to inform volunteers of any legal risk or liability they assume in associating with your organization and the actions they should take to avoid liability. (See Appendix B.) YOUR STRUCTURE: TYPES OF ORGANIZATIONAL STRUCTURES Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations Common Structures Organizational Models A. Citizen Group The simplest model is the citizenÕs group, a collection of community members or concerned citizens who gather together to accomplish a goal. B. Nonprofit Organization An individual organization, usually a nonprofit corporation, is also made up of private citizens, though the act of becoming a legal organization carries specific requirements, benefits and obligations. C. Cooperative Agreement This is an agreement between organizations interested in working together in a relatively formal manner. D. Government Agency as Lead Another fairly simple format is when a single government entity agrees to be the lead agency for the group, allowing the group to utilize its legal status and administrative structure. E. Joint Powers Entity An organization made up of governments that can include public entities such as municipalities, the USDA Forest Service and the State Department of Transportation. F. Customized Structure An organizational hybrid created to meet unique byway needs. How Much Formality? If non-governmental entities (citizens and private organizations) are the primary members of the group, then decide how formal an organizational structure needs to be. If you are just starting to pursue byway designation, you may not need a very formal organization and may do fine with some well-organized and committed individuals. If you have secured designation and are now looking to implement a corridor management plan that will impact a variety of communities, the effort it takes to create a formal organization is probably well worth the effort. Remember, an organizational structure should meet the needs and goals of the individual byway group. Strength does not always flow from structure if the structure is not right for the organization. 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. "Far and away the best prize life offers is the chance to work hard at work worth doing.Ó Theodore Roosevelt TIP! Organizational Growing Pains Organizations move through life cycles, just as people do. Author Judith Sharken Simon has identified Ò5 Life Stages of Nonprofit OrganizationsÓ: Stage One: Imagine and Inspire (ÒCan the dream be realized?Ó) Stage Two: Found and Frame (ÒHow are we going to pull this off?Ó) Stage Three: Ground and Grow (ÒHow can we build this to be viable?Ó) Stage Four: Produce and Sustain (ÒHow can the momentum be sustained?Ó) Stage Five: Review and Renew (ÒWhat do we need to redesign?Ó) It may be helpful to recognize your bywayÕs stage of development. Are Government Agencies Involved? A single governmental agency may take leadership responsibility for the byway. This can often be a very simple arrangement, 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 representatives of government entities, then it may be worth forming a joint powers entity. This is a formal way for government agencies to work cooperatively through the formation of a joint, yet separate entity. This new organizationÑthe joint powers entityÑallows participating members to transfer authority to the joint powers entity for specific roles or services. Doing so can reduce duplication of services and increase continuity. If not all of the primary players are government entities and/or you donÕt need or want to transfer authority, then a cooperative agreement (also called a memorandum of understanding or interagency agreement) may be the answer. Cooperative agreements can involve public (government) and/or private entities. A cooperative agreement outlines how two or more entities will relate in a particular setting.  COPY AND DISTRIBUTE Key Organizational Questions Keep these questions in mind as you select among organizational structures. ¥ WHAT is your bywayÕs purpose? What organizational structures will best meet your needs? ¥ 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? Created by AmericaÕs Byways Resource Center COPY AND DISTRIBUTE Key Organizational Questions (continued) ¥ WHAT are your funding sources? Federal? State? Local? Private? Corporate? Individual? ¥ HOW will finances be handled? Fiscal agent? Incorporation? ¥ WHAT needs are not being met by your current organizational structure? Created by AmericaÕs Byways Resource Center YOUR STRUCTURE: WHICH ONEÕS FOR YOU? Which OneÕs for You? A Closer Look This section of the manual, ÒYour Structure,Ó focuses on these organizational structures. YouÕll learn about the basic characteristics of each structure, its advantages and disadvantages, and read case studies from AmericaÕs Byways: 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 (NewYork) 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 YOUR STRUCTURE: CITIZEN GROUP Start Simple: Citizen Groups Focus on Results Looking for a way to get a group up and running quickly? 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. At a Glance: Citizen Groups The following chart will help you understand the benefits and limitations of citizen groups. Citizen Group Basic Characteristics * Often the first phase in group formation. * Group members set direction and activities. * May have bylaws, elected officers and an organizational structure, but lacks legal protection. Limitations * Not required to have bylaws, which can create a lack of structure and clarity in decision making/authority. * Members are personally liable for organizational actions. Benefits * SImple to create * Can be a group made up of a wide variety of individuals and organizations * Has the ability to move quickly to get things done. Citizen Group with Outside Fiscal Agent Basic Characteristics * Fiscal agent takes responsibility that funds are received and accounted for/spent properly Limitations * Cannot hire staff except through a fiscal agent or another agency Benefits * Can utilize another organization's expertise and status in financial matters TIP! Legal Structure Creates Legal Protection Over time, many citizen groups do adopt team rules, develop bylaws, elect officers and create organizational procedures. However, without taking steps to form a legal structure, you may not have legal protection. Simplicity Allows Sharper Focus Citizen groups, as this generic name suggests, are fairly simple in design. The key component is a committed team of citizens sufficiently organized to carry out some function. Citizen groups can be started much easier and more quickly than forming a legal organizational structure. They require no bylaws, operate with less formality and require less paperwork. This structure often works well as a group initially forms. It allows a group to focus on its goal, build momentum and attract interest in its activity. It may become a jumping-off point for developing a more formal organization down the road; however, some groups work effectively within this structure for many years. 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. Partnering with a Fiscal Agent Many citizen groups minimize these limitations by obtaining financial and administrative assistance from an outside fiscal agent (or fiscal sponsor). A fiscal agent is an organization that agrees to accept and be responsible for monies on your behalf. Byways often contract with a fiscal agent that acts as the financial department for the group. The fiscal agent receives funds, dispenses payments and tracks how the money is spent. It is common for byway groups to ask a local government jurisdiction, such as a city or county, to assist them in this capacity. These local governments will usually agree as they have an active or vested interest in the success of the byway. The fiscal agent assumes responsibility and liability for financial matters, including the responsibility of ensuring that funds are used appropriately. Trust is essential. Importantly, the group 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. The Fiscal Agent's Tasks Depending on the contract, the fiscal agent may: * Perform administrative services * Receive funds and dispense payments * Track how the money is spent * Prepare financial reports * Accept grant funds 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 * 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. CASE STUDY: Native American Native American Scenic Byway (South Dakota): Committed to Okiciapiye Ð Helping Each Other The Native American Scenic Byway is a 101-mile route running through the Crow Creek and Lower Brule Sioux Indian Reservations in South Dakota. In many ways, the byway organization parallels the surrounding landscapeÑuncomplicated, open and unbuilt. The road stays close to the Missouri River, with glimpses of prolific birdlife, prairie dogs and reintroduced buffalo. An ancient story unfolds through cultural, historical and archaeological sites located along the byway. Lewis and Clark were among the early visitors. With non-stop prairie vistas, it is easy to imagine the rich indigenous and historic legacy of this land. An important goal of the byway is to provide learning opportunities about native peoples and respect for the environment. Starting to Work Together In November 2000, a meeting was held to discuss organizational structure. The initial group included tribal members, the Bureau of Indian Affairs, local businesses, local development organizations, chambers of commerce, the convention and visitors bureau, town boards, the historical society, a museum, the Dakota Indian Foundation, the State Department of Transportation, State Tourism, the Army Corps of Engineers, and the South Dakota Department of Game, Fish and Parks. Byway organizers realized some key partners were missing. The group decided to expand the network to include county commissioners, RC&D's (Resource Conservation and Development), the Great Lakes Association, 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 okiciapiyeÑmeaning 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 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 combine resources To jointly and consistently interpret the themes of the byway To provide resources for educating the public and to raise awareness of Indian culture and the history of central South Dakota To become an instrument of reconciliation between the tribes and non-Indians, resulting in improved cohesiveness To work at providing infrastructure affecting the byway (e.g. cellular phone deadspots) To collaborate on environmental issues as a force for preservation of resources along the byway To combine efforts in marketing the byway To track visitation along the byway To plan for the Lewis and Clark Bicentennial, expected to bring many additional visitors to the area To conduct joint long-range development planning To foster the involvement of all communities along the byway 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. Case Study continued on next page CASE STUDY: Native American Defining the Group What type of group? Participants decided that their organization would follow some of these basic principles: (1) financial considerations and ability of certain types of groups to handle money; (2) respect for tribal sovereignty; (3) maintaining the traditional principle of okiciapiyeÑmeaning helping each other; (4) multi-jurisdictional concerns related to law enforcement, emergency medical situations, and hunting and fishing; and (5) flexibility to operate both on a site-specific basis as well as on matters related to the byway at large. Success so Far After evaluating several structural options, members decided to operate for the time-being as an informal citizen's group, with the Bureau of Indian Affairs serving as the fiscal agent. There would be no dues structure, but membership enrollment would come with a non-cash commitment such as erecting and caring for a wayside exhibit, or joint marketing. The group valued the open communication and informal cooperative arrangements that were part of their informal (and effective) structureÑ and it's working just fine for this byway organization. Note: Without losing the informality of their organization, the group has recently incorporated as a 501(c)(3) nonprofit, in order to become eligible for certain grant programs. Lakota, Dakota and Nakota tribes have been hosting visitors to their lands for centuries. Today, the tribes welcome travelers at the ÒCircle of TipisÓ 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) CASE STUDY: Lincoln Highway The Lincoln Highway (Illinois): Formalizing A Citizens' Organization People come from near and far to study its historic pavement. Conceived in 1913, the Lincoln Highway was the first paved transcontinental highway built in the United States. It connects the east and west coasts, extending 3,389 miles across thirteen states, with Illinois in the middle. Known as ÒMain Street of America,Ó the 179-mile highway segment in Illinois connects 32 Illinois communities in eight counties. The road also literally serves as one of the Òmain streetsÓ for many of the communities it passes through, including five Illinois Main Street communities and several other downtowns. The byway organization can trace its roots to people whose focus was the highway itself, including the pavement and the original road alignment. In fact, advocates have been studying the route for decades. Along the way, individuals with other interestsÑtourism, history, preservation and economic developmentÑ were attracted to initiatives involving the road. When 20 to 30 people with diverse interests started showing up at the informal monthly meetings, the group's focus began to expand beyond the pavement. Members began to look at the structures and treasures on and around the highway, as well as the communities it runs through. Just outside Malta, Illinois, you'll find the first paved Òseedling mileÓ 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) Case Study continued on next page CASE STUDY: Lincoln Highway Organizational Evolution The present group that would become the Illinois Lincoln Highway Coalition began coalescing in 1997, initially to pursue designation as a state heritage tourism demonstration project. Since then, the group has evolved into a stable organization with approximately 40 core members representing tourism partners, historical societies, chambers of commerce, Main Street organizations, municipalities, state agencies and citizens interested in the highway. The mailing list includes some 300 interested agencies, individuals, businesses and organizations. As the group continued to grow, members felt a need to formalize their structure. Ray Keller, Illinois Lincoln Highway Coalition chair and city planner explained, ÒAs we got further along and had more projects in the works, we thought it would be best to formalize the organization.Ó ÒWe needed to have some kind of organization that existed somewhere other than in our own minds. It became important to actually Ôbe 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.Ó In 1999, the group formally established the Illinois Lincoln Highway Coalition by electing a Board of Representatives and adopting bylaws and a strategic plan. Individuals are elected to serve three-year terms (staggered) on the 15-member board, with the board chair appointed every year. Although the bylaws don't explicitly require a diverse board, the membership includes a wide range of geographic and professional interests each year. The group also attempts to maintain that balance as openings occur. Representatives from the Lincoln Highway Association, a national organization interested in the history of the road, and from the Illinois Department of Transportation districts, without whom this effort would not have succeeded, serve as ex-officio members to the Board. Decision making is a process that involves everyone who attends the meetings. There is open discussion, consensus and usually general agreement. The board serves as a decision-making mechanism only when the larger group in attendance fails to come to consensus on an issue. Case Study continued on next page Designation Cooperation The Illinois Lincoln Highway Coalition has recently been incorporated as an independent business entity and has filed for nonprofit status. This allows the Coalition to accept funding directly from the State, rather than through a third-party fiscal agent, and to provide its board members an extra layer of liability protection. To complement the tools available through the corridor's National Scenic Byway designation, the Coalition also secured designation of the corridor as an Illinois Heritage Tourism Demonstration Project in December 2000. With access to the grants and technical assistance associated with both designations, the Coalition has been quick to take advantage of the resources available to establish a toll-free telephone hotline and an interactive Web site, and to publish a new corridor map. One of the Coalition's major accomplishments in recent years was the completion of its business plan, developed with expert assistance over a 12 month period. Among the principle elements included in the document, the business plan outlines strategies for product development, marketing initiatives and managing the byway designation. The plan also identifies strategies for ensuring the long-term fiscal sustainability of the group's efforts, particularly focusing on needs and resources to be secured after the fifth and final year of FHWA byway administration funds. As the organization matures and the number and sophistication of its activities grow, the business plan includes strategies for transitioning the organization from being led by a ÒworkingÓ board, made up of volunteer board members that also act as staff, to a ÒgoverningÓ board, which will predominantly focus on policy development and building relationships with other organizations. To begin this process, the Coalition recently contracted with the Northern Illinois Tourism Development Office, which has been providing informal though extensive support to the effort, to provide dedicated part-time staff to serve as the Coalition's executive director, project coordinator, and sales manager. Over the next three to five years, the roles and responsibilities of the board members and the staff will crystallize into an organizational structure that they collectively believe will be manageable and sustainable over time. ÒWe needed to have some kind of organization that existed somewhere other than in our own minds. It became important to actually Ôbe 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.Ó Ray Keller, Illinois Lincoln Highway Coalition Chair and City Planner for DeKalb, Illinois Case Study continued on next page Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations CASE STUDY: Lincoln Highway There's no doubt that Coalition members are committed to their byway. Like many byway organizations, the Coalition is a mix of citizen volunteers and individuals that represent their professional affiliations and organizations. While many people see the byway as complementary to their formal job positions, they often put in a lot of personal time on projects, going above and beyond their normal work responsibilities. It's apparent that this byway organization enjoys working together. A byway member expressed this sentiment, ÒI've really gotten to know some good people and I've learned a lot from them.Ó The diverse backgrounds of group members create a rich environment for acquiring new knowledge, skills and experience. People involved with the Illinois Lincoln Highway Coalition are also motivated by a tremendous sense of pride. They've accomplished something that a lot of people told them they couldn't do. Said one member, ÒWe were told we couldn't succeed, we'd never make it. Now they're standing proof of an organization that proudly and consistently delivers results.Ó 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 YOUR STRUCTURE: NONPROFIT ORGANIZATION The Benefits of Nonprofit Organization: Advantages for Byway Groups Everyone has some familiarity with nonprofit organizations. Such 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 routeÑnewly 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 wayÑjournalists, authors, historians, religious leaders, politicians and tourism specialists. (Photo: G.P. Cooper, Quikpage Publishing Company) At a Glance: Nonprofit Organization The following chart will help you understand the benefits and limitations of nonprofit organizations. Nonprofit Organization Basic Characteristics Can be a corporation, trust, association or partnership, depending on state law. Most popular form is corporation. Others (trust, association or partnership) are rare. May or may not be tax-exempt. Funding sources include grants, contributions, 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. Limitations Restrictions apply to activities. Documentation is only proof of existence. Poor documentation puts members at liability. All activity must match charter and bylaws. Annual filings with state and federal government may be required to Benefits Can be tax-exempt Ð receive gifts tax-exempt and buy goods taxexempt (as allowed by state law). Can borrow funds without putting members at risk. Many foundations will only contribute to nonprofit organizations. Can hire staff and enter into contracts. TIP! Help for Nonprofits The National Council of Nonprofit Associations (NCNA) is a network of 37 state and regional associations of nonprofits representing more than 17,000 nonprofits throughout the country. Find out who provides information, training and leadership within your state by contacting: National Council of Nonprofit Associations 1030 15th Street, NW Suite 870 Washington, DC 20005 Phone: (202) 962-0322 Fax: (202) 962-0321 E-mail: ncna@ncna.org Web page: http://www.ncna.org Interestingly, when people think of nonprofit organizations, they're usually thinking of nonprofit corporations. Three other types of nonprofits are rare among byway groups: 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 to stakeholders such as the owners or investors. The "profits" that a nonprofit earns, if it provides a service, must be reinvested in the organization. The Advantages of Incorporating One of the biggest advantages of a nonprofit corporation is that the act of incorporating creates a legal entity separate from its founders and members. This can help shelter directors and members from legal and financial liability, assuming procedures and policies are well documented and followed. Also, nonprofit corporations continue to exist beyond membership changes. This means that volunteers or even board members can resign and be replaced without dissolving the organization. Incorporating also lends a degree of continuity and respectability that is attractive to funding sources and other community organizations. The incorporating procedure varies from state to state, but it generally involves drafting a legal incorporation document often known as the articles of incorporation. Then the group files the document with the proper state office, usually the Secretary of State's office. The particular information required to incorporate can be sought from the state office responsible for incorporation. The organization generally 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. COPY AND DISTRIBUTE Forming Your Nonprofit Organization: A Checklist for Byways Every nonprofit organization must have a carefully developed structure and operating procedures 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. Adapted by America's Byways Resource Center COPY AND DISTRIBUTE Forming Your Nonprofit Organization: A Checklist for Byways (continued) Establish an accounting system. Responsible stewardship of the organization's 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. Adapted by America's Byways Resource Center SIDE B Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations Tax-Exemption Isn't Automatic Many people assume that tax-exempt status automatically comes along with being a nonprofit corporation. This isn't the case. Tax-exempt status is neither guaranteed nor 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 purpose will be accomplished. These should be stated in the articles of incorporation. What this means is that the activities of the organization must fit within certain state and federal guidelines. Tax-exemption is more complicated than people often realize, involving various types of taxes and levels of 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.  TIP! Online Help Find valuable information related to nonprofits at http://www.irs.gov.The Internal Revenue Service, Department of the Treasury provides tax information, forms and publications. What Is a Foundation? Nonprofit Organizations Formed to Give and Serve Foundations are nonprofit, charitable, tax-exempt organizations that provide grants to support a wide variety of charitable causes and concerns. They are created with endowmentsÑgifts 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 familyÑa type often referred to as a family foundationÑ 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. Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations 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. 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. 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. What Is a Friends Group? Helping Hands from Nonprofit Organizations Everyone knows the value of friends. Friends are our advocates, allies, 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. What Can Friends Do for You? Friends provide things that an organization can't supply for itself, such as specific services, volunteers, funding or advocacy. It's important that Friends Groups have clear objectives and well-defined, publicly understood goals. They support, promote, improve and expand the work of another agency or organization. As a separate, independent entity, a Friends Group can operate in ways that are not possible for the primary organization (such as a byway group). A Friends Group has its own officers and organizational structure. Frequently, Friends are focused on fundraising activities. The Acadia Byway (All-American Road) has benefited from gifts by the Friends of Acadia, an organization dedicated to protecting Acadia National Park and the surrounding communities. Established in 1986, this impressive Friends Group has donated over $2 million in grants. Friends Groups whose primary objective is fundraising generally organize as a nonprofit corporation with 501(c)(3) tax-exempt status. Not only does the organization receive tax benefits, but 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. TIP! "You've Got to Have Friends" When it comes to famous friends, these organizations can serve as role models: Friends of Public Libraries www.folusa.org/html/fact sheets.html Friends of National Wildlife Refuges www.refugenet.org Most National Forests and National Parks also have active Friends Groups. CASE STUDY: Seaway Trail Seaway Trail National Scenic Byway (New York): Making Big Dreams Come True Big byways need big organizations. Totaling 454 miles, New York's Seaway Trail National Scenic Byway is one of the biggest! The byway receives support from one of the premier organizations in the National Scenic Byways Program. The byway parallels the St. Lawrence River, Lake Ontario, Niagara River and Lake Erie. Travelers enjoy a drive with naturally scenic landscapes, welcoming harbors, city skylines, historic lighthouses, numerous state parks and quaint villages. Fresh fruits and vegetables can be found at roadside markets, county fairs, and you-pick farms. Byway communities offer celebrations year-round, such as the Irish Festival, Blues & Jazz Festival, Great Pumpkin Fest and more. Visitors can experience the byway's rural flavor, as well as find high culture in cities like Rochester and Buffalo, which offer a myriad of museums and historic sites. With a route that hugs the shores of two Great Lakes, water recreation is abundant and fishing is a year-round sport. The initial byway organization has been in existence since 1978, and has grown to include two nonprofit corporations and five full-time staff members. The two nonprofits complement one another, but fulfill distinct and separate roles. Although their objectives are different, both boards are dedicated to serving byway visitors and strengthening the overall Seaway Trail. 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 practicesÑcommunication, commitment and cooperation. CASE STUDY: Seaway Trail The Seaway Trail, Inc. Seaway Trail, Inc. is a 501(c)(6) nonprofit corporation focused on byway management, administration and promotion. The 16member Board of Directors is made up of individuals representing different geographic regions along the byway (ten counties) and a broad array of interests (boating, camping, agriculture, private sector and fishing). Monthly board meetings are held at different locations along this lengthy byway. The corporation is responsible for hiring an Executive Director, who in turn hires staff members to carry out the organization's five-year Action Plan. 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. Membership to Seaway Trail, Inc. provides a variety of valuable benefits to byway businesses and organizations. The $75 annual fee includes listings on the Web site (www.SeawayTrail.com), in the Seaway Trail's newsletter and in Journey magazine (200,000 copies printed). Seaway Trail, Inc. has produced a popular series of byway guidebooks on a wide range of topics such as lighthouses, architecture, history, biking, shipwrecks and quilt patterns. The books are sold to individual consumers (full retail cost) and to wholesalers (significant discount for resale). Books provide a good source of publicity and income for the byway. "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 The Seaway Trail Foundation, Inc. The Seaway Trail Foundation, Inc. is a 501(c)(3) nonprofit tax-exempt organization focused on education and fundraising. The nine-member Board of Directors is described as a "good group of smart business people." They work together to solicit donations, develop corporate giving campaigns, and foster educational opportunities along the byway for visitors. Because its mission is different than Seaway Trail, Inc., the Seaway Trail Foundation, Inc. board composition is also different.The Directors have backgrounds in economic development, fundraising, transportation and historic preservation. They meet as needed, or at least yearly, and are a self-perpetuating board. The current board finds its own replacements for outgoing members. Executive Director Teresa Mitchell praised the commitment of the Foundation board, "They are people who already do a lot in the region, but are willing to do more. Many of them serve on boards for several organizations. They have the experience, knowledge and contacts to raise the Seaway Trail to a new level." The Seaway Trail Foundation has developed a partnership with Elderhostel, Inc. to offer study-travel opportunities for adults aged 55 and older. Hostelers stay in local accommodations and enjoy a variety of workshops and field trips to learn about the byway's history, nature and culture. Local people act as instructors and tour guides. Participants learn about the area they are visiting in greater detail than they would on a regular vacation experience. The weeklong agenda also includes soft educational experiences and entertainment. Evenings might include opportunities to learn about brewing beer, yoga, or antiques. Folks enjoy outdoor picnics at a lighthouse, meals at local restaurants, and even dinners served by community church groups. There are different categories of tax-deductible Foundation memberships: individual, business, and corporate. A $35 annual individual membership provides free admission to the Discovery Center Museum and a 10 percent discount at the gift shop. The Foundation also established an endowment fund, which has started to receive donations. "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 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 back and forth. ¥ Board meetings include time for reports from staff and the opposite board. ¥ Staff members act as liaisons between the two boards. ¥ The two board chairs communicate directly with each other. ¥ A newsletter contains updates on board activities. ¥ There is a conscious effort to communicate regularly by phone, fax and e-mail. ¥ The two boards participated in a joint strategic planning session. 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. TIP! Build Meeting Attendance Board members look forward to meetings along the Seaway Trail.The byway organization has found a unique way to increase meeting attendance and have fun. Several of the board meetings are combined with attractive social events. For example, board meetings have been 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! Planning for the Future The Seaway Trail has reached a level of success that most organizations aspire to achieve; however, they are continually looking for ways to grow and improve. As with many byways, funding is a constant need. The Seaway Trail has benefited from state and national grants. Ultimately, the members would like to become a self-sustaining organization. Many ideas are being discussed and evaluated, such as forming a for-profit corporation, hiring a development director, diversifying income sources and creating new partnerships. It's a byway organization with big ideas and big accomplishments.  CASE STUDY: Turquoise Trail Turquoise Trail National Scenic Byway (New Mexico): When Everyone Is a Volunteer If you're planning to attend the monthly meeting of the Turquoise Trail Association, remember to bring a hot dishÉor a dessertÉ or a salad. Combining monthly business meetings with potluck suppers brings a nice informality to the atmosphere within this byway organization. The popular not-to-be missed meetings take place in local B&Bs, in backyards and in members' homes. Byway volunteer Larry Valtelhas explained, "The food is terrific! We usually keep eating and drinking until we get a quorum (five board members). After that, we conduct our business." The Association was formed in 1983 by a handful of area business owners to promote tourism, preservation of scenic and historic areas and overall promotion of the Trail as a specific destination. As early as the 1950s and 1960s, the Albuquerque Chamber of Commerce was heavily publicizing the region, but gradually visitor response decreased and tours to the area ceased. The first meeting, held at Pete's Home of the Half-Breed Restaurant in Sandia Park, provided a glimpse of the enthusiasm that would carry this group to greater success over the course of time. Byway leader Carla Ward remembers the group's first attempts at fundraising. "We tried to take up a collection at the meeting and everyone was hemming and hawing. Suddenly, my husband, Ross, stood up, offered a hundred dollars, and asked, ÔWho's going to join me?' We raised over $700 that night and had 12 people sign up to form the Turquoise Trail Association." 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) The Past Plays into the Present The byway's unique area holds a unique past. At one time, this was a booming coal-mining region. The area fell on bad times in the 1950s and thriving communities became ghost towns. In the early 1970s, artists and craftspeople arrived and converted old company stores and houses into shops and galleries filled with paintings, sculpture, pottery, textiles, jewelry, furniture, beadwork, toys, artwear and antiques. Today, these "ghost" mining towns along the bywayÑMadrid, Golden, and CerrillosÑare alive with art, crafts, theater, music, museums and restaurants. The 61-mile byway is the scenic way to drive between the high country of Santa Fe and the desert of Albuquerque. Running along the east side of the Sandia Mountains, the byway allows travelers to see 15,000 square miles of central New Mexico, including Cibola National Forest and the Sandia Mountain Wilderness. With more and more development pressure, finding ways to manage growth is an increasing concern along this beautiful corridor. The Turquoise Trail Association hosts an annual auction where bidders can buy some of the most unique items in AmericaÑperhaps in the worldÑ that have been donated by Association members. 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 A. Ensure that public officials believe that the Turquoise Trail Scenic Byway Advisory Committee (SBAC) represents beliefs and options of the stakeholders of the Turquoise Trail Scenic Byway. B. Acquire greater diversity and expertise in the SBAC. Participation Objectives 1. Continue to increase awareness of the Turquoise Trail Scenic Byway by one new group or organization each month. 2. Continue to meet one-on-one with stakeholders. 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. YOUR STRUCTURE: NONPROFIT ORGANIZATION The Scenic Byway Advisory Council Begins A 13-member Scenic Byway Advisory Council (SBAC) was formed in 1999 from a core group of the Turquoise Trail Association. The SBAC makes ongoing efforts to solicit community input on the byway through questionnaires, a Web site, advertising in local newspapers and public meetings. The group also developed partnerships with various organizations, including three counties, the USDA Forest Service, the Chamber of Commerce, historical societies, landowner and homeowner's associations, the East Mountain Legal Defense Fund, the local ski area and tramway, and the Archeology Conservation District. Full membership in the Association ($250 annual fee) provides a newsletter, the right to vote on byway issues, inclusion in marketing and promotional initiatives, "the chance to meet friendly people," and "the opportunity to make a difference in the byway community." Association members receive a business listing in the Turquoise Trail brochure and on the organization's Web site (www.turquoisetrail.org). The membership also elects the Association's board members. There are no limitations on who can serve as board members; paid membership is not even a requirement. There is also an Associate category ($30) 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. Decision making often reflects the formality or informality of a group. This is certainly true within the Turquoise Trail Association. The bylaws give voting power to the 13 board members. However, the board usually polls all the members on issues, especially important ones that relate to policy. Decisions are generally made by the folks that "show up." A board member explained, "Many of the members don't realize that only the board has an official vote. It's that informal. It's pretty much whomever shows up for a meeting or does work that gets to call the shots. When you're at a meeting, it appears that everyone present is voting. We only go to a board vote if it's a close vote. Most of the time, we get a strong consensus on issues." Burnout is a common problem in organizations. In all-volunteer groups, it's not uncommon for a few people to end up with responsibility for a large percentage of the work. To fight burnout and retain volunteers, the Turquoise Trail makes conscious efforts to try and distribute the workload a little more evenly, often assigning two to three people to a project. Outside experts and consultants are utilized as needed and as funds are available. These committed volunteers have racked up an impressive list of accomplishments. It's an organization where the grassroots have taken root and are truly growing.  Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE: COOPERATIVE AGREEMENTS Cooperative Agreements: Continuity through Collaboration Perhaps you have a diverse group of byway participants, but 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 understanding). 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. At a Glance: Cooperative Agreements The following chart will help you understand the benefits and limitations of cooperative agreements. Cooperative Agreements Basic Characteristics Entities commit staff/resources to a common goal. Formed by a combination of agencies (public, private or both). A cooperative agreement defines the scope of power (when and how it can be exercised). Not always as formal as a joint powers entity. Limitations Coordination of individual efforts not guaranteed. Doesn't have legal standing and liability would revert back to individual agencies. Cannot hire staff except through a member agency. When vaguely defined, leadership, decision making and meetings can be absent or inconsistent. Benefits Links like-minded organizations. Individual entities retain control over their own resources. Relatively simple to create. Good format for groups in the beginning stages of formation. 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 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. How Complex Are Cooperative Agreements? Some byways use a rather simple cooperative agreement to formalize the cooperation between partners, while others draft a detailed agreement that spells out the responsibilities of each of the participants. Cooperative Agreement Advantages A cooperative agreement is less formal than other organizational structures, such as a nonprofit corporation or joint powers entity. Cooperative agreements can include a mix of governmental as well as non-governmental agencies. A cooperative agreement does not create a new entity, so, the staff, resources and significant control remain with the member agencies. As a result, partner organizations may feel more comfortable entering into such an agreement. The Agreement's Components The relationship between partner organizations should be outlined in a written agreement. This document can be fairly simple or quite detailed. At minimum, the agreement should list the group's purpose, the parties involved, their intentions in working together and the resources that each party will contribute. The agreement should also state what happens if the organization is dissolved. The agreement should be reviewed and approved by those with the authority to carry out the document's commitments. A more comprehensive agreement may contain the following components: 1. General/Introductory Title Table of contents Agencies included Purpose of agreement/mission Vision Members' names and titles 2. Responsibilities Agency roles and functions 3. Process Meetings Quorums Decision-making process Conflict resolution 4. Finances Financial expectations 5. Conclusion Process for reviewing/revising agreement Provisions for addition, removal or resignation of members Termination process Procedures for disbursing contributed assets remaining after agreement termination Glossary of terms (include acronyms) 6. Attachments Plans Studies CASE STUDY: Top of the Rockies Top of the Rockies Scenic and Historic Byway (Colorado): A Three-County Model of Teamwork The high altitudes seem to mirror the high aspirations and high levels of teamwork that exist along Top of the Rockies Scenic and Historic Byway in Colorado. The byway winds through amazing mountain landscapes, past the two highest peaks in Colorado, through Leadville, the highest incorporated town in the United States (at 10,200 feet), and into pieces of Colorado history. Tales of indigenous peoples, early fortune seeking miners, and the brave men of the Tenth Mountain Division are an intriguing part of this byway's story. This 82-mile route crosses the Continental Divide twice and traces the Arkansas River nearly to its source in the vicinity of Fremont Pass. The small communities of Redcliff, Minturn and Twin Lakes add distinct charm to the traveler's experience. An Intergovernmental Cooperative Agreement The Top of the Rockies byway organization is an intergovernmental cooperative agreement among Lake, Eagle and Summit Counties in Colorado. This is an area whose economic base once relied on mining, and now relies on tourism. Eagle and Summit Counties are home to several large ski resort areas, including Copper Mountain, Breckenridge, Keystone and Vail. While the byway is a nice added benefit to these two ski counties, it plays a critical role in drawing tourism to Lake County. For this reason, Lake County has always taken a more active role within the byway organization. Lake County currently serves as the administrative and fiscal agent for the byway, organizing meetings, preparing grant applications, issuing Request For Proposals (RFPs) and managing funds. A cooperative agreement can be formed by a combination of agenciesÑpublic, 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 partnersÑ tourism, landowners, federal agencies, land trusts, universities, historical societies and interested citizens. Case Study continued on next page A regional committee includes three representatives from each of the three counties and a representative from the USDA Forest Service. The group doesn't use a formal process for making committee appointments. Instead, the opportunity tends to fall to those individuals interested in participating. The committee meets as needed, usually once a month. When projects reach full swing, the group meets more often. Members compare calendars through e-mail, scheduling meetings when the majority can attend. Citizen volunteers support the committee, as well as representatives connected to county administration, city planning, public relations, parks and recreation, chambers of commerce, a ski resort and a local college. In addition to the regional committee, Lake County maintains a strong and active local committee. Byway organizers reach out to the local communities to find expertise when they need specific assistance. CASE STUDY: Top of the Rockies Teamwork Works Catherine Patti, Lake County Administrator and byway leader, is proud of the teamwork that is prevalent within the byway organization. She said, "Even though it's kind of a loose structure, it's been very positive and successful because of the teamwork. The understanding between all the counties is that whoever shows up for the meetings makes the decisions. If there's two people there, then they make the decision. If there's ten people there, then they make the decision. Decisions are made by those that 'show up' and it's worked really well. When decisions are made, we try to take all three counties into consideration, even when they may not have a representative at the meeting. We try to take the whole byway into account. It's amazing because there's been wonderful teamwork." "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 Case Study continued on next page Coordination Prevails Reportedly, the group has been able to reach consensus in every instance since its inception. Surrounded by National Forests (White Mountain NF, Arapaho NF, Pike NF and San Isabel NF), the byway sees the USDA Forest Service as an important partner. There is a lot of coordination on projects. For example, when the byway was outlining an interpretive management plan, they knew that the USDA Forest Service had completed an interpretive plan for Camp Hale, historical training site of the famous WWII Tenth Mountain Division. It made sense to work together, and efforts were not duplicated. The byway also reaches out to other partner organizations, such as the Lake County Open Space Initiative (a 20-member board comprised of federal, state, and local agencies and organizations). By working with this organization, a recreational facility project at Hayden Meadow was expanded to serve as an interpretive and educational facility. The byway organization is currently updating its corridor management plan, since the group "essentially completed all the action items" in the original plan. Projects have included a byway video, an orientation map, byway signage, a historical walking tour brochure 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. Looking at Organizational Options The group's current goal is to find a structure that will establish the byway organization as its own legal entity. Members are researching options, such as becoming a 501(c)(3) nonprofit organization. After that, they will identify funding mechanisms to separate fiscal agency from Lake County. This will relieve the County from time-consuming paperwork and separate the byway's finances from local politics. The County supports these efforts. While County Commissioners value the scenic byways program, they realize it ties up limited staff resources to prepare and administer grants. The byway organization expects that the regional committee will remain the same, with representatives from the three byway counties, the USDA Forest Service and citizen volunteers. The group envisions hiring a part-time byway administrator. Already, a $25,000 seed grant from the National Scenic Byways Program will help the organization move forward. Patti explained how a new structure will benefit the byway. "We look forward to hiring a byway coordinator. We're not being as effective as we could be, the way we are currently set up. Everyone on the committee is a volunteer and they all have other jobs. There is no time to participate in the monthly conference calls with the national program, gain new knowledge and information, and have discussions with other people that could help us," she said. There's no doubt that a high level of teamwork will be part of a new organizational structure. "We've got a good group of people who really see the benefits that the byway can bring to the communities in terms of tourism and economic development. People really care about the communities and they care about maintaining the assets along the byway," noted Patti. See Appendix F for a copy of Top of the Rockies intergovernmental cooperative agreement.  Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE: SINGLE GOVERNMENT ENTITY AT THE LEAD Single Government Entity at the Lead: Planning and Oversight from One Source Does your byway travel primarily through a national or 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) 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 Lead agency takes responsibility that funds are received and accounted for properly. Lead agency typically provides staff to byway. Lead agency completes all necessary applications. Fairly informal. Open meeting laws and public access to records apply. Limitations May not have extensive public input, particularly if entire byway is not in the lead agency's district. Byway may lose attention when agency is faced with other multiple program priorities. Decision making could be cumbersome, depending on agency procedure and structure. Can lose momentum if the key proponent on staff leaves the area. Benefits Less complex to create, while still protecting liability. Staff person provided without group needing to raise funds. Ability to access agency expertise and skills on variety of topics. Individual entities retain control over their own resources. Decision making could be streamlined with single entity process. 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 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. 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 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.  Federal Agencies Designate Special Roads Did you know? The USDA Forest Service had the first national designation of scenic byways with its National Forest Scenic Byways Program in 1988. A total of 9,126 miles are designated as National Forest Scenic Byways across the United States. The National Park Service oversees National Heritage Corridors and National Historic Trails. In this program, the federal government does not own or manage any of the land as it does in traditional national parks. Instead, citizens, businesses, nonprofit, cultural and environmental organizations, local and state governments, and the National Park Service work together to preserve and celebrate the region's cultural, historical and natural heritage. The U.S. Fish and Wildlife Service maintains over 3,000 miles of "Refuge Roads." These public roads provide access to, or exist within a unit of, the National Wildlife Refuge System. An estimated 25 million people annually visit refuges to observe and photograph wildlife, 7 million to hunt and fish, and more than half a million to participate in educational programs. The Bureau of Land Management (BLM) administers the Back Country Byways program. There are 69 Back Country Byways for visitors to explore and gain a better understanding of public land management and resources. The BLM's Back Country Byways program was created to meet the needs of the 43 percent of Americans who say driving for pleasure is their favorite recreation. CASE STUDY: Flaming Gorge Flaming Gorge-Uintas Scenic Byway (Utah): A Federal Agency Plays the Leading Role The USDA Forest Service is a particularly important byway partner. Over 100 National Forest Scenic Byways are also designated as state scenic byways. More than half of the National Scenic Byways and All-American Roads (designated by the U.S. Department of Transportation) have dual designation as National Forest Scenic Byways (designated by the USDA Forest Service). Others cross National Forest lands, but do not currently have National Forest Scenic Byway designation. An Agency Representative to Call Your Own In most cases, the federal agency appoints a staff member to oversee byway management issues. Having a person with formal byway responsibilities can be a tremendous asset. On the Flaming Gorge-Uintas Scenic Byway in Utah, that person is USDA Forest Service employee Brent Hanchett. It might be easy for the byway program to get lost in a long list of other tasks and duties, since most staff members have multiple program responsibilities. It's rare to have a full-time person devoted to scenic byways. Luckily, Hanchett does not view the scenic byway as "just another assignment." He has developed a strong personal interest in the program, and his agency supports it as an important priority. Hanchett serves as the Scenic Byway Coordinator. He organizes meetings, handles day-to-day administrative issues and does the legwork to manage the 82-mile byway 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) CASE STUDY: Flaming Gorge The Flaming Gorge-Uintas Scenic Byway serves as a vital transportation corridor and getaway for people who are interested in visiting some nationally recognized attractions, including the Flaming Gorge Reservoir and Dam, the Flaming Gorge National Recreation Area, the Green River, and the Dinosaur National Monument and Quarry. The Flaming Gorge National Recreation Area contains nearly half of the byway. The Dinosaur National Monument and Quarry is one of the world's greatest sources for dinosaur skeletons and draws visitors from all over the world. In this area, travelers can experience the essence of the "real West" through the existence of world-class rock art and the western folklore of early explorers, mountain men, outlaws and cowboys. Local Participation Although a federal agency could choose to handle byway issues in-house, a key component of the National Scenic Byways Program is the formation and participation of a local byway organization. Flaming Gorge has pulled together an effective Scenic Byway Committee, chaired by the USDA Forest Service District Ranger. The committee is comprised of "people who can affect things and make things happen. They are the partners who have an interest, commitment and funding." A majority of the committee members come from government agencies (state and federal). The public is represented through two elected county commissioners. Committee members represent: Daggett County and Unitah County (the two counties the byway passes through) Utah Regional Travel Board (the byway is an important tourism tool) Bureau of Land Management (the byway passes through BLM land) Utah State Parks & Recreation (the byway is adjacent to a state park) Regional office of the Utah Dept. of Transportation (the byway is a state highway) Utah Division of Wildlife Resources (the byway's theme is "Wildlife Through the Ages") Superintendent of Dinosaur National Monument (a key byway attraction) USDA Forest Service, Ashley National Forest (the lead agency) It's a structure that seems to work. The group meets about six times a year or on an as-needed basis. There is good attendance at meetings (eight to ten people). The committee members all have a stake in the byway's success. A strong sense of teamwork exists among the Scenic Byways Committee. "Barriers have broken down. It's amazing how well this group works together. They are extremely cooperative. We've done away with lines," said Hanchett. In one instance, 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." Flaming Gorge-Uintas Scenic Byway has found a successful formula: agency and public support, a committed byway leader, an effective byway organization, resources and enthusiasm.  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) CASE STUDY: Pacific Coast Pacific Coast Scenic Byway (Oregon): ODOT Partners with the Public Byway organizations have an important relationship with their state's Department of Transportation (DOT). The DOTs provide technical assistance, oversee highway projects, coordinate grant programs, designate state scenic byways, and act as a liaison between nationally designated byways and the Federal Highway Administration. Along Oregon's Pacific Coast Scenic Byway, that DOT relationship is even stronger. When the Oregon Transportation Commission designated US 101 as a state scenic byway in 1991, the Oregon Department of Transportation (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. The Byway's Path The Pacific Coast Scenic Byway (Highway 101) journeys 360 miles along the full length of Oregon's coast. Stunning coastal scenery, charming small towns, museums, public beaches, breathtaking viewpoints, historic bridges, lighthouses, unusual plants and animals ensure a delightful experience for the visitor. Additionally, there are state and federal forestlands, wildlife refuges, the Yaquina Head Outstanding Natural Area, the Dunes National Recreation Area, and many other special places. 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. Beautiful, functional bridges designed by Conde B. McCullough (1887-1946) can be found along the Pacific Coast Scenic Byway. ODOT has invested millions of dollars working to preserve and restore these architectural treasures. Because of its dedication to maintaining the historic coastal bridges, ODOT received a Best Practices for Byways award in 2001 in a competition sponsored by the Federal Highway Administration, America's Byways Resource Center and the American Association of State Highway and Transportaion Officials (AASHTO). The byway passes through 26 incorporated cities, 7 counties and 11 distinct landscape regions. Over 40 state parks are interspersed and all of the beaches are considered public parkland. Developing unity among such a large, diverse group takes a lot of work. ODOT Forms Partnerships ODOT formed two important working partnerships with existing groups that represented the voices of the coastal communities: Coast Policy Advisory Committee on Transportation (CPACT) and Oregon Coast Visitors Association (OCVA). CPACT and OCVA played a key role by helping facilitate meetings that brought together constituents to define the corridor management plan (CMP) for the route. Over a ten-month period, culminating in 1997, nine regional planning groups held 57 public meetings up and down the coast to gather input for the byway plan. In the CASE STUDY: Pacific Coast meetings, citizens worked together to identify the byway's significant features and intrinsic qualities. Once the defining features of the byway were agreed on, management goals, objectives, strategies and implementation steps were outlined for each feature. This information became the framework for the CMP. Although the CMP public process took lots of time and work, it had significant positive benefits: 1. The CMP became a plan that the diverse spectrum of coastal communities could support. 2. It laid the groundwork for many successful project initiatives with multiple partners, such as Oregon Parks and Recreation, USDA Forest Service, and local communities. 3. It built a foundation of public trust and involvement along the byway. The time and effort paid off. The Pacific Coast Scenic Byway received unanimous support for its application as a National Scenic Byway from local communities. To address fears of land use restrictions and general mistrust of government programs, the CMP allows withdrawal from the program at any time if "the original conditions of their participation change." Withdrawal for other reason is addressed by a biennial review process. Designated Duties The Pacific Coast Scenic Byway upgraded its designation from a National Scenic Byway to an All-American Road in 2002. ODOT continues to coordinate byway activities with CPACT and OCVA. ODOT dedicates staff resources to support the byway, providing valuable administrative assistance and technical expertise. CPACT is focused on the political and physical aspects of the byway. Members of CPACT facilitate corridor planning, coordinate infrastructure efforts, and identify potential funding sources. CPACT also has the important job of reviewing and ranking project applications that have been submitted for the annual FHWA National Scenic Byway grants program. In Oregon, all byways rank their applications, then the State Byways Committee considers those priorities in compiling the state's overall ranking. CPACT members are city, county and port 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. OCVA is focused on marketing and promotion of the byway. Coastal communities are affected by tourism more than anywhere else in Oregon. Beset by failing timber and fishing markets, tourism in the cities and villages along the coast is increasingly important to economic viability. OCVA is comprised of chambers of commerce, visitor and convention bureaus and other attractions interested in marketing the coast. The group serves as a clearinghouse for traveler inquiries about the byway and distributes the Pacific Coast Byway brochure. Meetings are held quarterlyÑup and down the coastÑand a newsletter fact sheet is sent out weekly via e-mail. In addition, ODOT presents byway-related information at OCVA's annual tourism workshop. OCVA also distributes a popular annual "Mile-by-Mile Guide to Highway 101" that is free to travelers. OCVA actively markets the byway with the Oregon Tourism Commission, who, in partnership with ODOT, performs the marketing function for Oregon's State Byway Program. Coordinated Efforts There are lots of logistical challenges in coordinating activities along a lengthy byway. For example, meeting participation is more difficult for people, often volunteers, who must travel long distances. In addition, summer is an extremely busy tourism season for coastal businesses and it's hard to find time for byway activities. The organization relies on e-mail, faxes, mailings and phone calls to keep everyone up-to-date. Turnover in organizations is natural, but it does slow progress and break continuity. To maintain the knowledge in the group, the Executive Directors of OCVA and CPACT, along with ODOT, make a conscious effort to orient and educate new members on byway issues. Today, many of the implementation steps, including projects that were identified in the original CMP, have been completed or are now funded. With the help of CPACT and OCVA, ODOT is about to embark on the process of updating the CMP to capture all of the byway's successes and make necessary revisions to site goals. Once again, the group will turn to the public for input. Lea Ann Hart-Chambers, ODOT Scenic Byways Specialist, summed up the byway organization's strength, "One of the greatest accomplishments was finding consensus among a large diverse group of constituents. They agreed that national designation was a very positive goal. The businesses and communities realize that there is a benefit in 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. CASE STUDY: Loess Hills Loess Hills Scenic Byway (Iowa): Building an Organization Focused on the Byway It's taken some time, but the Loess Hills route now has an organization focused on managing this unique nationally designated scenic byway in western Iowa. With direction from the Golden Hills Resource Conservation & Development (RC&D) and Western Iowa Tourism Region (WITR), the Loess Hills Scenic Byway Council was formed in the fall of 2000. Back Up: What's a Loess? The Loess Hills region is a unique landform that ranges from one to fifteen miles wide and approximately 200 miles long. This deep loess (pronounced "luss") is found only two places in the world: western Iowa and the Yellow River Valley of China. These corrugated "dunes" of windblown sediment were formed 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. The Early Organizations Over ten years ago, Golden Hills RC&D provided funding and technical assistance to start the Loess Hills Hospitality Association (LHHA). The original intent of WITR and Golden Hills RC&D was that this pilot group would become a regional organization, expanding north and south to include all seven counties along the byway. The LHHA's goal was generating tourism revenue through tours of the Loess Hills, which they still offer. The LHHA chose to keep its focus on tourism in a two-county area, creating the need to find another organization for management of the seven-county, 220-mile Loess Hills Scenic Byway. A few years later, Golden Hills RC&D and WITR were the catalyst for the creation of the Loess Hills Alliance, which was established to be a regional voice for the seven-county area. Although the group had interests in the byway, its focus became land use and stewardship issues. With a full agenda, the group did not have time for byway management. An organization whose primary focus was the byway was still needed. After attending the National Scenic Byways Workshop at Washington, D.C., in June 2000, the RC&D and WITR created a council whose mission is "to provide a high quality experience to visitors traveling the Loess Hills National Scenic Byway." Knowing the new council needed to be a workable size and still draw from different areas of expertise, the founders opted for a 13-member council with representation from all seven counties. The newly selected byway council first met in October of 2000 and a part-time byway coordinator was hired. A Composite Leadership The Council includes representatives from the Iowa Department of Transportation (IDOT), the Iowa Department of Natural Resources (DNR), the State Historical Society, the RC&D, the Western Iowa Tourism Region, as well as representatives from each of the seven counties. An at-large representative also sits on the Council. "There's been a conscious effort to include people with a variety of backgrounds and different areas of expertise on the Council," said Shirley Frederiksen, Golden Hills RC&D Coordinator. For example, the group includes a teacher, a naturalist, directors from economic development organizations, a convention and visitor's bureau, and an Iowa welcome center. In addition, a small business owner, a county engineer, and a state forester lend their expertise to the Council. The DNR, IDOT, and the State Historical Society appoint their own representatives to the Loess Hills National Scenic Byway Council. Other Council members, (including the seven county representatives) are appointed for one-year renewable terms by the Western Iowa Tourism Region and Golden Hills RC&D. The RC&D and WITR issue invitations to serve on the Council and an invitation is viewed as a positive opportunity. CASE STUDY: Loess Hills RC&D Coaches the Byway Currently, the RC&D organizes and leads the meetings. The Council plans to elect a chairman and apply for a 501(c)(3) IRS status. Council members are volunteers and meet on a monthly schedule. Issues are usually talked out and resolved through open discussion, often coming to general consensus. Although the RC&D is providing technical assistance for initial direction to the Loess Hills National Scenic Byway Council, the goal is for the Council to eventually direct its own projects and programs. The RC&D serves as the Council's fiscal agent and will probably continue in this capacity for the immediate future. The Loess Hills National Scenic Byway Council is growing into a strong, healthy byway organization. Within its first year, the group has conducted a familiarization tour, updated the byway brochure, developed a coloring book, planned a successful dedication event, and participated in strategic planning. The administrative and organizational coaching from Golden Hills RC&D and WITR allow Council members the time and opportunity to develop an effective structure that will ensure their future and the future of the byway. It looks like the third time is the charm for the Loess Hills National Scenic Byway. 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. Note: Over 30 years ago, Congress established a unique program within the U.S. Department of Agriculture (USDA) that empowered rural people to help themselves. USDA wanted to assist local people by providing tools and technical support to stabilize and grow their own communities while protecting and developing natural resources. In return, local "Councils" provide local direction and planning and coordinate implementation of 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. CASE STUDY: Loess Hills By working together on local RC&D Councils, communities, all levels of government, and grassroots organizations develop and implement solutions to widespread problems and create opportunities that will help sustain rural communities, local economies and natural resources. Currently, 348 local Resource Conservation and Development Councils operate across America.  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. YOUR STRUCTURE: JOINT POWERS ENTITY Joint Powers Entity: Formal Government Partnership A joint powers entity is a formal way for government entities 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) 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 Depending on individual state law and statutes: Allows for the exercise of power by one or more government units on behalf of other participating government units. Generally, exclusive to government agencies. 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. Limitations Individual government units give up a measure of control. Usually cannot be used to include nongovernmental agencies. State laws outline powers and limitations. Not all states have enabling legislation. Benefits Scope of power sharing can be considerable. Can hire staff and enter into contracts. Able to make decisions across multiple jurisdictions quickly. Who Joins a Joint Powers Entity? A joint powers entity usually involves only public entities, such as local government units (cities, towns, counties, etc.), school districts, political subdivisions, and state or federal agencies. This can be a drawback for byway organizations that want to include non-governmental public entitiesÑperhaps convention and visitors bureaus, land trusts or other citizen organizations. Private groups and citizens can still be involved in the byway, but they would have contracts, agreements or another secondary relationship with the joint powers entity. A joint powers agreement can allow participating parties to act jointly or to act on behalf of the members. This might mean that one entity coordinates all of the wayside services, such as refuse removal, along the byway. It could also involve several entities pooling funds to promote the byway. In this case, the joint powers entity, rather than the individual entities, would have control over those funds. Formal through Documentation The foundation of a joint powers entity is a formal written agreement. This document outlines the nature and extent of the power-sharing agreement. It can be relatively simple or 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.  Joint Powers Entity Agreement Components Subject to the state laws governing the joint powers entity, the agreement typically contains: Purpose of the agreement Power that will be shared Method to accomplish the stated purpose Termination criteria Method for distributing (at termination) the accumulated funds/resources You must check with your state, as the laws related to joint powers entities vary from state to state. CASE STUDY: Edge of the Wilderness Edge of the Wilderness National Scenic Byway (Minnesota): Consolidating Leadership and Rural Resources Rural communities have a long history of working together to accomplish big tasks. This is the way barns were raised, quilts were sewn and crops were harvested. It still works that way in many parts of rural America. By pooling resources, small communities can accomplish more, expand their services and strengthen their political voice and influence. This is the idea behind the Northern Itasca Joint Powers Board (NIJPB), a consolidated governing body that represents five local units of government in northeast MinnesotaÑthe City of Bigfork, Town of Bigfork, City of Effie, Town of Stokes and the Town of Marcell. The population of the area, commonly referred to as the "Edge of the Wilderness," is relatively sparse, with approximately 2,000 residents. The population increases in summer months when seasonal residents flock to numerous area lakes. Although the Edge of the Wilderness National Scenic Byway isn't a joint powers entity, it owes its beginnings to oneÑthe Northern Itasca Joint Powers Board. 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) The Cooperative Agreement To meet the growing needs of full-time and part-time residents, members of the NIJPB signed a cooperative agreement in 1987. Their mission is to "retain the natural beauty of the area while progressing to provide our diverse population with opportunity, economic viability, and a quality of life that will carry on into future generations." Board members are empowered to make specific decisions on behalf of the communities that they represent. In this part of the state, Highway 38 courses up and down and around curvesÑthat's part of its charm. Locals named it "Highway Loop-de- Loop" in the early days. The area is a rustic slice of Minnesota, with more than 1,000 lakes nestled amid landscapes of remarkable natural beauty. There are still more trees than people here, offering classic north-woods seclusion. The Edge provides some of Minnesota's most popular fishing, camping, trail, winter sports and resort opportunities. In 1992, the Minnesota Department of Transportation, the Minnesota Department of Natural Resources and the USDA Forest Service convened a task force charged with developing a corridor management plan for Highway 38. This is a busy route shared by local residents, tourists and commercial traffic such as frequent logging trucks. The Northern Itasca Joint Powers Board represented communities on the northern end of the route, while an ad hoc committee represented communities on the southern end. This joint task force worked for months developing a corridor management plan. During this process, they decided to nominate Highway 38 as a scenic byway. The 47-mile Edge of the Wilderness Scenic Byway received state scenic byway designation in 1994 and National Scenic Byway designation in 1996. In outlining the corridor management plan, the group also concluded that some type of organization should be established to manage ongoing needs, issues and concerns within the byway corridor. Discussions led to the formation of a nonprofit 501(c)(4) organization to initiate and oversee activities along the byway, the Minnesota Highway 38 Leadership Board. A new byway organization 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 The Byway Organization Today Today, the Minnesota Highway 38 Leadership Board has over 100 voting members representing a variety of entities and organizations, including Itasca County, townships and cities along the byway; state and county historical societies; local school districts; citizens-at-large; Minnesota Timber Producers Association; retail and service businesses; lake associations; Edge of the Wilderness Business Association; Edge of the Wilderness Lodging Association; Grand Rapids Area Chamber of Commerce; Grand Rapids Convention and Visitors Bureau; Bigfork Lions Club; and others. The Northern Itasca Joint Powers Board continues to be an important partner. At the annual meeting, the general membership elects nine directors to lead and conduct the official business of the Leadership Board. The directors serve three- year terms. A President, Vice-president/ President-elect, Secretary and Treasurer are chosen from within the board of directors. Board meetings are held once a month at various locations along the byway. The full membership is invited to attend quarterly meetings. A clear, comprehensive set of bylaws spells out the processes and procedures that help this group run smoothly. Integral Partnerships Partnerships remain integral to the byway's strengths. The organization works hard to nurture positive relationships with key agencies and leaders at all levelsÑlocal, regional, state and national. Because of this, the group has accumulated an impressive list of accomplishments: Finished an interpretive plan and installed interpretive panels along the byway. Created a Web page (www.scenicbyway.com) that was designed and managed by local high school students. Constructed an interpretive kiosk and park in coordination with a new streetscape and bridge for Bigfork, a gateway community. Kiosks were also constructed in Grand Rapids and Effie, with a future one scheduled for Marcel. Successfully support a paid byway coordinator position. This individual shares office space at the USDA Forest Service Ranger Station. Programmed reconstruction of the entire byway to meet travel and safety needs while maintaining and enhancing the byway's character. 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. Most recently, the Leadership Board collaborated with the Itasca County Board of Commissioners to place a one-year moratorium on all new signage along the corridor. This will allow time to formulate a plan to protect the integrity of the byway and surrounding communities. It's a good example of government and citizens working together. Life has always been a little bit harder for those folks who choose to make their homes along the Edge of the Wilderness. Even the most rugged individuals realize there are some things you can't accomplish alone. It's always been that way. Working together is an important way of life; in fact, it's a matter of survival in this neck of the woods.  Although the Edge of the Wilderness National Scenic Byway is not a joint powers entity, it owes its beginnings to one. The Beginning of a Byway Organization 1987 A joint powers agreement is signed, creating the Northern Itasca Joint Powers Board (NIJPB) in rural northern Minnesota. 1992 A task force is formed to develop a corridor management plan for Highway 38. NIJPB represents the northern end of the highway, while an ad hoc citizens group represents the southern end. 1994 The task force nominates Highway 38 as a Minnesota State 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. Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations YOUR STRUCTURE: CUSTOMIZED ORGANIZATIONAL STRUCTURES Customized Organizational Structures: Finding the Perfect Fit Selecting an organization model is a lot like hunting for the 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-fitsall." 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. This guide introduced five basic types of organizational structures, from informal citizen groups to formal nonprofit corporations and joint powers boardsÑalthough 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 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.  CASE STUDY: Creole Nature Trail Creole Nature Trail National Scenic Byway District (Louisiana): Created by Legislation, Fueled by Pride After a visit, you can easily understand why the Creole Nature Trail is affectionately dubbed "Louisiana's Outback" and "America's Last Great Wilderness." The more than 180mile- long byway winds along bayous, marshes and the shore of the Gulf of Mexico. An overwhelming sense of water, wildlife and raw nature permeates the scenery. People who live in this part of the country are intimately connected to the water. Shrimp boats, oil tankers, offshore oil platforms and freighters traveling up the Intracoastal Canal are common sights. Recreational fishermen are often seen on the waterways along the route. Life by the Gulf of Mexico also presents 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. The Formal Organization Begins When legislation created the Creole Nature Trail National Scenic Byway District in 1995, the state of Louisiana actually formalized an organization that had been promoting the byway for more than twenty years. Early on, local government bodies, tourist commissions, business organizations and interested citizens recognized they could stimulate economic development and tourism by working together to create and advance the Creole Nature Trail. Designated in 2002 as one of only 21 All- American Roads in the country, the trail was among the first 14 routes to receive a National Scenic Byway designation in September 1996. It remains the only nationally designated route in Louisiana. The state legislation established a nine-member board of commissioners and outlined its powers, duties and functions. As the byway's governing board, the Creole Nature Trail National Scenic Byway District consists of appointed leaders from Cameron and Calcasieu Parishes (counties). Membership consists of: Two representatives appointed by the Calcasieu Parish Police Jury Three representatives appointed by the Cameron Parish Police Jury One representative appointed by the Cameron Parish Tourism Commission One representative appointed by the Department of Transportation One representative appointed by the Calcasieu legislative delegation One representative appointed by the Southwest Louisiana Convention & Visitors Bureau In addition to the formal board of commissioners, a broad network of individuals, organizations and federal agencies supports the work of the Creole Nature Trail. For example, two National Wildlife Refuges and one State Wildlife Refuge and Game Preserve exist along the byway. These key 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. The unique legislation established the District as a state agency, similar to a water or soil conservation district. This gives the District certain rights, powers and privileges. It also means the organization can act as its own fiscal agent. The District also has the ability to tax; however, the board doubts there would be sufficient public support to get this on a ballot. The District is also legally responsible for its actions and decisions. District commissioners serve four-year terms. The nine commissioners vote to elect a board chairman and vice-chairman. The District works on a wide range of issues to implement its corridor management plan, including public participation, intrinsic quality management, marketing, highway design and maintenance standards, interpretation, fundraising, visitor services and partnerships. Sub-committees allow members to participate in their areas of expertise. Empowered Leadership The Creole Nature Trail Scenic District, because of state legislation, can: (1) Enter into written contracts and agreements (2) Hire employees (3) Sue and be sued (though neither has happened to-date) (4) Receive contributions, donations, grants and money from public and private sources CASE STUDY: Creole Nature Trail The legislation requires that meetings are announced with reasonable notice, and that a quorum (a majority of the board) must be present for any business to be transacted. District meetings are held quarterly, but the executive committee meets monthly or bimonthly. Commissioners are not compensated for their time and service, but they can be reimbursed for expenses they incur in carrying out District duties. It's a formal structure that provides organizational stability and continuity. For example, if a commissioner resigns, there is a defined process to appoint a successor. The state legislation laid out a framework that ensures an ongoing byway organization. Funding and Financing Like most byway organizations, the Creole Nature Trail Scenic Byway District must find funding and resources to accomplish its goals. The District does not receive state funding, but it has successfully secured a number of grants. The match for the grants was provided by the parish police juries (county commissions) and the Southwest Louisiana Convention & Visitors Bureau (SWLACVB). The SWLACVB is a longtime supporter of the trail. Because this group views the District's mission as compatible with its own, 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. One SWLACVB staff member devotes more than half of her time to help the District. Financial sustainability is an important issue. The District is in the final stages of creating a "Friends Group" (a nonprofit organization), whose primary function will be fundraising. The Friends Group will be able to accept tax-deductible donations from individuals and industries, such as the large petrochemical companies along the byway. Money raised will be used as matching funds for grants and other corridor projects. The District will retain all management authority for the Creole Nature Trail. Although the State of Louisiana created the Creole Nature Trail National Scenic Byway District, there are elements that legislation cannot mandate. They include the enthusiasm, commitment, and dedication of those folks involved with the byway. The local byway organization does an outstanding job sharing the region's best: colorful stories, beautiful natural surroundings, and a rich Cajun and Creole culture that is reflected in the region's food, music, dancing and place names. Certainly, community pride and southern 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 effortsÑsisters Hilda Crane (left) and Carolyn Thibodeaux (right). Helping visitors find their way is an important byway issue.These logo signs point the way along three multi-state routes. Multi-State Organizations: Finding Ways to Work Together By their very nature, byways present significant organizational challenges. 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. 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 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. 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. 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. 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. 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. 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 names and contact information. Keep it current. 2. Set clear, realistic goals. Focus on one or two key goals for the year. 3. Write down your goals and work plans. Provide copies to all committee members. 4. Communicate.Take time to schedule phone appointments with other committee members. Don't leave communication to chance. 5. Hold regular committee conference calls. Schedule them in advance and provide a meeting agenda before the call. 6. After a conference call, send follow-up messages and meeting notes. 7. Use e-mail, fax and voice mail, but don't rely on them for all communications. Keep in touch by phone. 8. Send regular updates to other committee members, including progress reports. 9. Realize that work coordinated over long distances takes more time. Plan for this when you set deadlines. 10.When possible, meet in a central location or rotate meeting locations. 11. If you can't meet in-person, explore videoconference options. Some local universities or units of government may have equipment available. 12. Use technology to your advantage. Consider on-line collaboration tools, such as a discussion forum. 13. Put faces with names. Have a group photo taken and give people a copy for their desks or bulletin boards. 14.Talk about how your committee is functioning. Discuss ways to improve communication and coordination. 15. Share success. Find ways to celebrate and 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. 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. 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. 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 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. CASE STUDY: Utah Highways 191 & 163 Utah Highways 191 and 163: Creating a Community of Communities Precarious population and employment levels threaten small rural communities throughout the country. Many of these communities look to tourism as part of economic development plans. However, communities located in the same geographical area often compete for tourist dollars. According to Utah State University professors David L. Rogers and Stephen W. Clyde, the solution probably lies in inter-community collaboration when the tourism efforts focus on a region as well as specific towns or attractions. The professors are studying community cooperation along Utah Highways 191 and 163 from Moab in the north to Monument Valley in the south. They established economic data as benchmarks for two of the counties. Between 1997 and 1998, Grand County saw a slight increase in wages, payrolls and per capita income. However, San Juan County's wages, payrolls and per capita income has been stable or declining during the past few years. Another indicator of economic growth, new dwelling units, shows a decline in both counties. The Utah State University research, "Developing Virtual Tourism Community Networks," assesses ways of creating a "sense of community" among these economically challenged communities. The study also explores the impact of marketing an entire byway as a single destination point. The professors believe that when communities work together, the overall tourism efforts increase the benefits for all the communities as well as each individual place. 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 courseÑexperts only. (Photo: Angel Crane) Two Approaches Developing a "community of communities" incorporates two approaches: 1. Develop a tourism association. 2. Use electronic information applications to create a "virtual community" that parallels and complements the association. The professors suggest that the tourism association, founded with a grassroots perspective, can meld the various communities into one marketable community package. Appealing to tourists through a cohesive regional presentation rather than a segmented approach holds promise for individual cities and towns in the area. The researchers have also begun to adapt electronic information applications currently available via the federally funded National Scenic Byways Program (http://www.byways.org). They also are reviewing other formats under development. Community Collaboration Potential Cost Reductions Working together, communities can reduce their individual tourism costs, including: ¥ Purchasing ¥ Insurance ¥ Marketing ¥ Emergency and medical equipment CASE STUDY: Utah Highways 191 & 163 Probable Benefits, Potential Challenges Like other teams or cooperative organizations, byway communities working collaboratively can realize greater results than what one individual or one group could achieve. Collaboration allows communities to reduce their individual tourism costs, from purchasing supplies to implementing marketing tactics. Collaborating communities can also increase their effectiveness in lobbying for state and federal funds, further enhancing the economic dividends of their efforts. Each of these cities and towns possesses a local identity and pride that enhances the community's unique character and charm. The same independence brings certain challenges. Who has control? Where are the boundaries? How do the groups share responsibilities? How do they reap the benefits individually? The professors hope their continued research will identify specific challenges and offer suggestions from both "grassroots association" and "virtual" perspectives.  Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations Ohio Byway Links: Connecting for Success AAn organizational model unique among state scenic byway programs, Ohio Byway Links represents a collaboration of Ohio's fourteen current byways. The group focuses on supporting and serving the needs of the state's byways. It extends and enhances the work of Ohio's Department of Transportation. Paul Staley, Ohio State Scenic Byway Coordinator, said, "Ohio's Scenic Byways is a grassroots-driven program that enables the traveling public to experience the many diverse historic, scenic, cultural, natural, recreational and archaeological assets the great state of Ohio has to offer. The pride communities exhibit and the many partnerships that have been created, especially Ohio Byway Links, have made a major impact on Ohio's Scenic Byways." CASE STUDY: Ohio Byway Links In 1999, Ohio Byway Links was a fledgling organization with a big goal of trying to help Ohio's byways and a tiny budget that was "collected by passing the hat." Today, the organization manages nearly $500,000 in program dollars. As a nonprofit educational 501(c)(3) foundation, the group has accepted tax-deductible donations from businesses, individuals and trust accounts. The group is working on statewide efforts to accept additional dollars to expand programming and enhancement efforts. Instead of competing for funding sources, the byways take advantage of cooperative funding opportunities. For example, it would be counterproductive for five individual byway 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. Ohio Byway Links meets twice a year (spring and fall) along different byways across the state. Sharon Strouse, Ohio State University Extension and Amish Country Byway contact, ensures that there is an educational component in every meeting. In 2002, the focus was on interpretation. "Our Ohio byways have resources all along their corridors rich in interpretive opportunities," said Strouse. "On the brink of Ohio's Bicentennial, our organization has offered educational experiences and resources to byway members and organizations to improve our understanding of the importance of Ôinterpreting your byway.' It is our responsibility as byway managers to provide access to diverse activities offering education and skill development for a wide range of audience members." CASE STUDY: Ohio Byway Links As Ohio Byway Links has taken on more and more projects, the group realized it was time to expand the leadership ranks from the current four (president, vice president, treasurer and secretary). The officer corps was increased with four regional representatives at the fall 2002 meeting held in Maumee. They will be responsible for Ohio Byways' Communications, Public Relations and Education/Programs within their areas of the state. Ken Baldwin, Heritage Corridors of Bath representative, is a founding member of Ohio Byway Links. Baldwin explained, "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. 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. One of the organization's strengths has been its ability to build partnerships. Active partners include the Ohio Department of Transportation, Ohio Department of Travel and Tourism, Scenic Ohio, the Ohio Chapter of the Automobile Association of America (AAA), Model T Ford Club International, and Ohio State University Extension. The group has worked hard to nurture positive relationships with key agencies and leaders at all levelsÑlocal, regional, state, and national. The results are evident in an impressive list of accomplishments: Drafted a constitution and bylaws and obtained nonprofit 501(c)(3) status. Published an award-winning Ohio Byway Links map and brochure. Designed "A Sunday Drive Anyday" traveling interactive display for use by byways, libraries, museums and interested communities. Increased public awareness of the byway through media contacts with newspapers, magazines and radio. Printed a newsletter that is distributed to over 1,000 people and agencies. Participated in a landscape aesthetics project partnership with The Ohio Arts Council and Scenic Ohio. Created an Ohio Scenic Byway slide presentation and script for all 14 Ohio byways. Secured a scenic byways grant for a statewide marketing plan. Ohio Byway Links has found a formula that worksÑa clear purpose, dedicated people, strong partners and a passion for the state's roads and special places.  "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 COPY AND DISTRIBUTE Suggested Actions: YOUR STRUCTURE: SUGGESTED ACTIONS ¥ Define your bywayÕs current organizational structure. Review the chart in Appendix A. ¥ List your organizationÕs strengths and weaknesses. Discuss ways to maximize your bywayÕs opportunities and minimize threats. ¥ Evaluate your organizational structure to determine if it is working for you. ¥ 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 Òpeer-to-peerÓ exchange with another byway organization. Learn from each other. Created by AmericaÕs Byways Resource Center COPY AND DISTRIBUTE 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 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 YouÕre Going and What to Expect When You Get There Judith Sharken Simon and J. Terence Donovan, Amherst H. Wilder Foundation, 2001. Notes: Making the Grassroots Grow: Building and Maintaining Effective Byway Organizations