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EightPrinciplesForEffectiveRuralGovernance

AndHowCommunitiesPutThemIntoPractice

Foreword

Thequestforeffectivegovernance,particularlyatthelocalandregionallevels,isoneof

themanychallengesfacingruralAmerica.Happily,effectivegovernancealsoisoneof

thebestopportunitiesforshapingavibrantfutureforruralcommunities.Whomakes

thedecisionsandthewaythattheyaremadeliesattheheartofahealthydemocracy.

Butintoomanypartsofthecountry,especiallyoutsideofmetropolitanareas,

democratictraditionsandprinciplesoftenarethreatenedbyremote,exclusionaryand

illinformeddecisionmaking.For15years,theRuralPolicyResearchInstitute(RUPRI)

hasfocusedattentionontheimpactofpoliciesonruralAmericaandhasprovideda

safespacefordialogueoncriticalissues. Effectivegovernancehasbeen,andwill

continuetobe,atthecenterofRUPRIsvisionforruralAmerica.

Inearly2004,RUPRIandCFED(formerlytheCorporationforEnterpriseDevelopment)

enteredintoajointendeavortoidentifytheprinciplesthatunderliegoodgovernanceat

thecommunitylevel. RUPRIengagedNancyStark,anexperiencedobserverofand

advocateforsmallruraltownsandcommunities,toleadthisendeavor.Knownasthe

RuralGovernanceInitiative,thisprojectuncoveredmanyexcitinginnovationsacross

ruralAmerica,ofteninunexpectedplaces.Theinitiativealsoidentifiedasetofeight

principlesofeffectivegovernance,whichweredescribedinaRUPRIworkingpaper

EffectiveRural

Governance:

What

Is

It?

Does

It

Matter?

Anupdatedversionofthatpaper

comprisesthefirstsectionofthisreport.

ThedesiretotesttheseprinciplesonthegroundledtoaproposaltotheNorthwest

AreaFoundationforaprojectlocatedintheFoundationseightstateregion. Thanksto

theforesightofKarlStauberandElleryJuly,thefoundationcommittedresourcesto

launchtheCommunityClusteringInitiative,athreesitedemonstrationinOregon,

SouthDakotaandWashington. Theresultsofthedemonstrationarepresentedinthe

secondpartofthisreport.

WeareverygratefulnotonlytotheNorthwestAreaFoundation,butalsotothe

communitypartnerswhodoveintotheprojectwithconsiderableenthusiasmand

energy. Inparticular,specialthanksgotoclusterencouragersJoeBaisch,HeidiNogy,

JessicaSchoenhardandAdamZimmerman,andtoregionalintermediarystaff,Bob

Ault,KatherineBarilandBethDavis.Wealsoareindebtedtothecommunity

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participantswhowillinglygaveuptheirtimetoexperimentwithtechnologiesand

unfamiliarconceptsandtoapplythegovernanceprinciplesontheground.

Ihopethatthisworkoncommunityclusteringwillsparkinterestandfurther

developmentamongthepolicymakerandphilanthropiccommunities. RUPRIwill

continuetoexplorethemanydimensionsofruralgovernance,includingtheroleof

intermediariesandtheimplicationsofregionalgovernanceforurbanruralcooperation.

WeintendtolookatruralgovernanceissuesastheyrelatetootherpartsoftheRUPRI

portfolioinhealth,entrepreneurship,humanservicesandtelecommunications.Indeed,

ourworkonentrepreneurshipdevelopmentsystemsitselfstimulatesregionalism,

collaborationandinclusiveness,theverybedrockprinciplesofruralgovernance.

Finally,IwouldliketothankNancyStarkforherdeterminationtotranslatewhatwasa

somewhatamorphousconceptintoatangiblesetofprinciples,andthenapplythemin

threeruralregions.Workingwithconsiderabletimeandbudgetconstraints,sheachievedhergoalswithhumor,graceandinsight.Shehasproducedareportthatis

bothenlighteninganduseful.

BrianDabson

Columbia,Missouri

July2006

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PartI

EffectiveRuralGovernance:WhatIsIt?DoesItMatter?

PartIofthereportdefineseffectivegovernance,explainswhygovernanceissuddenlyinthe

spotlight,anddetailsandillustrateseightkeyprinciplesofeffectiveruralgovernance.

InthemedicallyunderservedregionofnorthernIdaho,workingfamiliesnow

receivequalityhealthcareataregionalcenterstaffedbyphysicians,dentistsand

mentalhealthprofessionalsrecruitedtothearea.

InCaliforniasrural,multiculturalNorthCoast,afourcountyregionnolonger

supportedbyresourcebasedindustriesisnowsproutingfirstgeneration

entrepreneurs.

InanorthernMaineregionplaguedbypopulationloss,communityleadersnowunderstandtheregionsuniqueeconomicclustersandarebuildingbusiness

developmentlinkagesacrosstheCanadianborder.

InaMinnesotaregiondevastatedbytimberandminingindustrydeclines,rural

residentsnowprofitfromtheregionsonestopworkertrainingresourceand

newprivatesectorinvestments.

Whyaretheseencouragingeventsoccurringinsucheconomicallychallengedrural

places?To

what

can

we

attribute

these

improved

social

and

economic

outcomes?

What

aretheunderlyinglessonsforruralleadersandpolicymakers?

Fortwoyears,theRuralPolicyResearchInstitute(RUPRI)investigatedthesevery

questions.TheRUPRIRuralGovernanceInitiative(RGI)wantedtounderstandhow

ruralpeopleandinstitutionsmakedecisionsabouttheircollectivewellbeing,or,in

otherwords,theprocessofgovernance.RUPRIsoughttostrengthenthedecisionmaking

processinruralcommunities,especiallyinstrugglingregions.

Earlierresearchandcommunitysuccessstoriessuggestedthatanswerstothese

questionsdidntliewithapowerfulfundingprogram,anoveldevelopmentstrategyoranexceptionalindividual.Intheseplaces,asinmanyothers,thepushtowards

prosperityderivedfromashiftingovernanceexplicitly,shiftstowardsmoreeffective

governance.

Governanceisntanoveltermforsomethingruralcommunitiesalreadydonorisita

fancysynonymforcommunitydevelopment.Effectivegovernanceisanamalgamof

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specificpracticesthatmakethedifferencebetweenstagnatingandflourishing

communities.Becauseeffectivegovernanceissoinexorablylinkedtoruralprosperity,

RUPRIwasdeterminedtoexplaingovernancetocommunityleaders,practitionersand

policymakersinunderstandableandactionableterms.

[Sidebar] RUPRIsFocusonRuralGovernance

RuralgovernanceisakeyconcernoftheRuralPolicyResearchInstitute

(www.rupri.org)basedattheUniversityofMissouriColumbia.RUPRIconducts

policyrelevantresearchandfacilitatespublicdialoguetohelppolicymakers

understandtheimpactofpublicpoliciesandprogramsonruralareas.Manypolicies

thatarenotexplicitly ruralpolicies neverthelesshavesubstantialimplicationsfor

ruralplaces.RUPRIsruraleffortsfocusonpoverty,health,entrepreneurship,

telecommunications,welfarereform,communityinformaticsandotherpolicyissues.

Overatwoyearperiod,theRUPRIRuralGovernanceInitiative: researchedtherelationshipbetweenthewaythatdecisionsaremade(andwith

whom)andtheresultsthatareachievedinthelongterm;

validatedhowgovernanceaffectseconomicandsocialoutcomes; facilitatedgovernanceconversationsamongcommunityleaders,practitioners

andpolicymakers;

disseminatedguidanceoneffectivelocal/regionalgovernancepractices;and proposedpublicpoliciesthatencourageandsupporteffectivegovernance

practices.

SeveralorganizationscontributedtotheRGIsaccomplishments,includingtheRUPRI

CenterforRuralEntrepreneurship(www.ruraleship.org)andCFED(www.cfed.org),a

nationalnonprofitorganizationfocusedonexpandingeconomicopportunity.

AlthoughtheRuralGovernanceInitiativeconcludedinJuly2006,RUPRIwillcontinue

toexploreandfacilitatethemanydimensionsofeffectiveruralgovernance.

ExactlyWhatisEffectiveGovernance?

Perhapsourgreatestchallengeistocreateandteachanewcivicethosthat

emphasizesandvaluessustainedparticipation,notsporadicandepisodic

participation.Therealtestofthechangeincivicculturewillbesustainabilityin

theengagementprocess.

DonaldLacy,AssociateProfessor,OhioStateUniversity1

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Governanceistheprocessofmakingandcarryingoutdecisions.Initsmostcommon

use,governancereferstothemanagementpracticesofgovernments,includingcities,

counties,specialdistricts,schoolsystems,regionalgovernments,Indianreservations

andstates.EspeciallyinAngloSaxoncountries,goodgovernancedenotesefficiency,

effectiveness,goodvalueforthemoneyanduseofalternativeadministrative

mechanisms.2

Governmentisthemostrecognizedformofgovernance,butitisnotthewholestory.

Effectivegovernanceincorporatesavarietyofdecisionmakingandimplementation

practicesbyawiderangeofpeople,organizationsandinstitutionsbeyondgovernment:

nonprofitgroups,faithbasedorganizations,communityfoundations,citizenalliances,

communitycolleges,businessassociationsandothers.Moreover,effectivegovernance

incorporatescommunitybuilding:processesthatdevelopleadership,enhancesocial

capitalandpersonalnetworksandstrengthenacommunityscapacityfor

improvement.3

InRUPRIsvision,governanceisamuchbroader,moreinclusiveprocess.Governance

isapractice,notjustagovernmentsystem.Thedistinctionismorethansimple

semantics.Whencitizensplaceallofthedecisionmakingpowerabouttheirwellbeing

intothehandsofagovernmentsystem,theyareignoringtheirownresponsibilityand

potentialcontributions,aswellasthoseofotherindividuals,groupsandorganizations.

Decisionmakingthatdoesnotincludethesebroadercontributionsoftenwillbeflawed.

Thepracticeofeffectivegovernanceincorporatesthesebroadercontributionsonan

ongoingbasis

to

ensure

that

decisions

that

affect

the

well

being

of

the

people

are

made

bythepeople,inthetruestsense.)

Thisdeeper,morefarreachingprocesshasthreemajorcomponents:

Collaborationacrosssectors(publicandprivate)andpoliticalboundaries(citiesandcounties).

Thehistoricregionaljointpoweragreementamongonecounty,twocities,aNative

AmericantribeandaschooldistrictinnorthernIdaholaunchedtheBoundary

RegionalHealthCenterisanexcellentexample.Arealeaderscreatedasecondregionalpoweragreementfocusedonenvironmentalandnaturalresourceissues.

TwothirdsofBoundaryCountyisnationalforestland;naturalresourceissuesare

especiallydivisive.

Sustainedcitizenengagement(welcomingnewvoicesincludingyouth,grassrootsvisioning).

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ThedialogueamongCaliforniaNorthCoaststribal,environmental,business,

entrepreneurial,educationalandcommunityhealthleaders(politicallyleft,right

andcenter)envisionedadifferentfutureandisnowalteringtheregions

developmentagenda.RedwoodCoastRuralActions(RCRA)fourcountiescoveran

arealargerthanMassachusetts.Yet,RCRAisforgingfreshpartnershipsamong

business,education,health,environmentalandculturalinterestsandisgenerating

newsupportsforentrepreneurs.

Leveragingregionalresources(capitalizingoncompetitiveadvantages,strengtheningelectedleaders,engagingintermediariesandinvestinglocal

capital).

AnanalysisofregionalcompetitiveadvantagesbroadenednorthernMaines

developmentagendaintoNewBrunswick,Canada.AsAroostookCountyexamineditsregionaleconomicclustersforestproducts,agriculture,tourism,information

technologyandprecisionmanufacturingnewU.S.Canadianbusinessprospects

emerged.

RUPRIbelievesthateffectivegovernancebuildsthefoundationtoengagedisparate

groups,sparkgoodideasandgenerateconcreteresults.Effectivegovernancelaysthe

groundworkthatcomplementsthegoodworkofentrepreneurialdevelopment,

communityinfrastructureimprovements,artisticendeavorsorotherinitiatives.

Effectivegovernance

provides

the

glue

to

coalesce

and

sustain

achievements

over

the

longterm.

RuralAmericashowcasesawiderangeofgeographic,economic,political,culturaland

demographicconditions.Certainly,someruralcommunitiesareprivilegedbystrong

amenities,proximitytoametropolitanarea,etc.,whileothersarenot.Yet,allrural

regionsaregovernedandeachcanstrengthenitsgovernancesystem.

WhyAlltheFussAboutGovernance?

Whatinformationaregovernancedecisionsbasedon?Whatinformationshould

theybebasedon?Whodecides?Howdounprecedentedconversationsthat

resultfromregionalcollaborationchangethecontentandflowofinformation?

Whatstheimpactoncommunitydecisionmaking?Thesearetheimportant

governancequestions.

ShannaRatner,Principal,YellowWoodAssociates,St.Albans,Vermont

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Governancehasbeenattheforefrontforseveralyears.TheFederalReserveBankof

KansasCitys2004conferencefeatureditinamajorcompilationeditedbythreewell

respectedruraleconomists.4Effectivegovernancewasthefocusofseveralrecentstate

legislativesessionsandinternationalgatheringsoftheOrganizationforEconomic

CooperationandDevelopment(OECD).Whyisgovernancereceivingthisattention?

RUPRIseesthreeexplanationsfortherecentspotlightongovernance.

Risingpressuresonruralgovernmentsandtheirleaders.Morethanever,parttimeelected

officialsareshoulderedwithdevolvingadministrativeandfinancialresponsibilitiesand

minimal(orno)professionalsupport.Mostsmalltownofficialsservethepublicwith

fewornoresearchstaff,grantwriters,technicalassistancefundingbasesoreconomic

analysts.5Theymanagerisk,domorewithlessandgetnorespect.Somerural

governmentsreceivemanagementsupportfromregionaldevelopmentorganizations

(RDO),butRDOsstruggleinthesameenvironmentofincreasingadministrativeburdensanddecliningresources.Thesechallengesoffersomeinsightintowhy,evenat

thestateandfederallevels,governmentisnolongertheprimarydestinationofchoice

fortoppublicpolicyschoolgraduates.6

Flawsinthecurrentgoverningsystem.Globalizationandindustrialrestructuringare

shiftingtheeconomiesofU.S.regions.Therearesignseverywherethatrural

communitieswouldbenefitfromgreatercollaboration,citizenparticipationand

regionalanalysis.Yet,ourcurrentsystemofgoverningrarelysupportssuch

approaches.Most

state

and

federal

funding

operates

in

narrow,

programmatic

silos

that

prohibitordiscouragecollaborationacrosssectorsandjurisdictions.Thus,rural

communitiesactunilaterally,withonecommunityseconomicdevelopmentplanpitted

againstanother.Publicprogramsalsoexpectswift,measurableoutcomes,despitethe

realitythatmeaningfulchangerequirestimeandpatientresources.

Spotty,butheartening,ruralgovernanceinnovationsintroducedbystategovernmentsand

philanthropicorganizations.Forexample,theMainelegislaturerecentlyenactedanew

lawtopromoteintergovernmentalcooperation,costsavingsandefficiencies.Theact

will,amongotherthings,helplocalandregionalcostsavings.

Therearemurmuringsofparallelproposalsinotherstatesaswell.AWestVirginia

GovernorsCommissionrecentlydevelopedthreepiecesofdraftlegislationon

city/municipalityconsolidation,metrogovernmentcreationandcountyconsolidation.7

Thelegislationestablishesaframeworkforcitiesandcountiestodiscussanddetermine

ifanewformofgovernanceconsolidation,metro,regionalisappropriate.The

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statesnewlookatregionalismmayhelpWestVirginiareimagineitselfwithout

compellinglocalgovernmentstocoordinateormerge.8

Onthephilanthropicside,severalmajorfoundationssuchasBlandin,McKnightand

KelloggandsomecommunityfunderssuchastheClevelandFoundationhaveputtheir

moneybehindcollaboration.MinnesotasRegionalEconomicDevelopment(RED)

Group,supportedbytheBlandinandMcKnightFoundations,isanambitious

experimentinnewgovernance.TheGroupteststheideathatmorethan30stateand

regionalorganizationscanaligntheirprinciples,effortsandresourcestosupport

regionbasedeconomicdevelopmentprojects.9Similarly,theW.K.Kellogg

EntrepreneurshipDevelopmentSystemsforRuralAmericaProjectcompetition,

managedbyCFED,requiredthatapplicantsestablishworkingcollaboratives.10

ThistrendisunderscoredinacommentarybyCommunityDevelopmentEconomist

StevenDeller:

Indealingwithincreasinglycomplexpublicissuesandevertighteningresources,

publicofficialsandconcernedcitizensmustlooktogovernancealternativesand

nottiethemselvestotraditionalwaysofdoingthings.11

RUPRIanorganizationfocusedonanalyzingpublicpolicyimpactsonruralpeople

andplaceslaunchedtheRuralGovernanceInitiativetosupportthistrendtoward

effectivegovernance.

EightKeyPrinciplesofEffectiveGovernance

Whichgovernancepracticesmakethedifferencebetweenstagnatingandflourishing

communities?Howcanthesepracticesbeadoptedbyruralleadersandsupportedby

stateandfederalpolicymakers?

Drawingonitspracticalresearch,RUPRIoffersthefollowingkeyprinciplesofeffective

governance.Theeightprinciplesaregroupedunderthreemajorthemes:collaboration

acrossstates,sustainedcitizenengagementandleveragingregionalresources.

Thisguidanceistargetedtoarangeofruraldevelopmentpractitionersand

policymakers,including:

localleaders(formalandinformal,governmentalandnongovernmental); localandregionalinstitutions(publicschools,communitycolleges,hospitals);

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intermediaryorganizationsandagencies(economicdevelopmentdistricts,stateagencies,CooperativeExtensionService,statemunicipalandcounty

associations);

funders;and stateandfederallegislatorsandexecutives.

RUPRItruststhatguidanceoneffectivegovernancewillleadtostrongerrural

developmentpracticesinthedirtandsmarterpoliciesonthehill.

[Chart]EightKeyPrinciplesofEffectiveRuralGovernance

Collaboration

1. Crossingsectors(public,private,nonprofit)2. Crossingpoliticalboundaries,recognizingregions

SustainedCitizenEngagement

3. Welcomingnewvoices(especiallyunderrepresentedindividualsandyouth)4. Visioningadifferentfuture(bottomupprocess)

LeveragingRegionalResources

5. Analyzingregionscompetitiveadvantages(focusonstrengths,identifyclusters)6. Strengtheningcompetenciesoflocalelectedofficials7. Engagingkeyintermediaries8.

Investing

local

capital

Collaboration

Weknowthatwiththereductioninfundingandthesophisticationrequired

fromexistingfundingsources,collaborationwillincreaseourchancesof

successfullyaddressingthemanyissuesthatfacecommunitiestoday.

LeAnnSimmons,UnitedWayofTreasureValley,Idaho12

Principle1:Crossingsectors

Whyisthepracticeofcollaborationacrosssectorsuniversallyendorsedbutrarely

accomplished?Answer:becauseitisverychallengingwork.

Communitybasedcollaborationistheprocessbywhichcitizens,agencies,

organizationsandbusinessesmakeformal,sustainedcommitmentstoworktogetherto

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accomplishasharedvision.13Inthelanguageofpartneringarrangements,collaboration

isthehighestandmostdifficultlevelofworkingwithothersmoreformalthan

networking,cooperationandcoordination.14Butinmanyruralregions,even

networkingacrosssectorscanbetough.

Insomecommunities,theabyssbetweenruralelectedofficialsandcommunitybuilders

isespeciallywide.(Thetermcommunitybuilderreferstoanynongovernmental

individualand/orgroup,formalorinformal,workingtostrengthenthecommunityor

region.15)Localgovernmentsmayengagewithcommunitybuildersinwaysthatrange

fromundermining,toneutral,tosupportive.Likewise,communitybuildersmay

interactwithlocalgovernmentsinwaysthatvaryfromconfrontational,toneutral,to

collaborative.16

Associationsbetweenthesectorsaresovital,yettricky,thattheRoundtableon

CommunityChangeattheAspenInstitutelaunchedadiscreteresearchandpracticeinitiativeonthetopic.TheRoundtablesprojectonLocalGovernmentandCommunity

Buildingiscollectinganddisseminatinginformationabouttheprerequisitesto

successfulengagementbetweencommunitybuildersandlocalgovernment.17To

encouragecommunitybuildersthatlocalgovernmentcanbetrusted,isimportantin

effortstoimprovecommunityoutcomesandshouldnotbeignored,theRoundtable

observes:

Beyondfinancing,localgovernmenthasthecapacitytoaffectlowincome

communitiesin

amyriad

of

ways

through

its

public

policies,

rules

and

regulations,discretionarydecisionmakingauthority,purchasingandinvestment

decisions,relationshipswithregionalauthorities,andsoon.18

Inthesamevein,RUPRIisencouraginglocalelectedleaderstocrosstheinstitutional

faultlinesamongpublic,privateandnonprofitconstituenciestoacknowledgethatno

communityiswellgovernedbyafewhighlyvocalindividualsorgroups,especiallyif

thosehighlyvocalindividualsareallelectedofficials.Likewise,RUPRIispressing

policymakerstoreducethenarrow,programmaticsilosthatprohibitordiscourage

collaborationacrosssectorsandtoinstitutenewpoliciesthatfacilitatecrosssector

partnerships.

[CaseStudy1]

CrossSectorCollaborationResolvesSevereHealthHazard

Inearly2000,theU.S.EnvironmentalProtectionAgency(EPA)designatedalargepart

ofJasperCounty,MissouriasaFederalSuperfundSiteduetodangerouslevelsoflead

contamination.Businessleadersandelectedofficialsimmediatelyrealizedthatthe

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designationcouldhavedisastrousconsequencesforeconomicdevelopmentand,most

important,onthehealthoflocalchildren.Today,bloodleadlevelsamongthecountys

childrenareinthesafezone,belowthenationalaverage.JasperCountyachievedthis

successbysettingnarrowmindednessasideandcollaboratingacrosssectors.

Intheearly1900s,JasperCountywastheheartofthelargestleadminingregioninthe

world.Acenturylater,thecountydiscoveredthepriceforthoseexcessesintheformof

leadandotherheavymetalsthathadbeendepositedontheland.Thelongtermeffects

ofchildhoodleadpoisoningaresevere:reducedIQ,learningdisabilities,hearingloss,

reducedheightandhyperactivity.Excessiveleadexposurecancausecoma,convulsion

andevendeath.Theseriskswereunacceptable.

Thecountysresponsewasimmediateandinnovative.Thecountycommissioner

establishedanEnvironmentalTaskForceofJasperand(neighboring)NewtonCounties

toprovideguidanceandleadershipinresolvingtheproblem,withhelpfromthefederalgovernment.The25membertaskforceincludedabroadmixofpublicand

privateindividuals:countycommissioners,mayors,EPAandMissouriDepartmentof

NaturalResourcesrepresentatives,businessleaders,schoolofficials,healthofficials,

concernedcitizensandaconsultingengineer.

Thediversegrouplookedatalloftheenvironmentalissuesaffectingbothcountiesand

developedoneofthefirstcountylevelenvironmentalmasterplansinthenation.One

innovativesolution,latercommendedbyEPA,encapsulatedleadwasteintheroadbed

ofalocal

highway.

The

task

force

also

designed

acreative

public

awareness

campaign

toeducatecitizensaboutthedangersoflead.Itincludedcoloringbooks,noleadGirl

Scoutbadges,modelschoolcurriculumandmore.

Theeffortsucceeded,saysformerJasperCountyCommissionerAnnaRuth

Crampton,becausewesetlocalandterritorialissuesaside.Weconcentratedonthe

largerenvironmentalproblemsthreateningthewelfareofJasperandNewtonCounty

citizens.

AdaptedfromJasperCountyswinningapplicationtothe2004NationalAssociationof

Counties(NACO)CaucusCourthouseAward.

Principle2:Collaborationacrosspoliticalboundaries

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Fewoftheproblemsthatfaceruralcommunitiesrespectjurisdictional

boundaries.Thetruthisfewruralcommunitieshavesufficientresourcesand

populationtoattractcompetitivelypricedinfrastructure,facilitiesandservices.

Therefore,individualcommunitiesmustjoinwithothersincreatingregional

approachestodevelopment.Likewise,itonlymakessenseforgovernmentsto

allowandencouragesuchregionalcooperation.

TheNebraskaCityDeclarationissuedonOctober18,2002,followingthe

SummitonRuralAmerica.

InruralAmerica,fencesoftenseemtocircumscribeacommunityspoliticalborders,

blockingcollaborationwithneighboringtowns,citiesorcounties.Beitancientgrudges

fromsportscompetitions,resentmentoverbusinesslocationdecisionsornewdesiresto

blockoffthegrowingimmigrantpopulation,manyruralcommunitiesthwart

collaborationacrosspoliticalboundaries.

Ironically,thissinglemindedattitudeislikelyfeedingthefiresofstatecampaignsfor

consolidationamongcitiesandcounties.Voluntarycooperationmaywellbeasmall

communitysbestdefenseagainstcoercedconsolidation,especiallyintheefficientuse

oflimitedresources.

Therearelegitimatereasonswhytowns,citiesorcountiesactunilaterally.Yet,inanera

ofdevolvingpublicresponsibilities,governmentcutbacksandlimitedphilanthropic

resources,neighboringcommunitiesneedtoworktogether.Thisrealityisespecially

truefor

isolated

rural

communities.

For

services

that

are

capital

intensive,

such

as

publicworks,equipmentsharingacrosscommunitiescansavemoney.Economiesof

scalealsoexistinmanybackofficeservicessuchasdispatchingandpayroll.19

Itmakessensetocollaborateacrosspoliticalboundariesbecausesomanycritical

economicandsocialissuesoverflowacommunitysborders.Economicdevelopment,in

particular,ismosteffectivelyaccomplishedonaregionalbasis,startingwithananalysis

oftheregionsuniquecompetitiveadvantages.

Finally,collaborationleveragespoliticalpower.Individualtowns,actingontheirown,

donthavesufficientpoliticalclouttoaffectpolicy.Aregionofcommunities,teamingtogether,canpromptchange.

Thestarkrealityofscarceresourcesoftentimesforcescontentiousneighborstowork

together.Forexample,thestateofNewMexico,theNavajoNationanditsneighboring

cityofGalluparenowcollaboratingoverwaterrightstotheSanJuanRiver.The

dawningawarenessofscarcityfinallybroughtpeopletogether.WhentheSanJuan

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flowedabundantly,thequestionoffirstrightswasirrelevant.Aseveredroughtin2002

startedtheshiftinattitudes.Incommentingonthewatersettlement,aconsultantto

Gallupsaid:

Itsavastseachangeinthinkingonbothsidesoftheculturaldividebetween

IndianandnonIndian.Itsaysthatwehaveacommonfuture,thatwehavea

commondirectiontogoin,thatyourdoingwellisimportantformetodowell.20

Thechallengetocollaborationacrosspoliticalboundariesiskeepingplaceisabroader

spacepromotingregionalstrategieswithoutsacrificinglocalintegrity.AsRUPRI

DirectorCharlesFluhartyexplains:

Acommunitysuniquecultureandcontextmustremainnestedwithinthenew

regionalapproach.Whileourfuturemustnotbeconstrainedbytheperspective

ofan1860surveyortheculturalcontextandcommunityframingwhichinformthesemyopiasarealsoastorehouseofgreatwisdom,passionandcommitment.21

[CaseStudy2]

CollaborationAmongTownsImprovesMunicipalServices

TheTownsofMapleton,CastleHillandChapmansavecapitalequipmentexpensesand

providemoreefficient,betterstaffedservicesbecausetheycollaborateacrosspolitical

boundaries.ThesethreesmalltownsinruralAroostookCounty,Mainehavealong

historyof

sharing

services.

Beginning

with

acooperative

fire

department,

the

towns

periodicallysplitservicesandequipmentasamatterofconvenience.

Inthemid1970s,thecollaborationmaturedintoamoreformalized,longterm

arrangement.Thetownsagreedtoconstructamunicipalbuildingtohousegeneral

governmentadministrationandthefireandhighwaydepartments.Localofficials

draftedaformaljointownershipagreementthatincorporatedlongtermmaintenance

andrepairsforthestructure.

Inthemid1980s,townleadersestablishedamileagebasedformulaforsharing

highwayexpenses.Overa12yearperiod,theseincrementaleffortsledtoacomprehensiveinterlocalagreementamongthethreetownsthatremainsineffect

today.Eightypercentofthetownsannualbudgetsarenowcostshared.

Theinterlocalagreementestablishesaformalrelationshipamongthetownsby

definingthefollowing:eachtownsresponsibilitiestotheagreement,costsharing

formulas,activitiestobeshared(nearlyallservices),andtheprocessandfinancial

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obligationsassociatedwithjoiningorwithdrawingfromtheagreement.Theagreement

worksbecausegoalsforservicesaresimilaramongthetowns;trusthasdeveloped;

localofficialsareequallydedicatedtotheagreement;andtherearecleargeographic

advantages(alltownsareabutting).

Asaresultoftheinterlocalagreement,thethreetownssavetaxpayerdollars;havea

moreefficientandbettertrainedstaff;andmaintainlesscapitalequipment(especially

plowtrucks,gradersandfiretrucks).Thecollaborationisapromisingmodelforother

smallcommunities.

InformationprovidedbyJohnEdgecomb,TownManagerforMapleton,CastleHilland

Chapman.

[CaseStudy3]ScarceResourcesInspireWinningCollaboration

TherealityofscarceresourcespushedseveralnorthernIdahocommunitiesanda

NativeAmericantribetocrosssectorsandpoliticalboundaries.Localleaderscreated

tworegionaljointgoverningagreements:onetopromoteeconomichealthandanother

toworkonenvironmentalandnaturalresourceissues.Agreementparticipantsinclude

BoundaryCounty,theCityofBonnersFerry,theKootenaiTribeofIdaho,theCityof

MoyieSpring,andBoundaryCountySchoolDistrict#101.

Byjoining

collectively,

the

region

has

achieved

the

following

outcomes:

Completelyrebuiltthedowntownbusinesscorridor.Addednewconcretestreets,sidewalks,lighting,landscaping,stormdrains,ADAaccess.

ReconstructedandwidenedthemainhighwayintoBonnersFerrytoincludesidewalks,lighting,curbsandgutters.

Securedfundingtoconnecttwoseparatebusinesscenterswithapedestrianunderpass.

Securedfundingtobuildaninternationalgatewayvisitorcenter,landscapedparkingandrestareainthedowntowncorridorofBonnersFerry.

Launchedconstructionofanewregionalpublichighschoolandrenovatedandmodernizedtheregionaljuniorhigh/middleschoolandallelementaryschools.

EstablishedanewBoundaryRegionalHealthCenterandsuccessfullyrecruitedphysicians,dentistsandmentalhealthprofessionalstothearea.

ContractedwithEPAtocompletetheareasTotalMaximumDailyLoadsstudyrequirements,asrequiredbythefederalCleanWaterAct.

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SuccessfullyavoidedincludingtheKootenaiRiverBurbotontheEndangeredSpeciesAct(ESA)listbyworkingcollaborativelytoestablishrecoveryefforts

outsideoftheESA.SincetwothirdsofBoundaryCountyisnationalforest

land,theESAisabigissue.

[CaseStudy4]

CollaborationAlongtheNewRiverCorridor

In1997,NewRivercommunityleadersinthemountainsofNorthCarolina,Virginia

andWestVirginiacametogethertoidentifycriticalissuesanddevelopasharedvision

ofworkingtogetherforthefutureoftheriver.Thisunprecedentedregionaleffortwas

sparkedbytheClintonAdministrationsAmericanHeritageRiversInitiative.The

InitiativewasdesignedtohelpAmericansprotecttheirwaterwaysandrevitalizetheir

communitiesthroughnaturalresourceprotection,culturalresourcepreservationand

economicrevitalization.TheNewhadahistoryofriverenthusiasts,butthisinitiativewasthefirsttimethatcitizensjoinedtogether,acrossabroadregion,toworkfor

somethingpositive.

LeaderssetouttobuildsupportfornominatingtheNewasanAmericanHeritage

River.TheheritagepartwaseasytheNewisthoughttobetheoldestriverinNorth

Americaandthesecondoldestintheworld,predatingtheformationofthe

AppalachianMountainsandtheAtlanticOcean.Buttheorganizingworkwastough.

Overlatenightsuppers,earlymorningbreakfastsandkitchentabletalksthroughout

theregion,

local

leaders

met,

broke

bread,

told

stories,

swapped

lies

and

planned

forthefutureoftherivertheylove.Folksfromallwalksoflifecametogether:

economicdevelopers,conservationists,farmers,tourismleaders,artists,eldersand

youngpeople.

TheNewRivernominationcompetedwith125otherriversacrossthecountry.Elected

officialsfrombothpartiesendorsedthedesignation.Citizenssubmitteddozensof

lettersofsupport,alongwithhundredsofsignaturesonpetitionsthathadbeen

circulatedatregionalcommunityfestivals.Creativewritingstudentswrotestories,

poemsandessaysthatpaintedaliterarypictureoflifealongtheNewRiver.NewRiver

leaderswererelentlessintheirpursuit.Intheend,theNewwasoneof14designatedrivers.

Since1998,morethan2,000citizensandnumerouselectedofficialsfrom21countiesin

threestateshaveworkedtodevelopandimplementtheNewRiverworkplan.More

than$20millioninpublicandprivatefundshavebeensecuredtosupportsustainable

agricultureprojects,purchaseconservationeasements,plantbuffersalongtheriverand

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streams,cleanupandrestoredegradedmines,developriverfrontparksandvisitor

centers,promotedowntownrevitalizationandheritagetourismdevelopment,collect

oralhistoriesanddevelopyouthcorpsprograms.

Formoreinformation,contactTheConservationFund:www.conservationfund.org.

SustainedCitizenEngagement

Principle3:Welcomingnewvoices

Iseesomanyruralcommunitiesstuckinacircularformoflogic.Ifthesame

peoplekeepdoingthesamething,theyarelikelytogetthesameresult.The

problemis,howdoyougetdifferentpeople?Howdoyougetdifferentideas?Howdoyougetthecommunitytoembracethesenewideas?

TerryWaugh,NebraskaRuralInitiative22

ThesequestionshauntmanysmalltownsacrossruralAmerica.Itdoesnttakea

doctoraldegreeinruraleconomicstoknowthatbetterresultsrarelyarisefromthe

samepeopledoingthesamething.Butchangingtheleadershipmixistoughwork;it

runsagainstthegrain.Thereisnofailproofformulaforgeneratingnewleaders,be

theycivicleadersorelectedofficials.Buttheresarightwaytostarttheprocess:by

welcomingnew

voices,

especially

those

of

people

who

have

not

traditionally

served

in

leadershippositions.

WhoarethenewvoicesinruralAmerica?Sometimestheyarenewcomerswho,if

genuinelywelcomedintotheprocess,cancontributefreshideasandaccesstonew

networks.Newvoicesmaybepeoplewhohaveresidedintheregionfordecades,but

havenot(yet)volunteeredtheirtalentsorbeenaskedtocontributetheirideas.They

maybehandsthathavehelped,notmouthswhohavespoken.Newvoicesmaybe

AfricanAmericansorNativeAmericanswhoareactiveintheirchurches,tribalcouncils

andsportsleagues,butjudgethetownsdominantwhiteleadershipasanunwelcome

mat.

Newvoicesmaybeartisans,musicians,preschoolteachersandunconventionalthinkers

whoseeeconomicandsocialissuesthroughadifferentlens.Thesepeopleareoften

quietandarebestenlistedthroughoneononeconversationsorsmallhousegatherings.

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Newvoicesmaybewomenwhoassistwithschoolorchurchfundraisers,butdonot

(yet)envisionthemselvesasleadershipmaterial.Womenstartbusinessesattwicethe

rateasmenandstayinbusinesslonger.23Certainly,ruralcommunitiesarefullof

womenwhocanbecomestrongpublicentrepreneurs.

NewvoicesmaycomefromruralAmericastremendousgrowthinimmigrant,

especiallyHispanic,populations.MostimmigrantscometotheUnitesStatesbecauseof

limitedeconomicoptionsintheirhomecountry.Theybringanentrepreneurialspirit

thatbreedsnewbusinessventures.Thatsamespiritcangeneratenewideasforthe

communitysdevelopmentmoreideasanddifferentideasbecausetheyoriginatefrom

diverseperspectivesandbackgrounds.24

AcaseinpointisGardenCity,Kansas,hometoalargemeatpackingindustry.Atleast

onethirdofthecityspopulationisnowimmigrant,drawingfromMexico,Centraland

SouthAmerica,SoutheastAsia,Somaliaandotherplaces.SeveralHispaniccitizenshaveservedonthecitycommission,yetthetownisstillsearchingfornewvoices.Like

manymunicipalities,GardenCityhostsaformalLeadershipGardenCityprogram

designedtoeducatecurrentandfutureleadersinthecommunity.Afewyearsago,the

programtransitionedfromfocusingonindividualswithpositionsandconnectionsto

focusingonpeoplewithpassionandconviction.Astheprogramdirectorexplains:

Wewerentseeingasmuchchangegeneratedinthecommunitybygraduatesof

theprogramaswewantedto.Wethinkeffectiveleadershipcomes,first,from

selfawareness

and

personal

conviction,

not

position

and

connections.

25

Lastbutnotleast,newvoicesmaybeyouth.RuralAmericalamentstheexodusof

youngpeople,yetfewcommunitiesproactivelyengageyouthinlocaldecisionmaking.

Why?Youthleadershipprogramsimpartskillsforyoungpeopletopracticeintheir

communities.Yet,thecommonresponsetoyouthspresenceis:Wonderful,hereis

someonetosellthedonutsordothecleanup.26Ifmoreyoungpeopleservedonofficial

planningcommittees,orchestratedlocaleventsandgainedentrepreneurshipskills,

perhapsfeweryouthwouldleavetheircommunities.Ormaybemoreyouthwould

returnhomeyearslatertoraisefamiliesandstartnewbusinesses.

TheHometownCompetitivenessprogram(HTC)implementedthisapproach.A

collaborativeeffortoftheHeartlandCenterforLeadershipDevelopment,theRUPRI

CenterforRuralEntrepreneurship,andtheNebraskaCommunityFoundation,27HTC

(www.htcnebraska.org)isacomprehensivestrategyforlongtermruralcommunity

sustainability.Itencouragescommunitiestotakeactioninfourstrategicareas

leadership,youth,entrepreneurshipandcharitableassets.Thegoalofyouth

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developmentistosupportandenhancetheideaofadultsandyouthworkingtogether

tocreateopportunitiesforyouthtostayinorreturntothecommunity.

HTClearnedlessonsaboutbroadyouthengagementbywatchinghowrural

communitiestalkabouttheiryoungpeople.Peoplebragabouttheassetsoftheirtop

scholarsthestudentswholeavehomeafterhighschoolandrarelyreturn.Butthey

forgettorecognizetheassetsofyouthwhoarenotstraightAstudentsthekidswho

arenotreinforcedbytraditionalacademics,butcouldbebuddingentrepreneursor

tradespeople.HTCchallengescommunitiestoconnecttheseyouthtoentrepreneurial

developmentopportunitiesandtoofferscholarshipstoyouthwhochoosetoremain

closetohome.

Anotherorganizingtoolforcivicengagement,includingyouth,isIntergenerational

Dialogue&Action,anunusualprocesscreatedbyJamesGambone.Aspartofan

overalleconomicdevelopmentstrategy,theID&Aprocessinvolvesallgenerationsinacommunity.AnIntergenerationalDialogueeventisaoneday,sixhourmeetingin

whichcitizensofallagessharetheiruniqueperspectivesonacommunityselectedissue

anddevelopactionplansforchange.28Theexperienceallowsinformalleadersand

novelideastoemerge.Becausesolutionsarisefromthecommunityitself,theyusually

areembracedbythemajorityofresidents.29

[CaseStudy5]

New

Voices

Mend

Political

Fences

ThefollowingisaninterviewwithKuna,IdahoCouncilmemberZellaJohnson,former

presidentofKunaACT(AllianceforaCohesiveCommunityTeam),agrassroots

citizensgroup.

Everycommunityhasitsissuesandourswasthatcommunicationwasterrible.The

communitywasdivided.Youwereononesideoranother.Therewerenosynergistic

qualitiestothecommunitywhatsoever.

Andtherewasnopublicinput.Thecitycouncilandthemayorprettymuchdidasthey

pleased.Theywouldsay,thisiswhatweregoingtodoandthatsthewayitis.Peoplebecameangrybecausetheydidntfeeltheyhadavoiceinanyofthedecisions.Soa

groupofusthoughtthepeopleneededmoreofasayastowhatwasgoingonintheir

communityandtheyneededtobuckthesystemalittlebit.Thatswhenweorganizeda

studycircle.

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(Astudycircleisagroupof812peoplefromdifferentbackgroundsandviewpoints

whomeetseveraltimestotalkaboutanissue.Inastudycircle,everyonehasanequal

voiceandpeopletrytounderstandeachothersviews.Theydonothavetoagreewith

eachother.Theideaistoshareconcernsandlookforwaystomakethingsbetter.A

facilitatorhelpsthegroupfocusondifferentviewsandmakessurethediscussiongoes

well.)

IwouldsaythatthestudycirclewasthereasonIdecidedtojointhetowncouncil.

WhenIsatinthestudycircle,IrealizedthatIwasnttheonlypersondisgruntledwith

thecurrentgovernment.IdidntthinkforamillionyearsthatIwouldeverrunfor

office,butIcouldseethatweneedednewleadershipandachangeinthecommunity.

Weneededtohavemoredemocracy.

IfeelthatthedynamicsofKuna,andhowwecommunicate,havecompletelychanged

duetothestudycircleprocess.Now,whenthecommunityconfrontsbigissueslikeschoolreform,comprehensiveplansandeconomicdevelopment,thepeoplesay,lets

takeittostudycircles.

AdaptedfromaninterviewpublishedinFocusonStudyCircles,Fall2004,StudyCircles

ResourceCenter.Moreinformationaboutstudycirclesisavailableat

www.studycircles.org.

[CaseStudy

6]

AUniqueResponsetoRuralYouthBrainDrain

ThesmalltownofElsa,Texasislocated15milesnorthoftheTexasMexicanborderin

theRioGrandeValley.Forgenerations,thisregionhasbeenisolatedgeographically

andsocially.Intheearly1920s,realestateanddevelopmentcompaniescameintothe

area,creatingwhatisstillknownastheMagicValley. Theybuiltaneconomy

dependentonuneducatedandpoorlypaidMexicanlaborers.

TheregionalEdcouchElsaHighSchool(EEHS)servesthestatesfourthpoorestpublic

schooldistrict.Approximately98percentofthestudentbodyisofMexicanorigin.Since

1992,EEHShasoperatedanationallyrecognizedcollegeplacementprogram,sendingmorethan80highschoolgraduatestoIvyLeagueuniversities.Thisachievementisa

tremendousoneforaschooldistrictinwhichapproximately90percentofthe

householdshaveanannualincomeoflessthan$10,000andfewparentshaveahigh

schooldiplomaorfluencyinEnglish.

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In1997,localleadersestablishedtheLlanoGrandeCenterforResearchand

Development,aschool andcommunitybasedorganizationhousedatEEHS.The

Centernurturesgrassroots,youthdirectedprojectsaimedatsolvinglocalproblems.

Thisuniqueagendagrewoutofits1997workmappingcommunityassets.Localyouth

whowereleavingtheEdcouchElsacommunityinpursuitofhighereducationatelite

universitieswereamongthemostcriticalassetsidentified.TheCenterviewedthistrend

notasabraindrain,butasahemorrhagingofcommunityassets.Elsasleaders

soughttoreclaimtalentedhumanresourcesbyengaginglocalyouth.

InJune1999,ErnestoAyala,a1995graduateofBrownUniversity,returnedtoElsato

givesomethingbacktothecommunity. HiredastheCentersDirectorof

CommunityBasedResearch(nowitsDirectorofFinance),Ayalataughtstudentshow

toemploysurveyresearchtoidentify,understandanddevisesolutionstopressing

communityproblems.

Today,youthdrawonavarietyoftoolstoresearch,strategizeandcommunicate

solutionsforcommunityandeconomicdevelopmentconcerns.Throughanemaillist

serve,manyEEHSgraduatescontributeideasandstrategiesforprojectsbackhome.

Somestudentsreturntothearea,duringschoolandsummervacations,toorchestrate

communityresearch,communicationsandpolicydevelopmentefforts.

TheCentersworkhascreatedamultitudeofjobs(parttimeandfulltime)and

providedhighschoolstudentswithprofessionalskills(inresearch,interviewingand

radioand

video

production)

for

future

careers.

Equally

important,

the

Center

is

groundingkidsinthecommunity.AsCenterExecutiveDirectorFranciscoGuajardo

explains,Whenkidsunderstandtheircommunityandareproudofit,theyhavea

reasontocomeback.30

AdaptedfromacasestudyonElsa,TexasinTechnologyandGritattheGrassroots,a

publicationoftheNationalCenterforSmallCommunities.31LlanoGrandeCenterfor

ResearchandDevelopmentWebsite:www.llanogrande.org.

Principle4:Visioningadifferentfuture

Agenerationofworkincommunitydevelopmenthastaughtusthatsuccessful

communityrenewalinvariablyspringsfromwithin,whenthepeoplewhocare

aboutacommunityjointogetherinfiercedeterminationtorevivetheircivicand

economicfortunes,whatevertheobstacles.

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ProgramfortheRuralCarolinas,TheDukeEndowment32

Thrivingcommunitiesdovisioningfromthebottomup.Regrettably,mostcommunities

doexactlytheopposite theyplanfromthetopdown.Typically,acommitteeofkey

decisionmakersexaminestheregionsstrengths,weaknesses,opportunitiesandthreats

(SWOTanalysis)anddesignsavisionforthefuture.Thevisionistranslatedintogoals,

packagedintospecificprojectsandpresentedtothecitizenry.Consultationwiththe

publictakestheformofmarketingthevision,goalsandprojectsthroughnewspaper

articles,Websitepostingsandpublicmeetingsaftertheplanisdeveloped.Thepublicis

informed,butnotengaged.33Thisapproachisineffectivegovernance.

Bottomupvisioningoperatesdifferently.Ithonorstheprinciplethateveryonehasa

say;nooneownstheprocessnotthesparkplugs,thechampionsorthecityfathers.

Visioningbeginsnotwithacommitteeofkeydecisionmakersbutwitheveryday

people:seniorslivingonfixedincomes,retailclerks,highschoolstudents,lowincomefamilies,shopowners,parentsofyoungchildren,governmentworkersandanyoneelse

whochoosestoparticipate.

Ameaningfulvisioningprocessequipsordinarypeoplewithsufficientknowledgeand

toolstorationallychartadifferentfuture.Ittruststhatwhenyouconnectpeople,

productivethingshappen,nomatterhowmessytheprocessfeels(especiallyatthe

onset).Equallyimportant,theprocesshashonestfollowthrough.Asanexperienced

ruraldevelopmentpractitionerexplains:

Peoplehavealotofexperiencesinbrainstormingandvisioningthatarenot

valuable.Theconvenerssaythattheywanttohearpeoplesfeelingsandideas,

buttheoutputgoesnowhereandpeoplefeeldiminished.Itsnotatruthful

process.34

Avarietyofbottomupvisioningapproachesaretaughtand/orledbytheExtension

Service,communityfoundations,countyplanners,privateconsultantsandothers.The

individualtechniquesvary35,butallvisioningshoulddothreethings.First,visioning

shouldturntraditionalstrategicplanningonitshead(seefigurebelow).Themost

legitimatevisioningbeginswithcitizeninputandthengraduallyevolvesfrombigpicturevisionstocommunitygoalstoconcreteprojects.Bybringingpeopletogetherto

collaborativelycraftavisionforthefuture,ideasbecomerealityfasterandwithgreater

consensus.

[Figure]VisioningCreatesNewRolesforCommunityCitizens36

ADDFIGUREHERE.PULLFROMPDF

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Second,visioningshouldembraceassetbasedthinking.37Theactoffocusingonassets

ratherthanproblemsorneedsrevolutionizesacommunitysperspective.Finally,

visioningshouldbalancethetough,bigpictureworkwithachievableprojects.As

futuristJoelBarkerexplains:Visionwithoutactionismerelyadream.Actionwithout

visionjustpassesthetime.Visionwithactioncanchangetheworld.38Inthearenaof

communityandeconomicdevelopment,peopleoftenacttoolongbeforetheyplanor

plantoolongbeforetheyact.

Theoverplanningcommunitiesdotalltheis,crossallthetsandsetallshortterm

projectsaside.Whenplanningisdivorcedfromaction,peopleoftenlosefaithand

interestandtheprocessdiesonthevine.39Elaborate,timeconsumingandexpensive

planningexercisestypicallydontworkwellformanyruralcommunities.Other

communitiesthinktoosmall theysitonthebenchesonMainStreetandgonofurther.

Thesecommunitiesaresofocusedonindividualprojectsthattheyneverdevelopthe

capacityfordeepandlastingchange.40

Communitiesthatcanthinkbig,whilealsoidentifyingandcarryingoutmanageable

projects,arebetterabletogenerateandsustaincommunityengagement.Concrete

resultsbreedconfidenceandenergy;publiccelebrationsoftheresultsbuildsupportfor

thetougher,biggerpicturework.

LeveragingRegionalResources

Principle5:Analyzingtheregionscompetitiveadvantages

Ruraleconomicdevelopmentmustfocusontheuniquestrengthsofeacharea,

ratherthanconcentratingonamelioratinggenericweaknesses.

MichaelPorter,CompetitivenessinRuralU.S.Regions41

Everyruralregionisunique.Certainly,manyruralareassharecommonsocialand

economicchallengesassociatedwithlowpopulationdensity.Yet,nosingle

developmentstrategysuitseveryruralregion.Tomovetowardsprosperity,rural

communitiesmustcollaborateacrosspoliticalboundariesandcapitalizeontheregions

distinctivecompetitiveadvantages.

Successfuldevelopmentpoliciesorstrategiesareregionspecific theybuildonwhatis

uniqueandvaluabletotheregionsresidents.42Thisfundamentalingredientof

governancecanbeaccomplishedwithoutsurrenderingacommunitysindividual

identity.

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Therearemanyapproachestoanalyzingaregionseconomiccompetitiveness.But

regardlessoftechnique,thereisgrowingconsensusintheruraldevelopmentfield

abouttheimportanceofassessingregionalcompetitivenessandconductingcluster

analysis.AsHarvardUniversityEconomistMichaelPorterexplains:

Viewingregionaleconomiesintermsofclustersiscentraltounderstandingthe

competitivenessofruralareasandhowitcanbeimproved.Eachruralareawill

differinitsclustercompositionand[forruralregionslinkedtourbanareas]in

theopportunitiescreatedbytheclusterstrengthsinnearbymetropolitanareas.43

Clusteranalysisexaminesindustrialsectorsinacomprehensiveway.Itlooksnotonly

athowindividualbusinessesinasectorarecompeting,butalsoattheoverall

environmentthatsupportssuchbusinessesthesuppliers,workers,educational

institutions,wholesalers,endusersandgovernmentregulators.44

Manyruralregionsarehighlydependentonparticularsectorssuchasmanufacturing,

textiles,woodproducts,naturalresourcesindustries,healthcare,governmentand

agriculture.Agricultureisasmallpartoftheoveralleconomyinmostcounties.Inthe

smallernumberofcountieswhereagriculturedoesplayapart,itoftenonlymakesa

modestcontributiontotheregionsemployment.45

Unfortunately,ruralregionshavesparseaccesstorigorous,unbiased,andaffordable

analysisof

regional

clusters

and

competitive

advantages.

As

Fluharty

remarks:

Publicdecisionmakershavenodearthofconsultantswillingtoextractdollars

fromthepublictillwithblackboxsolutions.Likewise,many[program

experts]offerturfbasedsolutions.Lackingthisqualityanalysis,publicdecisions

willoftenremainincrementalandlessthanoptimal.46

Ruralregionswouldbenefitsignificantlyfromgreaterinvestmentsinregional

assessmentresources.ThereareafewexcellentWebbasedresourcesthatprovidefree

orlowcostcountyleveldata(seeCommunityEconomicToolbox).Yet,exceptfora

limitednumberofCountyExtensionoffices,economicdevelopmentdistrictsandruralcommunitycolleges,economicanalysesarenotprovidedasapublicgood.Unless

significant,newinvestmentsaremadebystateandfederalgovernmentsormajor

foundations,accesstothesedecisionsupporttoolswillremainhighlylimited.

[CaseStudy7]

CommunityEconomicToolbox

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TheCommunityEconomicToolbox(www.economictoolbox.geog.psu.edu)

providesdataaboutacountyscurrentandhistoricalperformance.Userscantakea

touroftheirlocaleconomytohelpanswerquestionslike:

Whatarethecurrentemploymentconditionsinourcommunity? Whatpartsofthelocaleconomyhavebeengrowing? Whichindustrieshavebeendeclining? Howdoesthelocaleconomycomparetoothernearbyeconomies? Whatarethefactorsleadingtolocalemploymentgrowth? Howdoweidentifynewopportunities?

TheToolboxoffersthefollowingtools:

Asnapshotofimportantlocaleconomicindicators. Examinationofhistoricalperformanceandthetrendsfortheseindicatorsin

orderto

determine

current

directions.

Locationquotientstoidentifylocalstrengthsandopportunities. Shiftshareanalysistohelpidentifylocalgrowthengines. Apointertolivingwageestimationsfortheregionaccordingtovariousfamily

sizes.

Thetypeofindustriesthatpaylivingwagesinthearea.ArelatedWebsite,PovertyinAmerica:OneNation,PullingApart

(www.povertyinamerica.psu.edu)examinescommunitysocialandeconomicconditions

nationwide,using

anewly

designed

index

of

economic

health

and

economic

distress.

[CaseStudy8]

TrueNorth:NortheasternMinnesotasNewRegionalIdentity

Historically,northeasternMinnesotahasdependedontwocommoditiesironoreand

timber.Theriseandfallinironandtimberpriceshasresultedinarollercoasterridefor

theregionseconomy.Overthepasttwodecades,thesituationhasworsened.Dramatic

consolidationinironactivityledtoasharplossofjobsintheregion.Inthe1980s,

miningaccountedfor50percentofthejobsand60percentoftheincomeinnortheast

Minnesota.Today,

mining

represents

less

than

10

percent

of

both.

Thiseconomicslideledmanygroupstoenvisionaneweconomicfuturefortheregion.

Manyideaswerefloatingaroundtheregion,buttherewasnowaytoweavethevarious

threadsintoasingleplan.In1999,respondingtothegap,theMinnesotaStateColleges

andUniversitiesSystemdecideditwastimetorethinkhowthemanycommunity

collegesinnortheasternMinnesotawereorganizedandgoverned.Fortheirpart,the

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communitycollegeswerebeginningtoseetheneedtopoolresourcestosave

administrativecosts.Theyalsorealizedthattheeconomicandfiscalcrisisspanned

severaltownsandcountiesintheregion.

Theytookthedramaticstepofreorganizingthegoverningstructureoftheregions

communitycolleges.Fivecommunitycollegescametogetherunderonesuper

regionalumbrellawithonepresident.Thatumbrella,theNortheastMinnesotaHigher

EducationDistrict(NMHED),representedaregionalmasterplantoaddressthelifelong

learningneedsofarearesidents.

ThecreationofNMHEDhasbeenacatalystforcriticalchangesinotherkeyinstitutions

intheregion.Afterseeingsomeofthebenefitsoftheregionalcommunitycollege,

governmentsthroughouttheregionhavebeguntocooperatemoreoftenandmore

extensively.TheRangeAssociationofMunicipalitiesandSchoolsandtheArrowhead

GrowthAllianceserveasplacestoidentifyhighpriorityprojectsandopportunitiestoshareresources.Newmultijurisdictionalpartnershipsalsohaveformed.TheCentral

RangeInitiativeisbringingtogetherfivesanitarydistrictstoexplorestrategiesfor

redevelopingunusedwaterways.

Inshort,onesmallchangeingovernancethebirthofasuperregionalcommunity

collegecreatedacascadeofchangesintheinteractionsofkeyinstitutionsandthe

decisionmakingprocess.Today,theregionalthinkingapproachhasreceivedanew

identity.TrueNorthwasestablishedattheNHEDtobeanumbrellaforthenew

regionalpartnership.

NMHED

President

Joe

Sertich

describes

True

North

as

a

brand

identityforournewregionalstrategy.Inessence,theregionscommunitycollegehas

becometheinstitutionalhomeforanewregionaldevelopmentstrategyandaplace

wherenewregionalinitiativescometogether.47

[CaseStudy9]

HandmadeCrafts:BuildingWesternNCsSectoralEconomy

UndertheleadershipofHandMadeinAmerica,aregionalnonprofit,communitiesin22

countiesofwesternNorthCarolinahaveworkedformorethanadecadetocreatea

sectoraleconomybasedonthehandmadecrafttraditionsofSouthernAppalachian

mountainresidents.Thisregional,assetsbasedapproachiscounteringruralNorthCarolinastoughrealitiesoffactoryclosings,jobexodusoverseas,agingpopulation,

risingservicecostsandshrinkingtaxrevenues.

Craftheritagetourism,smalltownrevitalizationandadaptivereusesofabandoned

landfillstogenerateglassblowingcraftbusinessincubatorsarejustafewoftheasset

basedeconomicdevelopmentinitiativesthatarehelpingtoconnectWesternNorth

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Carolinacitizensandcommunitiesacrossridgesandrivervalleys.Theinvisiblecraft

factoryishelpingtostrengthencommunitiesineconomictransition,whileprotecting

naturalareasandempoweringworkersintraditionallydistressedareas.48

HandMadeinAmericainspirescommunitystrategiestoenhancetheregionsrole,

nationallyandinternationally,withinthehandmadefield.HandMadeinAmerica

workstoimplementenvironmentallysustainableeconomicsolutionsthatemphasize

thecraftindustry,enhanceopportunitiesinthemarketplaceanddevelop

entrepreneurialstrategiesfortheregionscraftsartisans.AsexecutivedirectorBecky

Andersonexplains:Wedontteachcraftsmaking,ormakeorsellobjects,butwedo

serveasasupportsystemforcraftspeopleandthecraftindustry.49

Principle6:Strengtheningthecompetenciesoflocalelectedofficials

Fewpeoplewhogetelectedtolocalgovernmentofficearepreparedforit.Ontopof

budgeting,personnelprocedures,publicsafetyandliabilityissues,thereare

developmentquestions,landuseissues,andrelationshipswiththemedia,tonameonly

afewarenas.Themajorityofsmall,ruralcommunitiescannotaffordaprofessionalcity

ortownadministrator,somanagementdutiesrestwiththenovices.Evenveteranrural

electedleadersoftenfindtheresponsibilitiesdaunting.

Giventhedemandsofthejob,onemightaskwhylocalofficialsdonotgetthetraining

andsupport

to

more

assuredly

govern

their

cities,

townships,

or

counties.

Why

dont

moreruralleadersdeveloptheskillstotacklethebigchallenges,suchasjobcreation?Is

itbecausesofewlocalgovernmentleadershipprogramsbuildthenewcompetencies

thattodaysofficialsreallyneed?

Theansweriscomplex.First,manyelectedofficialsseetheirroleasprescribedand

limited.Ruralgovernmentleadersserveparttime,withlittleornocompensation.They

areshopowners,dentists,schoolteachers,homemakers,entrepreneursandelected

officials.Giventhenumberofhoursinaday,ruralelectedofficialstendtofocusonthe

daytodayfinancialandlegaldutiesofgovernmentaloffice.Thiscaretakermindsetis

entirelyunderstandable,butitmeansthathigherlevelcompetenciessuchashowtoenhancecitizenparticipationorcreateavisionforthefutureareseldomacquiredor

used.

Second,oursystemforstrengtheningthecompetenciesoflocalgovernmentleadersis

scattershotandunderresourced.Localgovernmentleadershiptrainingdoesexist,but

theofferingsvarygreatlyinqualityandavailability.Assumingtheycantaketimeoff

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fromtheirdayjobsoreveningfamilyobligations,ruralofficialsmayhavetotravel

considerabledistancestoparticipateintrainingprograms,sometimesattheirown

expense.

Moststategovernmentdepartmentsoflocalaffairshavescaledbacktheireducation

efforts.Severalnationalassociationsoflocalgovernments50holdannualeducational

conferencesandworkshops,buttherequiredexpenseandtimetendstodiscourage

attendancebyparttimeruralofficials.Quiteafewfoundationssupportlocalleadership

initiatives,buttheyaretypicallytargetedtoemergingcivicleaders,notlocal

governmentofficials.

Unfortunately,thelocalofficialswhowouldmostbenefitfromleadershiptrainingmay

bethoseleastlikelytoseekit.51Theymaycomefromlimitedresourcetownsthatwould

mostprofitfromregionalandcollaborativestrategies,butaretooentrenchedtochange.

Ortheymayjustbewornoutbylongmeetings,toughbudgetingdecisionsandpressurestosecureadditionalfinancingorcomplywithstateandfederalmandates

nottomentiontheirdayjobs.

Becausethehealthofruralcommunitiesislinkedtoaneffectivegoverningsystem,itis

increasinglyimportantforruralofficialstoacquirethesehigherlevelcompetences.

Citizensandprivateandnonprofitleadersmustchampionskilldevelopmentforarea

ruralelectedleaders.Theprocessstartsbylearningwhichagenciesororganizationsin

theregionandstateofferqualityleadershiptrainingforruralelectedofficials.

Manystateuniversitiesoffersomevarietyoflocalofficialtraining,ofteninpartnership

withstateassociationsofcities,townshipsorcounties.Thestateassociationroleisto

legitimizeandmarkettheprogramtoitsmembership.Eachlandgrantinstitutionhas

itsownprogramprioritiesorbannerprogramstargetedtolocalgovernments,butthe

strongestprogramsincorporatetechnicalfollowupbylocalcountyextension

specialists.52Forafee,stateassociationsofcities,townshipsandcountiesoffer

leadershiptrainingfortheirmembersatannualeducationalconferencesandoccasional

workshops.Someprogramsareespeciallytargetedtosmallorruralcommunities,such

astheTexasMunicipalLeaguesSmallCitiesProblemSolvingClinics.

Onlyafewstateshavesophisticatedstatewideorganizationsfocusedonruralpeople

andcommunities.TheNorthCarolinaRuralEconomicDevelopmentCenter,anon

profitorganizationcreatedin1987,isprobablythebestexampleofthissupport.The

RuralCenterservesthestates85ruralcounties,withaspecialfocusonindividuals

withlowtomoderateincomesandcommunitieswithlimitedresources.Itconducts

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researchintoruralissues,advocatesforpolicyandprograminnovationsandbuildsthe

productivecapacityofruralleaders,entrepreneursandcommunityorganizations.

For20years,theRuralCenterhasmaintainedandbroadeneditssupportamongNorth

Carolinaleaders,addingorspinningoffprogramsandeffectivelybecomingthehubof

thestatesmultifacetedruraldevelopmentefforts.Ithascreated,testedand

implementednumerousnovelprograms,manyofwhichhavebecomemodelsforthe

nation.Buildingonthiswork,theRuralCenterisleadingamajorinitiativetoincrease

thevitalityofNorthCarolinassmalltowns.53

Manyregionaldevelopmentorganizationsprovideleadershiptrainingand/orhandson

managementassistancetoruralgovernments.Thenamesvaryeconomicdevelopment

districts,regionalplanningorganizations,areadevelopmentdistricts,regional

developmentcommissionsbutgenerallytheseorganizationsassistmemberlocal

governmentsintheareasofinfrastructure,transportation,housingand/oreconomicdevelopment.Toreceivetraining,informationandrepresentation,mostregional

organizationsbelongtotheNationalAssociationofDevelopmentOrganizations,the

NationalAssociationofRegionalCouncils,orboth.

[CaseStudy10]

TownshipGovernanceAcademyStrengthensOfficialsCompetencies

InOctober2003,theMichiganTownshipsAssociation(MTA)madeanintriguing

observation:formanyelectedofficials,serviceonthetownshipboardwasnotas

rewardingas

it

could

be.

Township

leaders

often

lacked

the

necessary

knowledge

and

skillstomakeeffectivedecisions.Theyneededfreshideas,moreadvancedskillsand

newwaysofconductingbusinessasatownshipboard.Theirpublicservicealsoneeded

tobemoreoutcomebasedandresultsoriented.

Asthelegislativeadvocateandeducationalassociationfor1,242Michigantownships

and6,526electedtownshipofficials,MTAdecidedtotakeaction.MTAcreatedthe

TownshipGovernanceAcademy(TGA),avoluntarycredentialingprogramfor

townshipleaders.Thehighimpactlearningprogrambuildsthecompetenciesofboth

newlyelectedandveterantownshipofficials.

AcadreofexperiencedTGAinstructorsleadinteractivecoursesinthreecategories:

foundationcourses(corecompetencies 28requiredcredits),boardsmanshipcourses

(visioning,boarddecisionmaking 24credits)andelectives(18credits).Amixofhalf

andfulldayclassesisofferedonarotatingbasisatselectedlocationsthroughoutthe

state.TograduatefromtheAcademy,candidatesalsomustdemonstratethattheyhave

appliedalearnedskilltotownshipgovernance.

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Thecompleteprogramcostsapproximately$1,200to$1,500,excludingpersonal

expenses.Limitedscholarshipsareavailable.

MoreinformationaboutTGAisavailableatwww.michigantownships.org.

Principle7:Engagingkeyintermediaries

ResearchatHarvardUniversitysArtandScienceofCommunityProblemSolving

Projectexplainsthesubtleagentsofchangeincommunities.XavierdeSouzaBriggs

callstheseagentsintermediaries:people,organizationsandinstitutionsthataddvalueto

theworldbyconnecting,supportingandenablingotherstobemoreeffective.The

specialpowerofintermediariesisthattheymakethingshappenwithoutcalling

attentiontothemselves.Theyinitiate,butthenstepback,sothatotherscanownandtakecreditforwhathappens.Asrespected,honestbrokers,intermediariesassumeroles

thatotherscannoteasilyperform.Sincetheyfrequentlyareaheadofthecurve,

intermediariesoftendevelopthemarketforwhattheywishtoprovide.54

RuralsociologistsCorneliaandJanFlorausethetermbridgingcapitaltotalkaboutthe

vitalconnectionsamongdiversegroups,includingthoseoutsidethecommunity.

Effectivecommunitiespossessbothbondingcapital(connectionsamongsimilar

individualsandgroups)andbridgingcapital.55Intermediariesareamongthediverse

groupsoutside

the

community

that

provide

bridging

capital.

Oneofthecrucialdifferencesbetweenstagnatingandflourishingruralregionsisthe

existenceofengagedintermediaries.Theymaybecloseby(suchascommunity

colleges),inthelargerregion(suchascommunityorregionalfoundations),orfaraway

(suchascommunityassistanceorganizations/agenciesorprivatefoundations).They

maybecomeengagedontheirownorbesolicited.Theyserveanarrayofroles:

facilitators,educators,capacitybuilders,socialinvestors,performancemanagers,

coalitionbuildersandorganizersofnewgroups.56

Briggsidentifiesfivetypesofinstitutionsororganizationsthatserveasintermediaries:government,civicornongovernmentalorganizations,foundationsorfunders,issue

focusedorganizationsandcapacitybuildinginstitutions.Agivencommunitymaybe

hometoanyoneormoreoftheseintermediaries,oftenwithdiverseandoverlapping

functions.57Forruralcommunities,theremaybejustoneortwointermediaries

effectivelyengagedintheregionandtheintermediarymayservemorethanonerole.

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Ruralcommunitycollegesareamongthemostpowerfulruralintermediaries.

Communitycollegeshaveevolvedoverthelasthalfcenturyfromliberalartsschools

preparingstudentsforfouryearcolleges,toschoolsmorefocusedontechnicaland

vocationaltraining,oftenwithmissionsexplicitlyorientedtowardlocaleconomic

development.Approximately40percentofallcommunitycollegesareinruralareasor

smalltowns;oftentheyaretheonlyinstitutionsofhigherlearninginthearea.58

Thequalitiesofruralcommunitycollegesmakethemstrongintermediarycandidates.

Communitycollegesarepoliticallyneutralinstitutionsthatarerespectedandtrustedby

diversepopulationswithintheirregion.Theyaredeeplyrootedintheircommunities.

Becausecommunitycollegesservemulticountydistricts,theyarenaturalplayersin

regionaldevelopmentefforts.Concurrently,ruralcommunitycollegesarebeing

challengedtoactualizetheirbroadermission:educationforcommunityandeconomic

transformation.59

Communityfoundationsareanotherstrongintermediaryinruralregions.Community

foundationsarecommunitybased,nonprofitorganizationsthatraiseandmanagea

widerangeofendowedandnonendowedfundsfromindividualandorganization

donors.Inrecentyears,theyhavebeenamongthefastestgrowingsourceofcharitable

dollarsintheU.S.Communityfoundationsusethestreamofrevenueproducedby

thesefundstomakegrantsandconductcommunitybettermentprogramswithinthe

specificgeographicareaservedbythefoundation.Beyondgrantmaking,most

communityfoundationsperformkeyintermediaryrolesinconvening,visioning,

informationgathering,

knowledge

sharing

and

resource

development.

Ruralcommunityfoundationsareuniqueintheirabilitytoseeandinfluenceawide

andinterconnectedarrayofruralcommunityandeconomicdevelopmentchallenges

andopportunities.Theycanrespondquicklytoawiderangeofissuesandbring

diverseandsometimesdivergentmembersofthecommunitytogetherinanonpartisan

manner.Inruralareas,communityfoundationsareoftentheonlyinstitutionsthatspan

themanyjurisdictionsinanaturaleconomicandculturalregionandarepositionedto

pulltheregiontogether.

Communityfoundationsalsohavepermanence.Becausetheybuildpermanentendowedfundsfromlocaldonorsdedicatedtothegeographicareatheyserve,

communityfoundationsareinaruralregiontostay.60

Theengagementofvigorousruralcommunityfoundationsissovitaltoruralregions

thattheAspenInstitutesCommunityStrategiesGroup(CSG)createdalearning

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networkfocusedonRuralDevelopmentPhilanthropy(RDP).ThreeoftheRDPsfour

learningquestionscenterontheintermediaryrolesofcommunityfoundations:

Howcancommunityfoundationsusegrantmakingandprogramactivitiestoenhancetheeconomicsecurityoflowincomeruralfamiliesandcommunities?

Howcancommunityfoundationsraisesignificantendowmentfundsfromandforruralcommunitiestosupportruralcommunityeconomicdevelopment?

Howcanacommunityfoundationbuildaregionsawarenessthatitsidentityandeconomicandsocialwellbeingdependuponbothitsruralandmetropolitan

areas?61

Insomecases,themosteffectiveintermediariesarepeople,organizationsorinstitutions

considerablyoutsidethearea.Theseexternalintermediariescansometimesurgethe

communityinnewdirectionsandthengetoutoftheway.Agoodexampleofexternal

mediationisRuralDevelopmentInitiatives(RDI),anonprofitorganizationspunoff

fromtheOregonEconomicandCommunityDevelopmentDepartmentin1992.

Whenacommunityfindsitselfwithadauntingchallengeornewopportunity,RDI

assistslocalleaderstodevelopnewskillsandmoreeffectiveorganizationalstructures,

actionplansandresourcenetworks.Theorganizationhasworkedinover200

communitiesandgraduatedatleast2,100ruralvolunteers formalandinformal

leaders fromitsoriginalandcurrent(mostlycosponsored)leadershipcurricula:the

RuralFutureForum,theFordInstituteLeadershipProgram,LeadershipPlentyand

one tothreedaytrainingseminars.62RDIhostsapopularRegardstoRuralannual

conferenceand

directs

other

convening

projects

and

networks

across

rural

communities

(e.g.,ConnectingOregonforRuralEntrepreneurshipKelloggFoundationfunded

collaborative).AlthoughRDIisaparticularlyrobustintermediary,similar

organizationsoragenciesexistinotherstates.

[CaseStudy11]

AStrongIntermediary,NewVoicesandGrassrootsVisioninginRuralNorthern

California

TheHumboldtAreaFoundation(HAF),inruralnorthernCalifornia,illustrateshow

powerfulintermediariescaninitiateanactivityandthenstepbacksothatothersown

andtakecreditfortheresults.Thenonprofitcommunityfoundationservesasanindependentstaginggroundforresidentstobuildsocial,economicandenvironmental

prosperity,individuallyandinconcertwitheachother,inCaliforniasNorthCoast.

HAFbelievesthatgoodideas,andthehardworknecessarytoaccomplishthoseideas,

comefromallfacetsofthenorthcoastcommunity.Tofacilitatetheinterchange,the

Foundation,togetherwithtwootherintermediariesHumboldtStateUniversityand

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theCollegeoftheRedwoods,thelocalcommunitycollegeconvenedRedwoodCoast

RuralAction(RCRA).

RCRAbringstogetherdiversegrassrootscivicleadersfromthefourruralcountiesof

DelNorte,Humboldt,MendocinoandTrinity.Theconvenersprovideinfrastructure

andstaffing,butnevercontroltheagenda,whichcomesfromRCRAworkinggroups

ontheeconomy,communityhealthandtheenvironment.

ThegoalofRCRAistoinspireintentional,healthyregionaldecisionmakingandaction

thatconservesnaturalresources;diversifiesandexpandstheemploymentbase;

maintainsaruralqualityoflife;caresforthehealthoftheregionspopulationand

communities;andexpandsopportunitiesforfamilyeconomicsuccess.Itsatallorder,

butonethatisalreadymovingforward.

InclusiveregionalleadershiphasemergedfromthefourcountiescoveringanarealargerthanMassachusetts.Atthetableforthefirsttimeeachcommittingatleast10

daysayeararetribal,environmental,businessentrepreneurial,educationaland

communityhealthleaders.Theyrepresentthepoliticalleft,rightandcenter.Themost

difficultissuesintheregionareexplicitlyonthetable.

RCRAisthesecondandregionalizedoutgrowthoftheInstituteoftheNorthCoast

(INC),aHumboldtCountypilotprojectinitiatedin1996.INCsoughttoassertcitizen

leadershipoverfailedattemptstoreviveadecliningresourcebasedeconomyand

respondto

pressing

social

issues,

including

domestic

violence.

INC

generated

a

completelyrestructuredeconomicdevelopmentsystemofsupportforentrepreneurs

andbusinessclustersandbroughtnewcooperationbetweenbusinessand

environmentalinterests.TheregionalizedRCRAisfollowingintheINCfootsteps.

Principle8:Investinglocalcapital

Afinal,bottomlinedistinctionbetweendecliningandthrivingruralcommunitiesisif,

andhow,theyinvestinthemselves.Itsplaingoodjudgmenttomakesuchan

investment,yetmanyruralcommunitieslooktooutsidefundersandassistanceproviderswithoutfirstcommittingtheirownresources.Regionsthatinvestin

themselvesleverageadditionalcapital,beitmonetary,physicalorinkind.

Communityendowmentsarepowerfulvehiclesforcapturingandinvestinglocal

capital,especiallyinruralregionsexperiencingsignificantintergenerationaltransferof

wealth.In2001,theNebraskaCommunityFoundation(NCF)completedanalysesof

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boththemagnitudeandpeakoftheintergenerationaltransferofwealthforeachof

Nebraskas93counties.Nebraska,especiallyruralNebraska,isalandrich,cashpoor

economy,primarilydrivenbyproductionagriculture.Withagreatdealofruralpoverty

(sevenveryruralNebraskacountiesrankedamongthe12poorestinthenationin2001),

anagingpopulation,andseveraldecadesofoutmigrationofyoungadults,building

strategiesbasedoncommunityassetsbecamecriticallyimportant.

BasedonthegroundbreakingworkbyHavens&Schervish(BostonCollege,1999),NCF

estimatesthat$94billionwilltransferinthenext50yearsinruralNebraska(750,000

citizens).Moreimportantthanthesevastsumsisthetiming,with86of93Nebraska

countiesexperiencingtheirpeaktransferonorbefore2039;26veryruralcountieswill

peakonorbefore2014.Bycomparison,thepeaktransferfortheUnitedStateswillnot

occuruntilsometimeafter2050,ifever.

Usingthisanalysisasacalltoaction,NCFissettingupaffiliatedcommunityfundsacrossthestateandhelpingthosefundstobuildendowments.Intotal,74community

affiliatedfundsnowhavemorethan$26.4millionofcombinedendowmentand

expectancies,morethantriplethecombinedtotalofthreeyearsago.63Also,Nebraska

recentlyinstitutedataxcreditforgiftstoendowments.

Giventheintensecompetitionforgovernmentandfoundationdollars,onlyself

investingcommunitieswillmeritadditionalsupportintheyearsahead.The

investmentsmaybemodest,perhapsnonfinancial,buttheydemonstratethe

communitysorregionsdedicationtochange.Thus,ruralregionscanevolveinto

vibrantplaces.

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PartII

LessonsLearnedthroughtheCommunityClusteringInitiative

PartIIdescribestheCommunityClusteringInitiative(CCI),RUPRIsexperimentin

operationalizingtheprinciplesofeffectivegovernanceinthreerural,multicommunityregions

oftheNorthwest.ItexplainstheCCIspurpose,workinghypothesis,projectdesignand

methodology,outcomesonthegroundandthepictureofruralpovertyasseenbytheCCIslocal

electedofficials.Mostimportant,PartIIpresentsthelessonslearnedabouteffectivegovernance

throughtheexperiencesofthreeruralregions.

Foraperiodofoneyear(May2005throughApril2006),theRUPRIRuralGovernance

Initiativedirectedaprojecttoassesstheprinciplesofeffectivegovernanceinthree

multicommunityregionsoftheruralnorthwest.Theproject,titledtheCommunity

ClusteringInitiative(CCI),wassupportedbytheNorthwestAreaFoundation,afoundationcommittedtohelpingcommunitiesreducepovertyforthelongterm.The

Foundationmakesprogramrelatedinvestmentandmissionrelatedinvestmentsin

rural,urban,AmericanIndianandruralLatinocommunitiesinMinnesota,Iowa,North

Dakota,SouthDakota,Montana,Idaho,WashingtonandOregon.

TheCommunityClusteringInitiativetestedtheideathatimprovedsocialandeconomic

outcomesaremostlikelytooccurinruralregionswhenthefollowingconditionsexist:

Electedofficials,localbusinessleadersandemergingcivicleadersofnearbycommunities

cluster

together,

with

intermediary

support

(coaching),

to

understandandactonimportantinformationabouttheirregion.Themixoflocal

government,businessandcivicleadersbreaksthroughinstitutionalfaultlines

(albeit,slowly)andcapitalizesontheskillsandresourceseachsectorand

jurisdictionbringstothetable.

Youthareactive,empoweredparticipantsintheprocess.RuralAmericalamentstheexodusofyouth,yetfewcommunitiesgenuinelyengageyoungpeoplein

communitydecisionmaking.Whenyouthandothernewvoices(e.g.,Native

Americans)arewelcomedintothegovernanceprocess,thingshappen.Newideas

comeforwardandnewstrategiesemerge.

TheCCItestedtheseconceptswhileadvancingtwooutcomesofgreatinteresttothe

NorthwestAreaFoundation:

thatruralelectedofficialsputcitizenengagementandpovertyreductionhigherontheirlistofpriorities;and

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thatruralcommunitiesseethemselveswithinaneconomicandculturalregionandpursuepovertyreductionstrategiesonaregionalbasis.

TheInitiativessuppositionabouthowtoimprovesocialandeconomicoutcomes

coupledwiththeFoundationspovertyfocusledtoacentralquestion:howcanrural

electedofficialsbeinfluencedtobecomemoreknowledgeableabouttheirwider

economicregion,moreinvestedincitizenengagementandmorecommittedto

eliminatingpoverty?Whatactivitiesorexperiencespressruralofficialsinthesenew

directions?

Basedonearlierwork,theRuralGovernanceInitiativejudgedthatruralleaderswere

unlikelytoshifttheirthinkingandactioninresponsetoanarticleorworkshop,no

matterhowinformativeorpersuasiveitmightbe.Lastingtransformationamongrural

officialswasmorelikelytooccurwhenofficialsworkedonatangiblepovertyrelatedissueon

theirhome

turf,

but

across

political

boundaries,

sectors

and

generations.

Mostelectedleadersstrivetobettertheeconomicconditionsoftheirresident

individualsandfamilies.Theyunderstandthevalueofgoodpayingjobsandaccessto

affordablehousingandhealthcare.Localofficialsalsotrytobecomemore

knowledgeableandexperiencedlocalgovernmentleaders.Butelectedofficialsoperate

underincreasingtimeandresourceconstraints.

Thatswhylastingchangeamongruralleadersismostlikelytocomeaboutnotthrough

readingor

listening,

but

through

on

the

ground

experimentation

situations

in

which

localofficialshavetheopportunitytomakefreshdiscoveriesabouttheirregion,builddeeper

relationshipswithadiversecitizenryandcreatenewconnectionstoarearesources.

ProjectDesignandMethodology

ThefirststepinlaunchingtheCCIwassolicitingcommentsontheprojectdesignfrom

theNorthwestAreaFoundationandrespectedcolleaguesinthefieldsofrural

development,communitycapacitybuildingandyouthengagement.These

consultationsrefinedtheprojectmethodologyanddirectedstafftopotentialmulti

communityregionsandregionalintermediariesinthenorthwestregion.

RolesandResponsibilitiesofClusters,IntermediariesandCCIStaff

Potentialmulticommunityregionsweregroupsofruralcommunitiesthatsharedan

economicandculturalregionandwerecommittedtostrengtheningruralgovernance,

buthadlittleexperienceincollaborationonpovertyreduction.Toparticipateinthe

CCI,atleastsomeofthecommunitieswithintheregionmusthaveparticipatedina

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leadershipdevelopmentorcommunityvisioningprogramduringthepastfewyears

(e.g.,LeadershipPlenty,HometownCompetitiveness).Selectedmulticommunity

regionsformedacommunityclusterrepresentativeofthecommunitiesethnicand

economicdiversityandcomprisedofelectedofficials,localbusinessleaders,emerging

civicleadersandhighschoolyouth.

Regionalintermediarieswerewellnetworkedorganizationsthatcouldserveascoach,

facilitatorand/orexpertresourceprovidertothecluster.Potentialintermediaries

includednonprofitdevelopmentorganizations,USDACooperativeExtensionoffices,

communitycolleges,communityfoundations,regionaldevelopmentdistrictsorother

organizationsinthenorthwestregion.

Theprojectdesignoutlinedkeyrolesandresponsibilitiesofthemulticommunity

clusters,regionalintermediariesandCCIstaff.Eachmulticommunityclusterwas

requiredto: Sustainadiverseclustermembershipthatwouldworktogetheroverthecourse

ofoneyeartoanalyzetheirregionaleconomyanddevisepovertyreduction

strategies.

Activelysolicitinvolvementfromtheregionselectedofficials,localbusinessleaders,emergingcivicleadersandhighschoolyouthandincorporateyouthas

active,empoweredparticipants.

Meetasaclustersixormoretimesoverthecourseoftheproject,beginningwithalocalorganizingsession.

Collaborate

with

aregional

intermediary

organization

that

is

grounded

and

respectedintheregionandcanfurthertheclusterswork.

Designatealocalindividualwithcredibilityacrosstheregionslocalgovernment,businessandcivicsectorswhowouldserveasaclusterencourager.

Theclusterencouragerwouldberesponsibleforcoordinatingtheclusterswork

incollaborationwiththeregionalintermediary.Thispersonalsowould

participateinmonthlyCCIledlearningsessions(viaconferencecall)and

regularlyreportprogresstoCCIstaff.

ParticipateinatleastthreelearningretreatsfacilitatedbyCCIstaffandconductedelectronicallyusingonlineconferencingsoftware.Eachclusterwould

receivetherequiredWebcamerasandmicrophones.

Eachregionalintermediaryhadtoagreeto:

Serveasacoach,facilitatorand/orexpertresourceprovidertoacluster;assisttheclusterencouragerashe/sherequested;andbeonsiteforatleasthalfofthe

clustermeetings.

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ReceiveandmanageasmallresourcefundtocoverstafftimeoftheClusterEncouragerandRegionalIntermediary(asfundspermit)andtheclustersdirect

expenses(e.g.,travelwithintheregion,roomrental,refreshments,printing).

ParticipateinmonthlyCCIledlearningsessionswiththeclusterencouragerandcontributetotheonlinelearningretreatsfacilitatedbyCCIstaff.

RegularlyreportprogresstoCCIstaff.Inreturn,theCCIstaffactedasnationalintermediaryandcommittedto:

Serveasanadvisorandresourcetocommunityclustersandintermediariesandcoordinaterelationshipsbetweenthem.

Planandfacilitatemonthlylearningsessionswithclustercomanagers(viaconferencecall)andatleastthreeonlinelearningretreats.

Identifyanddistributetargetedresourcematerialsofusetoparticularregionsorrelatedtospecificpovertyreductionissues.

Designandimplementsystemsforobserving,evaluatinganddrawinglessonsfromtheproject.

Prepareapublicationthatreportstheselessonstopolicymakers(local,stateandfederal),programdirectors(publicandnonprofit),funders(governmentand

foundations)andintermediaryorganizations.

SelectionofMultiCommunityClustersandRegionalIntermediaries

TheCCIselectedthefollowingclustersandintermediariesbasedontheircommitment

tostrengthengovernanceintheirregionandtoworktogetheroverthecourseofone

yearto

analyze

their

regional

economy

and

devise

poverty

reduction

strategies.

(Descriptionsandmapsofthethreeclusterregionsappearlaterinthisreport.)

CoosCounty,Oregon Aclusterorganizedaroundthetrifurcationamongthecountys urban northernregion(CoosBay,NorthBend),itsrural,

unincorporatedandlargelystrugglingcentralsouthernsection(Powers,

CoquilleandMyrtlePoint)andanewgolfresortcommunityinthesouthwestern

corner(Bandon).ThecountyishometotwoIndiantribes:theConfederated

TribesofCoos,LowerUmpquaandSiuslawIndiansandtheCoquilleIndian

Tribe.

LakeFrancisCaseRegion,SouthDakota Aclusterstraddlingthreecounties(Lyman,BruleandBuffalo)andthesouthcentralbranchoftheMissouriRiver.

MembercommunitiesincludedChamberlain,Oacoma,Reliance,Kimballandthe

LowerBrule(SiouxTribe)ReservationCommunity.TheCrowCreekSiouxTribe

alsoislocatedintheregion.Childrenacrosstheregionareeducatedatschoolsin

ChamberlainorOacoma.

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JeffersonCounty,Washington Aclusterfocusedaroundthetensionbetweenthe

northcountysattractionofexurbanretirees(PortTownsend)andthesouth

countysretentionofpeopletiedtopoorer,naturalresourcebasedandpartially

tribalcommunities(JamestownSKlallamTribe).

Theclusterencouragerswereassociatedwithorganizationsbasedintheregion:

ShoreBankEnterprisePacificinCoosCounty,OR;LakeFrancisCaseDevelopment

CorporationinChamberlainOacoma,SD;andJeffersonCountyEducationFoundation

inJeffersonCounty,WA.

Theregionalintermediarieswerestaffoftwononprofitcommunitydevelopment

assistanceorganizations:RuralDevelopmentInitiatives,Inc.inOregon,andSouth

DakotaRuralEnterprise,Inc.inSouthDakota.Thethirdintermediarywasstaffofa

governmentalagency:JeffersonCountyExtensioninWashington.

AdaptationstoProjectDesign

Theoriginalprojectdesignhadmembersofeachclusterworkingtogetheroverthe

courseofoneyeartoanalyzetheirregionaleconomyanddevisepovertyreduction

strategies.Thisdesignwasmodifiedinthreeways.Thefirstadaptationreducedthe