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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