Clinch-Powell Empowerment Zone Strategic Plan

VOLUME II

Table of Contents

Part I. Ten - Year Plan

Section 1 — Vision and Values

1.a. Vision

1.b. Values

Section 2 – Community Assessment

2.a. Assessment of Problems and Opportunities

2.a.i. Survey Results

2.a.ii. Focus Group Sessions

2.a.iii. Demographic and Economic Data

Economic Analysis

2.b. Analysis

2.b.i. Potential Financial and Technical Resources for the Zone

2.b.ii. Leadership and Volunteerism

Sections 3 and 4 – Goals and Strategies

Goals & Strategies

Part II. Two - Year Plan

Part II: Section 1 – Phase I Work Plan

Part II: Section 2 – Phase I Operational Budget

Part II: Section 3 – Uses of EZ/EC SSBG grants

Part III. Continuous Improvement Plan

Part III: Section 1 – Participation Assurance

Part III: Section 2 – Incorporation of Experiences

Part III: Section 3 – Benchmark Review

Part III: Section 4 – Benchmark Amendment

Part IV. Administration Plan

Part IV: Section 1 – Lead Entity

Part IV: Section 2 - Capacity

Part IV: Section 3 – Board Membership

Part IV: Section 4 – Partnerships

Part IV: Section 5 – Public Information

Part IV: Section 6 – Public Participation

Part I. Ten-Year Plan

Part I: Section 1— Vision and Values

Using the data gathered and compiled from an exhaustive public participation process involving 1,314 people, the steering committee spent two days on retreat carefully examining the results and building the framework for the strategic plan. Working through facilitated sessions, the committee accomplished an amazing volume of work that included crafting a common vision and set of values.

Part I: 1.a. Vision

We in the Clinch-Powell area are a unique community with a rich cultural heritage and diversity, abundant natural resources, strong work and family ethic, as well as warm and friendly rural life. As we pioneer into the 21st century, we are determined to enhance these strengths while improving living conditions for all.

We envision a community that:

1. Promotes economic development while maintaining the natural and social environment.
2. Pioneers innovative and comprehensive workforce, business, and career development programs.
3. Starts and strengthens local businesses and family farms using new methods, knowledge and technology.
4. Promotes successful marketing of local arts and crafts.
5. Supports and encourages carefully planned, environmentally sound tourism and recreational development.
6. Builds exciting and creative educational partnerships, which produce a wider array of opportunities for youth and adults.
7. Improves water, solid waste and roadways.
8. Creates innovative programs for youth, including early intervention and substance abuse prevention programs.
9. Provides access to adequate health care, transportation and housing.
10. Develops programs to honor and protect elders.
11. Manages inevitable growth.
12. Sustains ongoing leadership development programs, which build greater involvement, teamwork, communication and better community leaders.

Part I: 1.b. Values

1. We hold these values to be important for they are the principles which will guide our way as we work together toward our common vision.
2. We are dedicated to the regional concept and to encouraging free and open participation in all activities
3. We will work to ensure that benefits are universal to all, that they contribute to self-reliance and independence, and that they foster a sense of pride and self-respect.
4. We will preserve our heritage and make certain that there is harmony between economic development and environmental quality.
5. We will treasure our children, our families, and our role models.
6. We will fight for democracy, justice, and independence.
7. We will honor our spirituality, honesty, thrift, and practicality.
8. We will work together and value education, volunteerism, and a strong work ethic.

Part I: Section 2 – Community Assessment

Part I: 2.a. Assessment of Problems and Opportunities

We asked for, and we listened to, the voices of our people.

The assessment of problems and opportunities in the Clinch-Powell EZ was a major undertaking. We believe strongly that it is the most important part of the entire planning process. We can speak confidently when we say that infrastructure issues are our highest ranked weakness. We do not hesitate to say that the environment is highly valued here and that our people and communities are our greatest assets. We can speak assuredly when we say that our citizens are united in their concerns over education, crime and drugs in the next decade. We are clear about the work laid out before us based on our thorough assessment of problems and opportunities.

In this section we will share the results of three methods of public input we used in the needs assessment process. First we will present the results of 1,314 surveys taken from residents across the Zone. Then we will discuss the problems and opportunities as determined in a series focus group sessions held with professionals throughout the Clinch-Powell EZ region. And finally, we will present demographic and economic baseline conditions based on statistics from the 1990 U.S. Census and other sources.

Part I: 2.a.i. Survey Results

Community needs assessment and input were gathered using four methods.

1. Public Meetings: A series of 13 public meetings were held in the 11 census tracks during the month of July. Each meeting was facilitated by members of the Empowerment Zone Steering Committee. Nearly 300 residents attended the public meetings.
2. Stakeholder Meetings: Dozens of meetings were held with a variety of stakeholder groups throughout the region from Chambers of Commerce to senior citizen groups.
3. Mass distribution and collection of citizen input forms: Survey forms entitled "Your Voice Counts!" were distributed to thousands of citizens across the Zone during all meetings. Additionally, a great deal of care and forethought was used to target input from all sectors of the community. Survey forms were distributed in factories, public offices, health departments, and human services offices. Volunteers interviewed willing citizens at WalMart and at fairs and festivals held throughout the Zone. Every effort was made to include low income residents. The surveys were designed to be user-friendly and to gather short and long term input
4. Focus Group Sessions: A series of 14 focus group sessions were held with professionals throughout the Zone to gain directed input regarding major issues of importance to a healthy community from welfare and poverty to youth and infrastructure.

During July, August, and September, an extensive public input process was conducted in the Zone. Approximately 15,000 boxholder mailings were sent to every household in the Zone to announce the EZ effort and to invite them to have a voice in the process. In addition, several news articles and notices were used to announce the program and encourage participation.

The results of these efforts were used in a type of checks-and-balances process to make sure the committee was focused on the right things. We looked at what the people told us were problems, we compared that information with what the professionals said were the problems, and then we looked at available statistics to see if they supported those contentions.

In some cases, the results were puzzling. For example, a large number of survey respondents placed crime/drugs as a major weakness (problem) in their community, and did in fact place it as the number one concern in the coming decade. However, focus group sessions with law enforcement officials and statistical data do not support the high level of concern shown by residents.

In this case, after much deliberation, it appears that the residents’ concern may have to do with increased national media attention to crime in rural areas, growth and level of services. While populations have grown considerably in the past decade in the EZ region, the budgets for police protection have not. There are the same number of deputies per shift today for a county with a population of 17,000 as there were 10 years ago with a population of less than 12,000. This holds true with all emergency services including ambulance, rescue, emergency medical services, and fire protection. Zone residents are clearly concerned for their safety and well being as more and more ‘outsiders’ move to the area with no corresponding increase in emergency service.

There were approximately 1,314 surveys gathered through the public meetings, stakeholder meetings, and mass distribution process. This represents approximately 4.5% of the zone population. These surveys were coded and then input into a database where they could be sorted and analyzed to guide the decision making process in the strategic plan preparation. The survey process was not scientific, and was not meant to be. The goal was to employ a user-friendly approach to reach as many people as possible to find out how they felt about their community from two perspectives: immediate concerns and long term concerns. The approach was based on the SWOT analysis: identifying strengths, weaknesses, opportunities, and threats.

Each response was coded to a major topic category so that the data could be analyzed. For example, a response of "poor water system" was coded as infrastructure and a response of "need jobs that pay living wage" was coded under better jobs. The coded response categories used in this process are listed in the chart below

Graphs of the sumarized responses to each survey question are reproduced following this discussion. Steering Committee members were amazed at just how similar the strengths and weaknesses are across the Zone from county to county. Of those who participated, 69 percent have lived in the area for more than 15 years while 40 percent are lifelong residents. Of the respondents, 63 percent were female and 37 percent were male. The demographic display of the survey respondents can be viewed in Chart 1.

When asked about the strengths of their community, virtually all Zone residents feel very strongly that the community and people are the biggest assets followed strongly by natural resources, beauty, and environment (69%) as major strengths. See Graph 1 for details.

When asked about the weaknesses of their community, more than 36% of Zone residents agree that infrastructure issues like water, roads, and solid waste are the biggest weaknesses. Other highly ranked weaknesses are education (23%), crime and drugs (22%), business and workforce (21%), better jobs (21%) and youth activities and support services (19%). Additionally, local government and leadership (16%) and litter (16%) were highly identified as weaknesses. Graph 2 shows more detail.

When asked what should be done to build on strengths, community activities were identified most by respondents (23%), followed by strengthening education (16%), anti-crime and drug programs (16%), and promoting tourism and recreation (16%). See Graph 3 for more information.

When asked what should be done to improve the weaknesses in the community, attracting business and improving workforce was noted most often (24%), followed closely by improved education (21%) and improved infrastructure (21%). Other highly ranked activities were crime and drug programs (15%), educated leaders in government (12%) and increased tourism, recreation, and youth programs (11%). Graph 4 displays more information.

Crime and drugs (36%) and education (36%0 rated as the two greatest concerns for the coming decade. Also listed as primary concerns were infrastructure (26%), and better jobs (25%). Planning and growth issues (16%) and environmental concerns (15%) also ranked highly. A summary of responses can be viewed in Graph 5.

Sample responses from the survey are found in Volume 1, Section 8 (Other Attachments). Also included in that section is the complete and sortable database in Microsoft Excel 6.0 on a CD ROM.

Part I: 2.a.ii. Focus Group Sessions

The focus group sessions proved to be an invaluable tool in identifying problems and focusing activities in the strategic plan.

The Steering Committee identified 350 interested individuals and professionals to invite to a series of 14 focus group sessions targeting topics of major importance in a healthy and vital community. These professionals and individuals participated in a two-hour facilitated and focused discussion. The result was the identification of important strengths and weaknesses in the Zone. In some cases, if time allowed, a discussion was held on what should be done first to alleviate the problems. The sessions were conducted so that each individual had time to generate ideas silently, then share their thoughts with a small group before consolidating group results and reporting to the full audience. The participants then categorized all group responses under major headings.

All sessions were facilitated by the same person which provided a continuity to the process and proved invaluable (especially in the weaknesses/needs discussions) in determining which issues were coming up over and over in their inter-relation between topics. For example, inadequate public water supply was identified as a weakness in utilities, housing, economic development, emergency services, and tourism. Clearly, this is a major concern needing to be addressed in the strategic plan.

The following pages show in detail the consolidated and categorized group memory. Keep in mind that something regarded as a strength in one area may be considered a weakness in another area. The sessions were held on a regional basis, which was valuable in encouraging dialogue among related professionals from different counties, and in determining that overall, the issues are very homogeneous region-wide.

Part I: 2.a.iii. Demographic and Economic Data

This section is devoted to the basic understanding of why the Clinch-Powell Empowerment Zone experiences the type of chronic poverty and substandard living conditions that pervade this region. A detailed explanation and data in table format is found in Volume I, Section 4. In this section we will take a briefer look at the facts and depend on graphs to help tell the story of the Clinch-Powell region.

Figure I shows that the EZ census tracts are significantly poorer than other tracts in their respective counties, the state of Tennessee, or the country as a whole. Detailed data (see Volume I, Section 4, Table 1) show that three of the census tracts have a poverty rate greater than or equal to three times the poverty rate of the United States, while half of the census tracts have a poverty rate at least twice that of the state of Tennessee, a state in the heart of Appalachia.

Figure I: Poverty Rates

Source: 1990 Census of Population and Housing

Figure II demonstrates the fact that the Zone is extremely rural, especially in the area of population density. This sparse population density is one of the underlying reasons for the lack of public services and employment opportunities in the Zone. For detailed data, see Volume I, Section 4, Table II).

Figure II: Population Density (residents per square mile)

Source: 1990 Census of Population and Housing

Figure III (Population Trends) shows the growth of the population in the Clinch-Powell Empowerment Zone counties. During the 1970’s there was a large increase in population in the region overall. The growth slowed dramatically during the 1980’s (Hancock County actually had a loss in population), but the 1990’s are seeing another relatively high growth period. It is important to note that the growth displayed here represents the entire county population. It is absolutely certain that the EZ tracts have not demonstrated the same level of growth as demonstrated here because of isolation and remoteness. For detailed data, see Volume I, Section 4, Table III).

Figure III: Population Trends

Source: Regional Economic Information System

Figure IV shows that the Zone has a significantly higher percentage of the population age 18 and over without at least a high school diploma or GED than the other areas shown. The percentage of the population that has completed some college or has any sort of advanced degree is much lower for the Clinch-Powell Empowerment Zone than it is for the Clinch-Powell counties as a whole, the state of Tennessee, or the nation.

Figure IV: Population By Education Level

Source: 1990 Census of Population and Housing

An indicator of the depressed social status of a community is the frequency of pregnancies in teenagers and children. The data graphed in Figure V for births to mothers 19 years old and younger shows higher birth rate than the national level. This difference would be more pronounced if urban areas at the state and national level were omitted in the analysis. It is often thought that rural areas have stricter social norms than their urban counterparts. However, the following data reveal that we have a higher rate of children having children. (See also Volume I, Section 4, Table VIII)

Figure V: Child and Teenage Birth Rates

(per 1,000 population aged 19 or younger)

Sources: Bureau of the Census and National Center for Health

The social well-being of a community is also indicated by its crime rate. Figure VI shows that the level of crime in the Clinch-Powell counties is lower than that of Tennessee or the United States. While the level of serious crimes reported to police is excellent as compared nationally, it is important to recognize that citizens are worried about the growth of crime in the next decade as indicated in citizen surveys. (See also Volume I, Section 4, Table IX)

Figure VI: Serious Crimes Known to Police

(per 100,000 population)

Source: Federal Bureau of Investigation

Perhaps one of the most telling indicators of the social condition of a community is the state of the area’s housing. Figures VII through XI tell the story. Fewer Clinch-Powell EZ homes have indoor plumbing. Fewer have access to public water. More homes use wood and coal for heating that in other areas. Fewer homes in the Zone have telephone. The one bright spot is that a higher percentage of the population owns their own home. (Volume II, Section 2.a.1) confirm that at more than 70% of Zone residents have lived in their community for 15 years or longer. (See also Tables X through XIII in Volume I, Section 4).

Figure VII: Percentages of Homes with and without Complete Plumbing

Source: 1990 Census of Population and Housing

Figure VIII: Water Sources in Homes

Source: 1990 Census of Population and Housing

Figure IX. Primary Source of Energy Used in Homes

Figure X: Homes with and without Telephones

Source: 1990 Census of Population and Housing

Figure XI: Home Ownership

Source: 1990 Census of Population and Housing

It is difficult to accurately measure the true unemployment picture in the Zone census tracts. Figure XII displays the comparison of unemployment between the Clinch-Powell counties and the United States. In the mid-1990s, increases in light manufacturing and services brought the unemployment rate of the region below the national average. However, this trend began to reverse itself in 1997 with the closure of several cut and sew factories. (See also Volume I, Section 4, Table XIV)

Several of the census tracts in the Zone have virtually no employment opportunities. A high number of citizens travel outside the region from employment.

Figure XII: Unemployment Rates

Source: Bureau of Labor Statistics

A major problem in the Zone is displayed in Figure XIII (Travel Time to Work). A disproportionately large number of employees in the Clinch-Powell area have an extremely long drive to work. Almost one-fourth of Zone workers must drive over forty minutes to work compared with less 12% for Tennessee and less than 15% for the United States. This suggests that a large proportion of area residents must travel outside of their residence area to find work, even as the number of jobs in the Clinch-Powell counties is increasing. Many of these workers must travel to the cities of Knoxville or Morristown to find higher paying jobs that offer the possibility of advancement and self-betterment. . (See also Volume I, Section 4, Table XVI)

A second economic indicator that focuses on this same topic is the location of work, and is illustrated in Table XVII in Volume I, Section 4). This table clearly shows that a relatively small proportion of the residents of the Clinch-Powell Empowerment Zone census tracts (and the counties associated with these tracts) are able to find jobs paying a living wage in their own counties relative to the state and nation, even with the number of jobs in those counties increasing.

Figure XIII: Travel Time to Work

Source: 1990 Census of Population and Housing

Figure XIV: Transfer Payments (000s)

Source: Regional Economic Information System

Another indicator of the social and economic status of a community is the degree to which it receives transfer payments. Even more important is the rate at which those transfer payments are increasing. Figure XIV (Transfer Payments) shows the transfer payments to the Clinch-Powell Counties, the state, and the nation and the percentage increase from 1980 to 1995. As can be seen from this table, transfer payments (both government and private transfer payments) to the Clinch-Powell region are increasing at a rate faster than for either Tennessee or the United States. The increase in government plans suggests that either the population is aging and government transfer payments are increasing due to increased Social Security and Medicare payments or that the number of persons on welfare rolls is increasing. (See also Volume I, Section 4, Table XVIII)

The final set of data (Figure XV) shows the per capita personal income for the Clinch-Powell counties, the state, and the nation. This data, combined with other analyses presented in this section, dramatically illustrates the need for economic and social development in this area. All counties in the Clinch-Powell Empowerment Zone block lag substantially behind the state and the nation in income, the primary building block of wealth. This fact, perhaps better than all others, points to the root of the depressed status of these counties. Without wealth, a community is not on a level playing field to combat other ills such as the outmigration of young people, elevated mortality rates, substandard housing, etc.

Figure XV: Per Capita Personal Income

Source: Bureau of Economic Analysis, Department of Commerce

This analysis demonstrates the critical need for a comprehensive economic and social development program in the Clinch-Powell Empowerment Zone. Although economic ills and physical hardships plaque the area, its abundant natural resources and cooperative people provide a strong base from which to build a thriving sustainable community that will accomplish its vision.

Part I: 2.b. Assessment of Resources

The Clinch-Powell Empowerment Zone region is blessed with many resources, paramount of which is the dedication of the people to helping themselves and each other. This section will present the financial, technical, leadership, volunteerism, skills, and other community assets that may be tapped in implementing the strategic plan.

Part I: 2.b.i. Financial and Technical Resources

Note: * denotes financial resources    § denotes technical resources

Part I: 2.b.ii. Leadership and Volunteerism Resources

Leadership programs are on the rise in the Zone. This is a very new concept for the region. In 1997-98, three of the Zone counties initiated leadership programs within their communities. Of the two remaining counties, one is actively organizing a leadership program and the other has begun dialogue. The newly formed leadership programs are anxious to serve as mentors to new, emerging programs. These programs are also anxious to expand offerings in their community especially youth leadership and agriculture leadership. The Clinch-Powell RC&D, the East Tennessee Design Center, and the First Tennessee Development District are standing ready to provide direct assistance in leadership programming.

Organized volunteerism is a definite weakness in the Zone. While there are willing citizens who want to volunteer to make a difference in their community, most do not know who to call or where to go. Conversely, many community-based organizations are in need of volunteers but don not know where to go to find them. The Zone needs a volunteer center.

Many skills and community assets exist in the Zone and were discovered during the focus group process. These organizations are likely to be involved throughout the implementation process.

Part I: Section 3 and 4 – Goals and Strategies

This section will display in matrix format the holistic goals, objectives, strategies, actions and benchmarks to be achieved during the implementation of this ten year strategic plan. The matrix provides ‘ten years at a glance’. From this matrix, the 2 year work plan and benchmarks have been excerpted in Part II, Section 1 as the Phase I Work Plan.

The following organizational chart will help the reader understand how the EZ program will be structured and implemented under the lead entity RC&D Council. Keep in mind that many of the programs outlined will have partners as benchmark leaders. For example, expanding vocational technology in Zone high schools will be implemented with the school systems as the benchmark leader and is not included on this RC&D organizational chart.

RC&D/EZ Organizational Chart

Part II. Two-Year Plan

Part II of Volume II will detail the Phase I work plan, the Phase I operational budget, and use of EZ SSBG grants.

Part II: Section 1 – Phase I Work Plan

The RC&D and the EZ Steering Committee are ready to begin immediately. In fact, we do not plan to wait until approval before beginning work on several important benchmarks. Specifically we will begin the organizational arrangements of the community development corporation and regional chamber of commerce immediately so that we can be ready to move once approval is granted.

The Phase I Work Plan details the work that will begin in the initial two years of implementation of the Clinch-Powell EZ Strategic Plan. It contains the individual worksheets for each benchmark that will begin implementation during the first two years. This plan is taken directly from the Ten Year Strategic Plan which explains why the action numbers may not be sequential. It includes only those activities which will begin implementation by September 2001.

Directly following the Phase I Work Plan matrix you will find a more detailed description of the 2 year benchmarks. These benchmarks were prepared using the suggested benchmark worksheet and guidance made available by USDA RD. The benchmarks are numbered and coded by number in the 10 and 2 year plan matrix.

Part II: Section 2 – Phase I Operational Budget

The Operational Budget outlines expenditures in support of the Phase I Work Plan and the Benchmarks. It is important to note that unless otherwise indicated, funding projections do not represent actual obligations or commitments of dollars at this time. However, all funding sources are viable and EZ communities are eligible to apply. Application will be pursued during appropriate grant cycles of the state, local, federal and private funding programs.

The funding indicated represents the projected needs in support of the 2 year work plan and the projected total funding needs over the 10 year life of the strategic plan

The Phase I Operational Budget follows guidelines set forth in 25.402c2 as requested in the guidelines.

Part II: Section 3 – Uses of EZ/EC SSBG grants

The detailed use of EZ/EC SSBG funds is found in the benchmark worksheets included as Phase I Work Plan Part 2 in Section 1 above for the two year Phase I Work Plan implementation horizon. Each benchmark relates to an approved statutory goal as identified in Appendix C to the Notice Inviting Applications for Round II.

Please see the 2 and 10 year matrix for a detailed use of the SSBG funds.

Part III. Continuous Improvement Plan

This section presents the community’s plan for evaluating and learning from its experiences. It details the methods to be used to assess performance in implementing benchmarks and the process to be used for revising the strategic plan and benchmark goals.

Part III: Section 1 – Participation Assurance

During Implementation

This section outlines our plans for assuring continuous, broad-based community participation in the implementation of the strategic plan. Participation of local residents is what empowerment is all about. The response for this application has been tremendous. We need to ensure that public ideas and concerns continue to flow into the Empowerment Zone Implementation Committee (EZIC). The plan is a regional concept and will incorporate those ideas into implementation. The first projects will be those identified as high priority by the residents. These projects will benefit residents across the region, ensure sustainability of the region and keep interest and enthusiasm high.

Building on the excellent community participation involved in the development of the strategic plan, we will make every effort to keep citizens not only informed, but engaged throughout the implementation process. The steering committee firmly believes that the high level of participation from residents during the planning process is the first of several reasons we have enjoyed a planning process free of major controversy, dissension, and selfishness.

The second reason is that the people of our communities have trust and faith in the members of the steering committee. A great deal of thought and planning was invested in the careful selection of citizens who truly represent the community (not just because of positions held), in fact, several are non-traditional leaders. These leaders have conducted the process … been the ones who called and led discussions at community meetings, spoke at stakeholder meetings, approached county commissions and city governments, visited businesses and industries, and answered their neighbors questions. They developed the programs and projects and made the decisions on what would and would not be included in the plan based on the information they gathered.

One other reason for the high level of trust and participation is the involvement of the Clinch-Powell RC&D Council. The RC&D Council, a well-respected regional nonprofit organization, has a 9-year track record of working with community groups and local governments to meet mutual goals and work toward a vision. The RC&D tackles tough challenges with sensitivity, energy, and intelligence. RC&D, known as an organization that can get the job done, has coordinated the planning process and facilitated all sessions with the steering committee and focus groups as well as offered guidance to the steering committee..

These will be our three cornerstones for continued participation as we move into the implementation phase.

1. Invite partnerships
2. Empowerment Zone Implementation Committee
3. Clinch-Powell RC&D Council

Implementation of the strategic plan depends heavily on the participation of the community. Many of the projects and initiatives are, in fact, dependent on their active participation. Volunteer fire departments, EMS, recreation committees, health councils, and many others have a vested interest in successful implementation of the plan and will be active participants throughout.

One of the key programs being implemented is the organization and support of Community Clubs throughout the Zone, which will be one of the best and most enduring methods of participation. Community Clubs will be a highly synergistic method of meeting many strategies in the plan. This concept will be particularly valuable because the clubs will be sustainable well into the future, far beyond the ten-year EZ period. We are basing this program on a highly successful and sustainable model in western North Carolina where community clubs have been active for many years and coordinated at a regional level. The clubs will also be excellent vehicles for public participation because residents will be able to participate locally – in their own communities – a need and value which was repeatedly identified throughout the needs assessment process.

Continuous dialogue and collection of public input with periodic reporting to the citizens, groups, and governments in the Zone is imperative. We will:

• Hold annual public meetings in each county to report on activities, gauge citizen satisfaction, and re-evaluate current problems. These meetings will encourage participation by sending every household an invitation through a mass boxholder mailings as well as news articles, radio public service announcements, and posters.
• Hold a Zone-wide annual meeting and dinner to celebrate our successes, reflect on accomplishments, and encourage comment, feedback and evaluation from participation. At this annual meeting we will also present plans for the coming year for comment and input from the public before final adoption by the Clinch-Powell EZ Implementation Committee.
• Meet with county commissions each year to report on progress and activities and encourage feedback. In this region, county commission meetings are one of the best tools for informing the public as they are well publicized and actions are reported in local newspapers in front page stories. Additionally, the county executives will sit on the EZ Implementation Committee, which will guarantee county involvement, understanding, and commitment.
• The EZ will publish a printed annual report to be distributed widely, especially to funders and partners. In addition, we will publish an annual report of activities in each county newspaper for public information where we will encourage feedback.
• We will establish a toll-free phone line and publish the number widely to allow all citizens to comment on Zone activities.
• We will publish a quarterly newsletter.
• We will establish and maintain a webpage.

Part III: Section 2 – Incorporation of Experiences

As during the planning phase, the EZIC will continue to be open to growth and change. Most certainly there will be many changes and experiences gained which will be folded into the operations and plans of the EZ. As during the planning phase, we will continue to operate by consensus but will formalize decisions utilizing motions and votes after consensus is reached.

We will be open to the public and their participation at all times. Meetings of the EZIC will be open and established on a regular schedule for easier public participation and input.

Our process for making revisions to the strategic plan, benchmark goals and implementation methods and procedures will follow the tried and true methods utilized successfully by the RC&D for a number of years. RC&D experience shows that to be effective, a plan must be a dynamic document constantly being changed and updated, not a study sitting on a shelf. If the implementers can’t or won’t use it, it isn’t worth the paper it is written on. A really good plan is dog-eared with notes scribbled throughout, much like a manuscript in process.

The plan is, in fact, a work of art in progress. It is the portrait of a people’s future.

We will evaluate progress and plan activities annually. Each year activities for the coming year will be proposed and adopted at an annual meeting of the public. (These activities will be based on the current two year work plan approved by RC&D and Rural Development.)

During implementation, minor changes will be made in pen and ink by staff and subcommittee chairs. A minor change would be defined as one not affecting the outcomes for the current two year implementation horizon, such as modifying dates, fund expenditures (as long as total costs remain within the project or benchmark approved budget), or task leader. These type of changes would be kept on the master document and would be shared through periodic updates to the EZIC membership and partners.

A major change will require EZIC and RC&D approval and may require Rural Development approval as well. A major change would include canceling a project, changing or re-focusing a benchmark project (such as a shift from contracting with school systems for technical services to hiring a technician internally), or a major increase or decrease in budget of a project.

In the case of a major change, the appropriate committee will bring the change before the EZIC for recommendation of approval and then be approved by the RC&D Council. The EZIC will meet immediately before the RC&D Council so that board action will be immediate to the needs of the EZIC. The RC&D and EZIC will meet bi-monthly with meetings rotating between each of the EZ counties. This is a formula that has served well for the RC&D and is utilized by its several programs and initiative.

If during implementation it is discovered that there is a need for the EZIC to meet more frequently, they will do so. During initial start-up it is expected that monthly and even some bi-weekly meetings may be necessary for a period of three to six months.

Following the guidelines established above, natural changes and experiences will be shared and incorporated into the EZ in a natural and on-going fashion.

Following the end of the first two year work plan, we will look into commissioning a study to be led by a nearby university but utilizing local people to gather data and conduct interviews (based on model conducted by University of Tennessee for Rural Development of Round I EZ/ECs) to determine the impact of a regional concept and evaluate our success as well. The study will review public input and participation, operations, effectiveness of committee structure and intermediate results.

Part III: Section 3 – Benchmark Review

The Clinch-Powell Empowerment Zone will follow the guidelines for benchmarking as set-up by the Office of Community Development. The annual meetings and surveys will provide the necessary information to see if the direction of the empowerment zone should change in regards to a particular subject. The EZIC will review the results of the information gathered and review the strategic plan and current benchmarks to see if they reflect the needs of the area.

If a new benchmark is needed, it will be discussed and voted on by the EZIC. The committee will contact the local Community Development Specialist for Rural Development to receive guidance on constructing a benchmark that will be focused, feasible, and measurable. The new benchmark will be placed into the automated Benchmark Management System for review by a committee comprised of the USDA EZ/EC Coordinator, EZ/EC Specialist, and the Public Information Officer. The committee will make recommendations to the State Director concerning new benchmarks. In addition, the Title XX Administering Agency will be informed of the requested changes to help continuity in obtaining funds when requested.

Part III: Section 4 – Benchmark Amendment

The process for determining if a benchmark needs revision will be basically the same as adding a benchmark. Public input will be used to see if the current benchmark meets the needs of the area, and subcommittees will monitor changes needed during implementation. Conditions change and so should the benchmarks. The EZIC will discuss and vote on any benchmark revision which will be approved by the RC&D Council as outlined in Section 1. The amended benchmark will be updated in the Benchmark Management System. The revision will then be classified as Minor or Significant.

Minor revisions include changes in task leaders, task descriptions, timelines, technical or in-kind assistance received, funds received or funds requested. The system will classify the change for the empowerment zone. A Significant change will be sent to the USDA – Rural Development State Office for review by the committee previously mentioned. Their recommendations will be sent on to the State Director. The benchmark will be considered "Under Review" until decided upon by the State Director.

Part IV. Administration Plan

Part IV: Section 1 – Lead Entity

The lead entity for the Clinch-Powell Empowerment Zone is the Clinch-Powell Resource Conservation and Development Council (RC&D). The RC&D is a community development organization recognized as a charitable and educational nonprofit organization tax exempt under Section 501(C)(3) of the IRS Code (a copy of our IRS 501C3 letter is attached). The RC&D serves Claiborne, Grainger, Hancock, Hawkins and Union counties, Tennessee which are the five counties with census tracts included in this Empowerment Zone application. The RC&D is chartered as a nonprofit corporation with the Tennessee Secretary of State. The RC&D has legal authority to receive federal, state and private grant funds and has extensive experience in receiving and administering grant funds.

Organized in 1990, the Clinch-Powell RC&D Council enjoys the reputation of an organization that gets things done and has an impressive track record of successful community development programs throughout the Zone with the assistance of many federal, state and private partners. More information about and description of the RC&D is found in Section 1 of Volume I.

Part IV: Section 2 - Capacity

The RC&D has the capacity to implement this EZ strategic plan. Review of the 1997 Annual Report found in Volume I, Section 8 (Other Attachments), clearly demonstrates our ability to manage and administer a complex program as well as proving our commitment to community involvement and participation. Review of the statistics will show that in Fiscal Year 1997 we worked with 109 partners, implemented 69 projects, and involved 3,542 volunteers who donated 9,277 hours of service. Clearly working with the public is a primary strength (as is documentation of participation!).

Financial accountability and experience in federal and state grant management is also a strength of the RC&D. The organization contracts for an independent audit annually. A copy of the most recent (FY 1997) audited financial statements is included which is clean with no findings or management recommendations. While this audit did not require a single governmental audit, it is important to know that the RC&D received one in FY 1996. In addition to the annual independent audit, periodic program and financial reviews are conducted on two RC&D grant funded programs by state monitor/auditors.

Part IV: Section 3 – Board Membership

Board of Directors

The RC&D Council is governed by a 15 member Board of Directors comprised of three community members from each of the five counties the organization serves and represents the public and private sectors of the community. The Board governs the policy, direction and activities of the RC&D. Current board make-up is five female and 10 male members. There are no minority board members, however, the region has less than 0.5% minority population according to the 1990 census. Great care is taken to keep a board whose members are diverse in background and expertise as well.

The current board make-up follows:

1 Electric cooperative community relations specialist

1 Conservationist

1 Nursing home administrator

4 County executives

1 Retired insurance broker and chamber of commerce representative

2 Farmers

1 Soil Scientist

1 Attorney

1 Retired public school teacher

2 Office managers

Selection of board members is as follows:

5 county executives or their selected representative

5 representatives selected by Soil Conservation Districts

5 At-large community members

Staff

The RC&D staff puts ideas into action. A coordinator and a part-time office administrator working with the council are provided by the USDA in a unique public/private partnership through the Nature Resources Conservation Service. All other RC&D programs and staff are funded through grants, contributions, partnerships and fundraising. Current staff includes:

RC&D Coordinator

Office Administrator

Partners for Clean Communities Keep America Beautiful Coordinator

Clinch River Community Project Field Representative

Tourism and Technology Coordinator

U-Build Juvenile Delinquency Prevention Program Coordinator

AmeriCARES/AmeriCorps Program Director

18 AmeriCorps Members

Development Director (part-time)

Volunteers and Community

The success of RC&D projects depends heavily on the help of volunteers and the community. Volunteers help with most of our activities and provide vital links to partner organizations and community groups. They are also a continual source of new ideas, energy and fresh perspectives. We rely on our communities for the direction of our projects. With their input and participation we are able to focus on the concerns and problems that are important to them.

Part IV: Section 4 – Partnerships

The relationship between the RC&D and EZIC and the local county governments will be a close one. The county executives (or their representative) sit on the RC&D Board of Directors and will also sit on the EZIC. Each county executive served in an active or ad hoc role during the planning process. The partnership with other regional, planning and community development organizations is strong. They were involved in the planning process through focus groups, steering committee membership, financial support and/or information sharing. Evidence of the continuing partnerships with these organizations can be found in the letters of support and pledges to participate in Volume I, Section 7.

A listing of our committed partners is displayed below.

Congressional Partners

Bill Frist, United States Senator

William L. Jenkins, United States House of Representatives

Van Hilleary, United States House of Representatives

Micheal R. Williams, Tennessee State Senator

Mark Goins, Tennessee House of Representatives

Ken Givens, Tennessee House of Representatives

Dennis Roach, Tennessee House of Representatives

Federal Partners

Tennessee Valley Authority

USDA Natural Resources Conservation Service

Environmental Protection Agency

USDA Forest Service

State of Tennessee Partners

Governor Don Sundquist

Tennessee Dept. of Agriculture – Nonpoint Source Pollution Program

Clean Tennessee

Tennessee Commission on National and Community Service

Tennessee Dept. of Agriculture – Agricultural Resources Division

Tennessee Dept. of Transportation

Counties and Municipality Partners

Claiborne County Commission

Grainger County Commission

Hancock County Commission

Hawkins County Commission

Union County Commission

City of Maynardville

Town of New Tazewell

Town of Rogersville

City of Harrogate

Town of Tazewell

Regional Partners

Community Partnerships, East TN State University

First Tennessee Development District

East Tennessee Development District

Appalachian Sustainable Development

Douglas-Cherokee Economic Authority, Inc.

Walters State Community College

Environmental Partners

The Nature Conservancy

Friends of the Clinch and Powell Rivers

Business and Industry Partners

Hancock Manor Nursing Home

Signal Apparel Co., Inc.

Bushline

Oakwood Furniture Mfg. Inc.

Powell Valley Electric Cooperative

Citizens Bank

Brooks Glider Rockers

Home Federal Bank

Volunteer Knit Apparel, Inc.

DeRoyal Industries

First Claiborne Bank

Dalton Plastering Co.

Citizens Bank & Trust of Grainger County

Local Community Based Partners

Of One Accord, Inc.

Hancock County Health Council

GFWC Sneedville Woman’s Club

Hancock County Public Schools

Hancock County Highway Department

Jubilee Project

Hancock County Families First Council

Hancock County Chamber of Commerce, Inc.

Hancock County Historical/Geneological Society, Inc.

Sneedville/Hancock Community Partners

Rogersville Chamber of Commerce

Clinch Community Center Committee

Grainger County Chamber of Commerce

Lincoln Memorial University

Union County Retired Teachers Association

Hancock County Health Department

Hancock Education Boosters Association, Inc.

Washburn High School

Hawkins Dept. of Children’s Services

Agricultural Extension Service

Union County Solid Waste Authority

Hawkins County Industrial Board

Union County Department of Education

Thorn Hill Recreation Association

AmeriCorps/AmeriCARES

Clinch Community Council

Beta Pi Chapter of the Delta Kappa Gamma Society, Intl.

Union County Library Board

Clinch River Community Project

Claiborne County Utility District

Hawkins County D.A.R.E

Rogersville Housing Authority

Claiborne County Chamber of Commerce

Clinch-Powell Regional Library

Union County Business and Professional Association

Union County Family Resource Center

Claiborne County Department of Education

Clinch-Powell Education Cooperative

Rev. Dana Dalton

Horace Maynard Middle School

Grainger County Ambulance Service

Washburn Volunteer Fire Department

Washburn Postmaster

Partners for Clean Communities Keep America Beautiful System

Part IV: Section 5 – Public Information

Following the stage set in the planning process for the EZ, every effort to keep the public informed will occur. Because there are no television stations in the Zone, it can be a struggle to get instant news to the public. We will follow the tried and true methods utilized by the RC&D and other community groups in the region.

At a minimum we will:

• publish activity updates monthly in all five county newspapers,
• we will publish an annual report for partners, funders and the public,
• we will publish an abbreviated 1 page annual report in every county newspaper,
• produce a quarterly newsletter and disseminate widely to zone residents,
• produce an annual all boxholder mailing inviting residents to public meetings and the annual meeting, and
• hold an annual meeting open to all residents where activities completed in the previous year are reported and where activities for the coming year are presented for public approval.
• maintain and update webpage with current EZ information and progress. Web address: http://www.korrnet.org/cprcd

Part IV: Section 6 – Public Participation

The principal objective of community-based partnerships as outlined in 25.202(a)(2) will be accomplished utilizing the activities and methods discussed throughout this plan. Community-based partnerships are the premise on which the RC&D operates and underpins the firm foundation on which this plan is built. These partnerships will be utilized, nurtured and recruited with the following activities during implementation.

• Representation on the EZIC
• Annual focus group sessions where we bring regional professionals together to revisit and update conditions and progress. This will be a continuation of activities in the planning process.
• Formal partnerships and project leaders as appropriate
• Networking on regional EZ basis
• Toll free phone number for citizens in the Zone
• E-Mail address which will be directly accessed from our webpage.
• We will evaluate the need for another survey five years into the program.

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