Making Friends

An Introduction to Building National Park Service Friends Groups

National Park Service

U.S. Department of the Interior
Making Friends

An Introduction to Building National Park Service Friends Groups

Compiled by:

Mary Hanson, Outdoor Recreation Planner

Roger Knowlton, Outdoor Recreation Planner

Lead:

Marty Sterkel, Assistant Regional Director — Partnerships

Design & Layout: 

Rich Fedorchak, Partnership Program Training Manager

Corey Soennecken, Hapers Ferry Media Center, Special Projects

Cover Art: 

NPS staff, volunteers, and visitors on the deck of Friendship of Salem, the

park's replica tall ship as it returns to Salem from Boothbay Harbor, Maine.

This was the first in a series of such visits through "Friendship Centennial Sails!,"

a National Park Service Centennial Challenge project in partnership with the 

Essex National Heritage Area.

Midwest Region

National Park Service

601 Riverfront Drive

Omaha, Nebraska 68102

402–661–1536

April 2009
National Park Service — Making Friends Handbook iv 

Acknowledgements

Many thanks to the following individuals who contributed to the development of this guidebook

Friends:

Donna Asbury, Executive Director, Association of Partners for Public Lands

Curt Buchholtz, Executive Director, Rocky Mountain Nature Association

Robert Newtson, Friends of Saguaro National Park

George Hoag, Friends of Fire Island National Seashore

Katie Nyberg, Executive Director, Mississippi River Fund

Federal Contributors:

Marcia Blaszak, Regional Director, Alaska Region 

Mary Bomar, Former NPS Director

Fred Boyles, Superintendent, Andersonville National Historic Site

Suzanne Brinkley, Outdoor Recreation Planner, Pacific Basin Support Office

Johnny Carawan, Volunteer & Partnership Coordinator, Delaware Water Gap National Rec. Area 

Diane M. Chalfant, Assistant Associate Director, Partnerships and Visitor Experience

John P. Debo, Jr., Superintendent, Cuyahoga Valley National Park

Diane East, Management Assistant, Hot Springs National Park

Mark Engler, Superintendent, Homestead National Monument of America

J. Glenn Eugster, Assistant Regional Director, Partnerships Office, National Capital Region

Rich Fedorchak, Partnership Training Manager, Mather Training Center

Karyn Ferro, Partnership Program Coordinator, National Partnership Office

Phil Francis, Superintendent, Blue Ridge Parkway

Maryanne Gerbauckas, Acting Associate Director, Operations, Northeast Region 

Theodore Hillmer, Superintendent, Wilson’s Creek National Battlefield

Christopher Jarvi, Associate Director for Partnerships & Visitor Experience

Laura Jones, Education/Training Specialist, National Conservation Training Center, USFW

Ray Murray, Partnerships Program Chief, Pacific West Region

Robert J. Krumenaker, Superintendent, Apostle Islands National Lakeshore

Paul Labovitz, Superintendent, Mississippi River

Ken Mabery, Superintendent, Scotts Bluff National Monument

Diana Maxwell, Partnership Coordinator, Natural Resources Division

Cindy Nielsen, Superintendent, Great Basin National Park

Anne O’Neill, Park Ranger, Partnerships, National Capital Region

Kelly Pearce, Partnerships Program Assistant, Midwest Region

John Piltzecker, Chief, National Partnership Office

Ernie Quintana, Regional Director, Midwest Region

John Scott, Superintendent, Pea Ridge National Military Park

Shannon Stone, Partnership Program Analyst, NPS National Partnership Office

Nancy Woods, Project Manager, Office of Planning, Construction and Facility Management

Editing:

M. Elizabeth Lomax, PhD. South Omaha Public School System, Omaha, Nebraska

National Park Service — Making Friends Handbook
Table of Contents

Chapter 1 Friends Groups and the National Park System 1

NPS Structure 2

 NPS Washington Partnership Office Contact Information 3

 NPS Regional Partnership Coordinator 4

Vision and Commitment to Stewardship and Collaboration 5

Types of NPS Partners 5

The Role of NPS Friends Groups 8

 What a Friends Group Cannot Do 9

Chapter 2 Relationship Building - Laying the Groundwork for Success 11

Planning Together 11

Successful Partnering 11

 Relationship Cycles 14

 Relationship Building 15

 Making Decisions — Rational Decision Making Model 17

 Preventing Conflicts 18

Chapter 3 Moving from Ideas to Reality 21

Naming the Friends Group 21

Mission, Goals, & Objectives 22

Action Plan 23

Recruiting Board Members 24

 Where to Find Board Members 25

 Board Responsibilities into the Future 27

Financing a Friends Group 27

Chapter 4 Formalizing the Friends Group 29

Becoming a Nonprofit (501(c)(3) Organization 29

Articles of Incorporation 30

Bylaws 32

Chapter 5 Agreements and Plans 34

Agreements 34

Donor Recognition Plan 36

Chapter 6 Fundraising 38

Friendraising, NOT Fundraising is the Focus 38

Assessing Readiness 39

The Fundraising Cycle 44

Donor Pyramid 45

Chapter 7 Outreach & Media 46

Chapter 8 Managing for a Successful Friends Group 50

Monitoring & Evaluating 50

Celebrating Successes 53

Organizing for the Future 53

Succession Planning 54

Planning an Exit Strategy 55

Final Thoughts 56
National Park Service — Making Friends Handbook 1

Private sector support for America’s national parks is a tradition as old as the 

parks themselves. Even before the establishment of the National Park Service 

(NPS) in 1916 as a bureau of the Department of the Interior, citizens were 

stepping forward to protect special places that exemplify the United States of 

America’s national heritage. Today, over 160 partner groups and the National 

Park Foundation (NPF) carry forward this tradition with national parks.

Partnerships have become a way to get things done both within and beyond 

park boundaries. Some NPS parks and programs operate almost exclusively 

through partnerships. Many of the parks and units established in the last 25 

years have clear mandates to partner, including Heritage areas and nationallydesignated trails and rivers.

This handbook is intended to be a tool for the NPS Superintendent, park 

staff, and community members interested in creating and expanding Friends 

Groups that support the NPS. Friends Groups are established to help support interpretive, educational, and scientific activities through fundraising, 

membership programs, friendraising, and awareness building. The information provided will sometimes speak directly to the private citizen or Superintendent. Most of the information will need to be considered by everyone 

throughout the discussions and planning phases. 

Information has been gathered 

from many sources including: 

existing partners, park staff, 

subject matter experts, other 

Federal agencies that also develop partnerships, and the NPS 

Partnership Office. Many 

website addresses have been 

given for more detailed 

information and to assure the most current updates.

More than ever, with America’s changing demographics and landscape, there 

is an on-going need to build strong public support, which includes an awareness of park issues, conservation values, and a strong sense of stewardship and 

involvement. 

It is hoped that this publication will provide a guide to developing successful local Friends Groups. It will address the fundamental aspects of creating 

the partnering relationship and although it assumes most of the readers have 

never been involved with a formal NPS partnership before, it can also be a 

guide for established Friends Groups. This handbook includes organizational 

development tips, sample agreements, model case studies, checklists, and lists 

of contacts and resources to assist in the building of Friends Groups. The NPS 

extends its appreciation to all the groups that allowed us to benefit from their 

experience and knowledge.

Chapter One — Friends Groups and the National Park System

Partnerships encourage involvement; 

through involvement there is increased 

awareness; and through awareness 

there is stewardship.

—Chris Jarvi, Associate Director for Partnerships & Visitor Experience
National Park Service — Making Friends Handbook 2 

National parks or units are created by Federal enabling legislation. Each has 

its own unique or combination of purposes or resources. Parks are supported 

by regional offices and a national office, which provide management, administrative, and specialized technical assistance. Appendix A lists the authorities 

and NPS resources related to Partnerships.

Park staff typically 

includes a Superintendent or manager, rangers 

with specialized duties 

(natural resources, law 

enforcement, interpretation, etc.), administrative 

support, and

maintenance staff. Initial 

partnering typically starts with the Superintendent, but rangers and other staff 

can be involved depending on the project. Eventually, a staff member may be 

the lead contact with a Friends Group, but the Superintendent has the final 

responsibility for all actions taken on behalf of the park. 

A General Management Plan is completed for each park unit. This provides 

the background and plans for future development, maintenance, stewardship, 

and overall park management. Other plans are developed from the General 

Plan that specifically addresses interpretation, commercial services, etc. 

Information on the NPS can be found at: 

http://www.nps.gov/aboutus/organization.htm.

The National Partnership Office helps to carry out the Service’s philanthropic 

partnership mission by facilitating programs that focus on fundraising and donations, marketing and promotions, park-based friends groups, and relations 

with the Service’s congressionally chartered fundraising organization, the 

National Park Foundation. The National Partnership Office helps the Service 

and its partners create, enhance, and recognize effective partnerships through 

training, communication, and policy leadership. The Partnership 

Office provides:

l Oversight of the National Park Service’s policies 

 on donations and fundraising

l Assistance to parks, regional offices, and program 

 areas by facilitating the review and approval of large-

 scale donations and fundraising projects

l Coordination between the agency, the National Park 

 Foundation, and park-based friends groups

l Review and coordination of national cause-related 

 marketing and donor recognition programs

l Capacity building through the planning and delivery 

 of training for the Service and its partners

NPS Structure

The only problem with Friends Groups in 

the National Park System is that there aren’t 

enough of them.

—Curt Buchholtz, Executive Director, Rocky Mountain Nature Association
National Park Service — Making Friends Handbook 3

The Washington Partnership Office's mission is to develop, manage, and lead 

national partnership programs, promoting partnerships that broaden public 

participation, understanding, and support of the National Park System. They 

also assist field and region efforts to improve the capacity of NPS to create, 

nurture, and expand partnerships that fulfill the agency's goals.

NPS Washington Partnership 

Office Contact Information

Frank Dean Acting Program Manager 202-354-2150 frank_dean@nps.gov

Karyn Ferro Program Coordinator 202-354-2172 karyn_ferro@nps.gov

 Donations & Fundraising/ 

 Friends groups

Linda Neal Program Coordinator 202-354-2171 linda_neal@nps.gov

 Partnership Construction 

Rich Fedorchak Partnership Program 304-535-5053 rich_ fedorchak@nps.gov

 Training Manager 

NPS Partnerships & Philanthropic Stewardship

1201 Eye Street NW, Washington, D.C. 20005
National Park Service — Making Friends Handbook 4 

The Regional Partnership Coordinators provide innovative technical assistance to implement actions that develop, enhance, and maintain productive 

partnerships for the region and field staff. They promote partnerships and 

consistently evaluate them for effectiveness. In addition, the Regional 

Coordinators scan for new opportunities while developing strategies and 

projects to help field units and program managers work effectively and 

successfully with partners.

NPS Regional Partnership Coordinators

Alaska Area Region

National Park Service

240 West 5th Avenue

Anchorage, AK 99501

Midwest Region

National Park Service

601 Riverfront Drive

Omaha, NE 68102

Northeast Region 

National Park Service

U.S. Custom House

200 Chestnut St., 5th Floor

Philadelphia, PA 19106

National Capital Region

National Park Service

1100 Ohio Dr., SW

Washington D.C. 20242

Intermountain Region

National Park Service

12795 Alameda Pkwy

Denver, CO 80225

Southeast Region

National Park Service

100 Alabama St. SW

1924 Building

Atlanta, GA 30303

Pacific West Region

National Park Service

One Jackson Center

1111 Jackson Street 

Suite 700

Oakland, CA 94607

Mike Tranel

Alaska Desk Officer

Marty Sterkel

Assistant Regional Director

Partnerships

Tom Dyer

Office of Park

Partnerships

Wendy O'Sullivan

Associate Regional Director 

for Partnerships

Krista Muddle

Partnership Program

Coordinator

Chris Abbett

Assistant Regional Director, 

Partnerships

Ray Murray

Partnerships Program Chief

202-208-6381

Mike_Tranel@nps.gov

402–661–1536

Marty_Sterkel@nps.gov

617–223–5171

Tom_Dyer@nps.gov

202–619–7492

Wendy_O'Sullivan@nps.gov

303-969-2356

Krista_Muddle@nps.gov

404–562–3175 xt.522

Chris_Abbett@nps.gov

510–817–1439

Ray_Murray@nps.gov
National Park Service — Making Friends Handbook 5

According to a recent study, Nonprofit Partnerships in the Northeast Region: 

Assessing the Need for Strategic Support 2, less than half of the primary activities of NPS partners in this area typically involve fundraising for park-directed 

priorities. Efforts to improve the wide variety of other types of partnerships, 

particularly those involving interpretation, education, and resource protection 

that compose the majority of our collaborative activity, have received much 

less attention. 

From a better understanding of the role of partnerships by the NPS and its 

partners comes a new clarity and awareness for the value of stewardship and 

collaboration: 

l NPS recognizes that it is most effective results come from engaging and 

 collaborating with others, expanding awareness and understanding, 

 discovering mutual goals, attracting resources and support, and building 

 relationships, trust, and commitment to participation in collective efforts

 that extend the reach of all. 

l Inspired by experiencing a connection with the environment and a renewed

 sense of wonder and appreciation through the National Park system, many

 Americans seek ways of exercising their shared interest and responsibility

 for one of America’s greatest ideas. 

l Aware that dynamic interaction with the public helps introduce new and 

 innovative ideas, best practices and increased resources to the work of

 enhancing the fulfillment of the NPS mission, the Service is committed to

 building capacity for collaborative action and strengthening the connections

 between the American people and their parks.

Friends Groups

A Friends Group is any nonprofit organization established primarily to assist 

or benefit a specific park area, a series of park areas, a program, or the entire 

National Park System. A Friends Group can be the vehicle to provide an outlet 

for citizens’ passion about a park’s mission. Groups vary in size, structure, 

and purpose and benefit NPS in various ways, such as providing volunteer 

services, assisting with resource management and preservation, conducting fundraising efforts, and publicizing important issues. Funding to support 

the activities of the group come from donations, and often to a lesser extent, 

earned income. 

Vision and Commitment to 

Stewardship and Collaboration1

Types of NPS Partners

1McCollough, Rick. Considering, Building and Maintaining Collaborative Relationships to Support the 

National Park Service Mission: A Partnerships Guidebook. Partnership Office, Southeast Region, National 

Park Service. July 2006.

2McConnell, Kristen. Nonprofit Partnerships in the Northeast Region: Assessing the Need for Strategic 

Support Report Highlights. Northeast Region National Park Service. May 2006.

http://classicinside.nps.gov/documents/McConnell_Kristen_PR_Final.pdf
National Park Service — Making Friends Handbook 6 

The NPS is guided by Director's Order #21 on Donations and Fundraising 

when working with Friends Groups to develop and secure philanthropic support for parks. Other guidance may apply if the Friends manage volunteers or 

provide other services in cooperation with the agency.

The term “cooperating association” is any nonprofit organization with which 

the NPS has a “Cooperating Association Agreement.” Cooperating Associations are established under specific legislative authority to provide program or 

financial assistance to the NPS in the areas of public education, interpretation, 

research, and related visitor service activities. Funding to support this work 

comes from income earned from the sales of educational and interpretive 

materials, conducting educational programs and field institutes, and raising 

contributions to support the interpretive and educational mission of the parks. 

The public face of the Cooperating Association is most often the park visitor 

center bookstore and only organizations with a cooperating association agreement may operate these facilities.

Cooperating Associations are guided by policy provided in Director’s Order 

#32 on Cooperating Associations.

The fundamental differences between Friends Groups and Cooperating Associations are the focus of their mission and the source of their income. Friends 

Groups generally have a mission to provide support for the overall mission of 

the park partner. Funds to support their work comes from donations/fundraising, membership, special events, and perhaps from earned income generated through sales through on-line or other off-site (i.e., not in the park) venues. 

Cooperating Associations have a very specific mission focus to provide program and financial support to the NPS in the areas of education, interpretation, and research. The income to support these activities is generated in large 

part from the sale of interpretive and educational items in park visitor center 

bookstores. Only Cooperating Associations may operate these facilities. 

There are some nonprofit organizations that partner with the NPS to take on 

the function of both a Friends Group and a Cooperating Association. To date 

there are less than ten of these dual role organizations though there appears to 

be an interest in this model given the evolution of nonprofit partner capabilities matched with the park needs. The security of an earned income stream, 

the benefits of an established identity and constituency as a park partner, as 

well as the capabilities and expertise of an established board and staff are 

all considerations in adopting this model. The board composition of these 

groups is important and should reflect the need for experience in publishing, 

retail, and fundraising as well as other areas of expertise felt to be important.

Cooperating Associations

Organization with Dual Roles
National Park Service — Making Friends Handbook 7

Commercial Services Operators

These groups, known as concessioners or lessees, are businesses with which 

NPS contracts to provide necessary and/or appropriate visitor services such as 

food, lodging, recreational services, and retail operations. They have a signed 

contract, lease, or commercial use authorization that has typically been issued 

subject to a competitive bidding process. 

Congress established a concession program in 1965 and reformed it in 1998. 

The Director's Order #48A on Concessions is currently in the process of being 

reviewed and updated.

A Volunteers in the Parks (VIP) provides park support as outlined in DO #7, 

Volunteers in the Park. The primary purpose of the VIP program is to provide a vehicle through which the National Park Service can accept and utilize 

voluntary help and services from the public (http://www.nps.gov/volunteer). 

Volunteers’ contributions are vital to the success of the National Park Service. 

This program is distinguished from a friends group in that individuals have 

specific duties at a park or working with a program function. Friends groups 

are established under a formal written agreement to assist parks in supporting 

needed park programs and projects that have been beyond the reach of appropriated dollars.

Volunteers in the Parks (VIP)

Friends of Acadia volunteers repairing a park trail.
National Park Service — Making Friends Handbook 8 

Friends Groups are a partnership between the community and the park. 

Their boards can act as ambassadors of sorts, helping to extend the presence 

and values of the park into the community in a positive way. They help leverage the work of park employees through donated labor and funds. They may 

provide an avenue for public stewardship of park resources. Ultimately, they 

are a way to deepen public support for the park and the value of the park to 

the community. 

Traditionally, Friends Groups function in support of a park as volunteers and 

advocates, and provide additional financial resources through fundraising 

activities. Some of the roles that Friends Groups have undertaken in their 

efforts to support NPS parks and programs are: 

l Recruit and Manage Volunteers — Friends Groups can recruit and man 

 age their own volunteers, or they can help the NPS to manage its volunteer 

 program. 

l Involve Community — Members of a Friends Group may have more 

 access than park employees to the broader community itself, as well as 

 underserved sectors of a community. The public may also find a nonprofit 

 organization more approachable than a government agency. 

l Inform elected officials of park issues — A Friends Group can be an 

 advocate for the park by visiting with and providing information to 

 elected officials. 

l Support Staff — Friends Group staff can supplement staff capability by 

 either hiring staff or supporting NPS staff. Note: There are restrictions 

 on NPS hiring permanent positions that are supported by donated funds. 

l Conduct Market Research and Awareness Building — Members of 

 Friends Groups may have better access to media and marketing expertise 

 and can leverage or augment in-house staff capabilities. They can work 

 with cooperating associations as appropriate to develop park awareness 

 and branding materials. 

l Deliver Program and Stage Events — Friends can assist with special 

 programs and events under permits from the park, on or off-site. 

l Operate and Maintain — Some friends groups can assist a park with all 

 or portions of operation and maintenance responsibilities for structures, 

 visitor centers, parks, or specific programs. 

The Role of NPS Friends Groups
National Park Service — Making Friends Handbook 9

l Procure Equipment/Services — Friends can acquire and donate 

 equipment or services. 

l Develop Facilities/Grounds — Friends can leverage community support 

 and talents to develop facilities and grounds. This does require closer 

 coordination and oversight by the NPS to ensure that the completed 

 project conforms to the design, environmental, and accessibility standards 

 of NPS regulation and policies. 

l Raise Program/Project/Capital/Operating Funds — Friends can 

 aggressively solicit funds from external sources. Some donors insist 

 on donating to nonprofits rather than government agencies.

l Acquire Land — In most cases, a Friends Group can assist through raising 

 acquisition funds. Other nonprofits such as land trusts, the Trust for Public 

 Land, and The Nature Conservancy specialize in land protection and have 

 the requisite expertise. 

Knowing what a Friends Group cannot do is as important as knowing what 

it can do. It cannot speak for the NPS, Superintendent, or staff. It cannot 

dictate to the Superintendent or staff. The purpose of the Group should be 

to maintain a positive direction; it should not base its purpose on a negative 

stance or be contrary to the park or the management objectives and mission 

of the park and the NPS.

Friends Groups cannot operate sales outlets, or sell products within park 

boundaries without following appropriate NPS policies. As noted above, 

only Cooperating Associations can operate interpretive bookstores within 

park boundaries, guided by the policies in Directors Order #32. Other sales 

opportunities are subject to Concessions policies or temporary use permits.

During the formation and thorough the life of a Friends Group, participants 

should consider what role the Friends might be able to fill immediately as well 

as in the long-term. Initial projects do not need to be large and complicated 

as most beginning groups typically do not have the experience or staff. It is 

better to start with smaller projects in order to develop the reputation of the 

group and build confidence in its ability and capacity. As the Friends Group 

matures and develops, the members can assume additional roles and greater 

challenges.

While not every park has a Friends Group, there are many examples of 

successful partnerships to emulate. Cases studies that highlight these 

partnerships are available at www.nps.gov/partnerships/case_studies.htm.

What a Friends Group Cannot Do
National Park Service — Making Friends Handbook 10 

Spotlight On

Superintendent Mark Engler has 

had great success with the Friends of 

Homestead. The Friends have provided support, advocacy, volunteers, 

fundraising, and property management for the site. Engler can spend 

over 20 hours a week working with 

the Friends Group, but the payback 

is seeing park programs moved forward with stronger community buyin. He recognizes much of his park’s 

success is due to partnerships. 

Their accomplishments include:

• Raising over $500,000 for the 

 newly built Heritage Center 

• Surpassing the necessary match 

 for a land purchase by 100%

• Managing the 140 acres for 

 the NPS, which will be donated 

 to NPS

• Providing many volunteer hours 

 for Homestead programs

• Providing testimony in Congress 

 to support NPS and the 

 Homestead National Monument

Superintendent Engler said he 

provides people with his own vision 

of what he wanted to see happen at 

the park, but allows them the 

opportunities to use their own talents and interests in planning and 

implementing specific projects. 

Volunteers have the latitude to 

bring in their own ideas to grow 

and develop programs and projects 

as long as they stay within the NPS 

policy structure and park’s purpose. 

Mark Engler, Superintendent, 

Homestead National Monument, Beatrice, 

Nebraska, and Friends of Homestead

Friends Group members need to 

see the vision for the long-term to 

maintain a sustainable partnership. 

Engler states “NPS needs to also be 

willing to invest the time back into 

the group and help maintain the 

passion that is so important for 

success.”

Friends of Homestead is an organized 501(c)(3). Anyone who wants 

to be a friend can join without 

paying a membership fee. Donations and fundraising events provide 

financial support. Contacts are 

maintained by a newsletter (electronic and printed). Newsletters are 

sent to different groups and businesses in Homestead’s gateway city 

of Beatrice, Nebraska, as another 

way to keep close contacts with the 

local community.

A Friends Group is not the only 

partnership activity at Homestead. 

A cooperating association has been 

active for years. While it is still his 

responsibility as Superintendent to 

coordinate everyone’s efforts, Engler 

has found all the partners have established an open relationship from 

the first and together have coordinated many successful projects.
National Park Service — Making Friends Handbook 11

Chapter Two — Relationship Building - Laying the Groundwork for Success

Partnerships largely succeed based on common interests, realistic expectations 

and goals, personalities, persistence, and process. Failure to follow proven 

process is usually a fatal flaw in most partnership endeavors. 

The typical planning process will include the following actions:

l Core group of dedicated people

l Good communication between participants

l Dedication of time to accomplish the work

l Agreement of a shared vision and mission

l Plan goals and objectives that will fulfill the mission

l Build an effective organization

l Take action to implement plans

l Celebrate 

There are many different techniques and models for partnering. 

The following pages will discuss a few of the techniques and models. 

What works best is what the participants understand and feel comfortable 

using. The results will provide an outline for future work; integrating roles and 

responsibilities of the park staff and partners ensuring the best outcomes for 

the park. For more comments on what it takes to successfully partner, visit 

http://www.nps.gov/partnerships/top_ten.htm. 

Successful partnerships develop in a variety of ways. In the beginning, there 

may be an individual or small group of citizens interested in assisting a park 

who possesses the drive, initiative, and enthusiasm to approach the park 

Superintendent with their ideas. Or, park staff may recognize a need and an 

opportunity to engage more citizens in supporting the park’s mission. In 

either case, consideration of partnerships requires upfront work to fully 

explore the suitability and feasibility of fulfilling the need or needs through 

shared dialogue and effort. Is development of a new Friends organization the 

best approach, or can interested individuals be integrated into already established partner organizations or VIP programs with the goal of broadening 

capacity to achieve mutually-established goals?

Partnerships have a proven record for accomplishing important projects 

by private citizens for NPS, but it is always the responsibility of the 

Superintendent and NPS staff to assure NPS policies and regulations are 

followed. Each project or activity must be reviewed to determine if it is 

appropriate for the specific park. 

Planning Together

Successful Partnering
National Park Service — Making Friends Handbook 12 

While the support of a Friends Group can be invaluable, the relationship 

requires a significant amount of work. Individuals must be honest about their 

ability to support such an effort before deciding to become the catalyst for a 

Friends Group or if they are approached by others with the interest in developing a Friends Group. Park leadership and staff must be willing to invest the 

time necessary to help initiate a Friends Group, nurture the relationship, and 

develop a mature partnership. 

The key to successful partnerships is having all parties work hard at maintaining open communication, building trust, and being able to confide in each 

other. This includes ensuring all park partner organizations understand their 

respective roles within the park and are mutually supportive of one another’s 

missions. Keeping communication lines open is the responsibility of all participants. More problems are created by lack of communications than by too 

much. To the fullest extent possible, Superintendents will share NPS requirements, regulations, and constraints. Friends need to keep the Superintendent 

apprised of new issues, concerns, and situations as they arise.

Partnerships are complex and dynamic, a blend between mutual and selfinterest. Relationship management is the deliberate effort of interaction 

between partners to optimize their goals. This initial group sets the tone and 

approach of the future organization. As the formal group is created, these 

founders or initial leaders will be remembered for their action and inspiration. 

No one description will identify a core member, but they should have some or 

all of the following traits:

l Interest in the park or a passion for its stories or resources

l Organizational skills

l Willingness to work with others

l Time and energy to devote to creating the Friends Group

l Abilities and temperament to deal with a wide variety of personalities

l Enthusiasm and a sense of humor 

l Excellent communication skills, including the skill of listening

Results from a workshop3 conducted by the NPS and partners support these 

traits. A summary of common insights that contribute to successful, long-term 

cooperation include: listening and being responsive to the needs of others, 

building the relationship and sustaining it through trust, working openly and 

inclusively in ways that build a partnership team, being flexible and responsive 

to changing circumstances, being willing to share control and working together in way that empower the partners. 

Another consideration is to always respond to opinions. It does not mean the 

comment must be acted upon, but rather suitable recognition is required so 

the person knows he or she has been heard.

3Collaboration and Conservation: Lessons Learned in Areas Managed through National Park Service 

Partnerships. Workshop Report. (2001). Conservation Study Institute. Woodstock. Vermont.
National Park Service — Making Friends Handbook 13

Spotlight On

1. Focus on Important Needs 

Partnerships take time to establish 

and nurture in order to have successful outcomes. First, determine 

that a partnership is the best way 

to accomplish an important body of 

work. Then seek out the partner or 

partners who might best be able to 

help. In some cases you may have to 

create the right partner.

2. Adopt a Shared Vision 

Development and continuing refinement of a shared vision of the work 

to be accomplished is key to the success of any partnership. The vision 

should reflect both the broad body 

of work and each project or initiative to be undertaken.

3. Negotiate a Formal Agreement 

Good intentions and a handshake 

are not enough. Partnerships need 

formal written agreements and 

work plans that define mutual interests and expectations, the roles and 

responsibilities of each partner, and 

clear accountability for the work to 

be performed. 

4. Ensure Good Communication 

The success of every partnership 

is dependant upon the structure, 

frequency, and quality of communication between the partners. No 

partnership can reach its full potential without good communication 

practices as a core element of the 

relationship.

 

5. Maintain an Environment 

 of Trust

Trust is an essential ingredient for 

successful partnerships and enables 

collaboration and 

contribution.

Marty Sterkel’s Top 10 of Brian O’Neill’s 21 

Partnership Success Factors

To read the complete list visit:

 http://www.nps.gov/partnerships/oneill.htm

 6. Leave Your Ego and Control at 

 the Door 

The most insidious impediment to 

good partnerships is the unwillingness or inability of a partner to share 

power and control. They are about 

creating an equality of importance 

- an environment where individual 

personal egos are subservient to the 

interests of the whole.

7. Build Step by Step 

You have to invest (self or resources) 

to get results and process is important to achieve successful outcomes. 

Every situation presents a different 

set of opportunities based on the 

unique social, economic, and political realities in which a partnership 

must operate. Successful partnerships are built incrementally by starting at the beginning, and growing 

gradually and tackling more complex initiatives based on the competencies gained from the previous 

efforts.

8. Always be Courteous and 

 Diplomatic 

There is no room for disrespectful 

behavior. Honesty, respect, courtesy, 

tact, and diplomacy should govern 

partner relationships.

9. Honor Your Commitments 

Partnerships require a shared commitment to each other's success. 

Sustaining any partnership requires 

that exciting ideas of interest to the 

participants actually get executed. 

10. Network and Build 

 Relationships

Successful partnerships establish formal systems to identify people who 

can add value and support. They 

strategically build new relationships 

and expand networks to accomplish 

their priorities.
National Park Service — Making Friends Handbook 14 

Typical partnerships go through a life cycle, starting with ‘meet and greet’ to 

a successful final product. The Forming – Storming – Norming – Performing 

model of group development was first proposed in 1964 by Bruce Tuckman4. 

He maintained that these phases are all necessary and inevitable in order for a 

team to grow, to face up to challenges, to tackle problems, to find solutions, to 

plan work, and to deliver results.

Figure 1. Phases of Group Development

The beginning phase is when people get to know each other, ‘feel’ each other 

out, and start considering how they can interact. Some individuals share immediately, but others need time. Once the group feels comfortable enough to 

get down to work, there can be a period where there are misunderstandings or 

miscommunications. Conflict and polarization can occur. Stress levels can rise 

as people realize what they thought should happen is changed due to others’ 

participation. This phase is not always obvious as some participants are not 

comfortable speaking up to defend their concerns, but observing non-direct 

comments or body language can reveal problems. 

Eventually, with dedication and hard work, members of the group begin to 

collaborate and feel comfortable with each other again. This is the phase 

people find they are becoming friends and trust others in the group. 

The final phase is when the group becomes functional and productive and can 

now reach their desired results. Team members support each other and take 

on responsibilities and tasks to accomplish the goals.

The cycle is not a static event. Each time a new person is included or new project is considered, the group will go through this process while integrating the 

new individual and ideas. 

Acknowledging that all groups go through this cycle to some degree will assist members on moving forward even when the situation appears stalled and 

people are frustrated.

4Tuckman, Bruce W. (1965) 'Developmental sequence in small groups', Psychological Bulletin, 63, 384-399. 

The article was reprinted in Group Facilitation: A Research and Applications Journal Number 3, Spring 

2001 and is available as a Word document: 

http://dennislearningcenter.osu.edu/references/GROUP%20DEV%20ARTICLE.doc

 Accessed April, 2009.

Relationship Cycles

forming

performing

norming

storming
National Park Service — Making Friends Handbook 15

Group dynamics, personal interaction, and team-building are all topics that 

will come into play while creating or expanding/re-energizing a Friends Group. 

Each participant has his or her own reasons for participating, but ideally, each 

will overlap with the others’ interests and lead to a successful plan.

From the start, relationship-building with good communication skills will make 

the goals of all parties possible. The actions of the first members will set the 

tone for future members. Details matter. How people are approached, where 

meetings are held, even meeting room arrangements can affect the relationship 

development. Changing meeting locations and times can accommodate people 

who keep different schedules. Accessibility is just not accommodating people 

in wheelchairs or physical limitations. Place the group in a position that it can 

provide hearing or sight assistance. 

Potential participants may have the desire to help the park, but do not have the 

skills or experience of working in a partnership. All participants could benefit 

from training for building leadership capacity and community involvement. 

 

Questions or steps to consider in preliminary talks between a potential future 

or revitalizing Friends Group and a Superintendent can include the following:

l What does the park need?

l Is the time right for a Friends Group?

l What is the Friends Group role?

l Why is the organization necessary?

l What have other Friends Groups in similar circumstances done and can be 

 used as examples?

l What activities can the Friends Group undertake?

l What limitations might the Friends Group have in undertaking activities?

l What legislation and regulations need to be addressed?

l What will be improved? 

l What do the Friends Group and NPS staff want the future to look like?

l How formal does the Friends Group wants to be in its structure? Can the 

 existing Friends Group expand?

l Is there another partner or nonprofit already in place that can accomplish 

 the work?

Informal opportunities to develop the relationship are also important. Let 

people tell their stories to enhance the understanding of their culture and past 

experiences. Allow time for meals, social gathering, tours, or other activities 

to allow people to get to know each other better. Conversations during these 

informal breaks can lead to better insights on motivation, desires, reactions, 

and abilities. 

Relationship Building
National Park Service — Making Friends Handbook 16 

As relationships develop, recognize there can be cultural differences on how 

individuals relate. Take into consideration that some cultures are not immediately outgoing with new people or consider it inappropriate to share personal 

information. Ask questions on how the other participants wish to act within a 

group. Include a different culture’s methods for communicating and 

celebrating. 

Partnerships are complex and dynamic, a blending between mutual interest and self-interest. Each person works to get along with others to achieve a 

shared vision, and in turn, get results that all can support. The fundamental 

factors for collaboration are a web of interactive skills.

As the discussions proceed, keep in mind the skills necessary to build a team, 

design meetings, and facilitate interpersonal interactions and try to incorporate them into these efforts. Build on the reasons each of the members has for 

participating and weave these into a cohesive vision for the Friends Group and 

its relationship with the Park. 

The keys of successful partnerships are that all parties 

work hard at maintaining open communication, 

building trust, and being able to confide in each other. 

Keeping communications lines open is the responsibility 

of all participants.

Friends of Chickamauga and Chattanooga National Military Park helping out to restore

the Brotherton Farm.
National Park Service — Making Friends Handbook 17

Organizations use many planning techniques for accomplishing work. One 

method is the Rational Decision Making Model5. This theory evaluates what 

is feasible, understanding there can be limits on resources. Participants are 

expected to be open and provide accurate information to co-members. The 

process will provide the opportunity to consider a wide range of choices while 

still being effective and efficient. Decision making is centralized and open, but 

the purpose and limitations of the park are always taken into consideration.

A rational decision making process will fail unless users take into account the 

cultural and personal values of the participants. The application of this model 

should not be rigid. Unplanned situations and reactions can create unstable 

conditions threatening the balance and success of the group. 

Diplomacy and openness allows differing opinions to arise and be addressed in 

a manner that does not drive people away. Addressing potential conflicts in the 

planning stages of a Friends Group will let people know that differing opinions are allowed and there are means to resolve them. Losing people who are 

offended due to intolerance or misunderstanding is a loss of resources to the 

overall effort.

Rational Decision Making Model strives to create successful relationships 

based upon providing participants ownership of the process. They can express 

their opinions and participate in the planning process. Consensus building6 

assures participants they can raise issues, seek to understand each other’s 

views, and then cooperatively develop agreed upon goals. It can involve a longer timeframe than most other forms of decision making, but the results will be 

decisions everyone can support. 

Consensus is the desirable method for making decisions, but it is not the only 

way to reach decisions. Relationship building can take many paths. Depending on the situation, decisions can be made formally or informally. Other topics 

can effect or control a situation making consensus more difficult. 

Making Decisions — Rational Decision Making Model

5Organization Behavior. 12th ed. 2007. Robbins, Stephen P., and Timothy A. Judge. Upper Saddle River, New 

Jersey: Pearson Prentice Hall,. 156-158.

6Consensus Building, Community Tool Box. Rivers, Trails and Conservation Assistance, National Park 

Service http://www.nps.gov/phso/rtcatoolbox/
National Park Service — Making Friends Handbook 18 

Compromising is another form of reaching agreement. Compromising is 

acceptable if the partners trust each other’s actions and motives. Everyone 

involved should also realize initial discussions and plans will change as time 

passes and new resources and events occur. The main goal of relationship 

building is to ensure partners remain open and flexible. 

Consider using different perspectives and techniques. No one type of 

“process” is better than any other. There does not have to be a “winner” and a 

“loser”; the goal is to better understand everyone involved and determine how 

to accomplish what is best for the park. The group should maintain 

resolve to collaborate and enhances the objectives of all included.

Preventing Conflicts

The leadership of the Friends Group and the park Superintendent need to be 

aware that conflict can develop. Hidden problems can stymie or ruin a group’s 

efforts without participants even being conscious of what is happening. 

Staying aware of potential conflict can prevent the growing relationship from 

faltering. Problems that can become roadblocks to successful partnering 

include:

l Controlling issues, e.g., the park, the story, the community, resources

l Miscommunication or destructive communication

l Personal agendas that do not fit with the park’s mission and needs

l Ignoring legislative mandates

l Patronizing or condescending manner

l Misreading body language

l Making promises or statements on behalf of others within the group 

 without their knowledge

l Pontificating and wasting time at meetings.

l Being defensive

l Judging others

l Disruptive interacting of personalities

l Developing personal or group rivalries

l Appearing to take sides

l Misperceiving a situation 

l Blaming others, e.g., “You should have called sooner.”

l Making assumptions 

l Patronizing or talking down to others

l Not sharing information

l Ignoring other’s comments, speaking over them, or parroting what they say

l Lacking of sensitivity to the partner or park perspective
National Park Service — Making Friends Handbook 19

Techniques for dealing with conflict are as varied as the people involved. There 

are many resources, books, articles, and training on leadership and conflict 

resolution available. Points to remember include:

l Accept conflict will happen and be ready to take action quickly to negative 

 comments and actions. It is important to consider how people will react to 

 actions or comments and prepare a response. 

l Pay attention to comments or questions that may expose a potential conflict. 

 At meetings, ask participants if they understand planned actions and if they 

 have any questions, comments, or concerns.

l Address conflict up front. When conflict occurs, the first response by most 

 people is to become even more polarized.

l Bring people back into a discussion by going back to the group’s purpose.

l Be dependable and approachable so people feel at ease addressing issues.

l Provide resources because a lack of information can create 

 unnecessary stress. 

l Show appreciation for the various talents and contributions of the 

 participants.

l Acknowledge and recognize individuals or sub-groups to create stronger 

 feelings of ownership.

l Present a positive attitude about the group and its goals.

l If a partner is not interested in the current priority, maintain a relationship 

 with this person for future activities.

l Ask a neutral party to act as a moderator or facilitator during meetings. This 

 person can re-direct anger, identify issues, and control the process so the 

 group can reach consensus.

Over time, people will come and go. Having a standard for dealing with conflict will provide new leaders the information they will need to sustain the 

organization. 

References used in this chapter:

Conservation Technology Information Center, Leading & Communicating: A 

Guide for Watershed Partnerships. 

http://www.conservationinformation.org/?action=learningcenter_kyw_

leadingandcommunicating

Frank, Flo and Smith, Anne. (2000). The Partnership Handbook. Labour 

Market Learning and Development Unit, Human Resources Development 

Canada, Place du Portage IV, 5th Floor, 140 Promenade Du Portage, Hull, 

Quebec, K1A 0J9 

http://www1.servicecanada.gc.ca/en/epb/sid/cia/partnership/handbook.shtml

Partnership Resource Center, U.S. Forest Service, USDA. (2006) Partnership 

Guide: The Power of People Working Together. 

http://www.partnershipresourcecenter.org/resources/partnership-guide/index.html
National Park Service — Making Friends Handbook 20 

Spotlight On

Pea Ridge National Military Park’s Friends Group is called the Pea Ridge National 

Military Park Foundation and has existed since the mid-1990s. The group was 

instrumental in raising $30,000 for the purchase of General Samuel Curtis' uniform coats, making Pea Ridge the only Civil War National Park Site to have the 

coat worn by the commanding general of the victorious army on display. The 

Foundation also funded the upgrade of the park’s auditorium sound system and 

continues to fundraise for up-coming park projects.

Superintendent John Scott came to Pea Ridge in 2000 and found the group discouraged. In the beginning, they held small, local fundraising events. Though 

successful, a small group of people put in many personal hours for minimal 

financial results. The burnout rate was high for the Board of Directors. They 

were experiencing growing pains and finding their place within the park. The 

small group tried to do everything themselves and were divided on how best to 

assist the park. 

Scott said it is essential that the park be a full partner and advocate for the 

group. The Superintendent can advise and work with the Friends Groups to 

define their role in promoting the park’s mission. The Board of Directors reorganized and began asking members for more assistance and delegating tasks. 

The membership was always willing to help, but they just needed to be asked. 

The Foundation members also came to understand they needed to spend money 

to their advantage. They developed a Website and their professional image, 

which have attracted new members and increased donations.

Although there was some fear of getting involved with businesses outside of the 

local community, they extended their outreach. The group has now made connections with corporate sponsors to assist and underwrite specific projects and 

programs. They are finding a bigger return on their efforts. 

The group is in its first year of an outreach program called the Festival of the 

Ozark Civil War Reunion. The group is reaching out to the descendents of the 

Battle of Pea Ridge and the descendents of the local landowners of the time. 

Often Friends Groups fail due to lack of support from the park. All park staff 

must be committed to the effort. The Foundation members are just as important as paid employees in terms of being treated fairly and kept informed, as 

they too represent the park.

Scott said, “NPS employees need to understand the benefits of Friends Group, 

which includes money that goes directly into park improvements, recognition 

of the park, advocacy for the park’s best interest, and they can develop contacts 

that the park might not be able to develop on its own. It is worth spending time 

with the park’s Friends Group: it will pay off in the long run.” 

Pea Ridge National Military Park, Garfield, 

Arkansas, and Pea Ridge National Military 

Park Foundation
National Park Service — Making Friends Handbook 21

Chapter Three — Moving from Ideas to Reality

Members of Friends Groups should be able to state the purposes for the 

actions they plan to take. Why does the group exist? What do they want to 

accomplish? A Mission Statement with goals and objectives creates a framework to answer these questions. An Action Plan specifically creates the 

framework in which the objectives will be accomplished. The information is 

used for keeping participants on track, communicating to outsiders, and 

measuring results. 

Working through this process takes time and effort. A facilitator can assist in 

keeping the process moving and free-up participants from running the 

meetings so they can concentrate and be more involved in the dialog of the 

meetings. 

The name of a Friends Group can immediately provide the purpose of the 

organization to others. A name should communicate a place or program that 

people will be motivated to support. A good rule of thumb is to include the 

park, park clusters, or unit name. You are establishing an identity and a brand 

that you want people to remember and make a positive association with. The 

name should convey an organization that people will give to versus one that 

suggests that you make grants. Choices include: Friends of ...., Conservancy, 

Foundation, Trust, Fund, etc. 

If your Friends Group plan to incorporate and obtain nonprofit status, it is important to ensure that the organization name selected is not being used by another group. A simple online search can help to eliminate this possibility. Also, 

check the Federal Trademark Registry and the state trademark registry. With 

today’s use of the Internet, it is also important to find a domain name that is 

available. Go to www.networksolutions.com to check the domain name registry.

Naming the Friends Group8

8http://www.nps.gov/partnerships/friends_groups_doc.htm#anchor2
National Park Service — Making Friends Handbook 22 

A Mission Statement is the excitement and the potential what the group 

wishes to accomplish. As the group proceeds, it is the touchstone for the 

organization and the basis of the goals and objectives. A definitive statement 

can take more than one meeting to write and convey the organization’s 

purpose. It also provides focus and guidelines for the developing organization 

as it grows. 

The Mission Statement should be bold, but short and direct; two to three 

sentences are adequate. When the following questions can be answered, the 

mission statement begins to evolve: 

l Why is the organization necessary?

l What will be improved? 

l What does the group want the future to look like? 

A mission statement can be for a specific project, e.g., completing a visitor 

center, or be on-going, e.g., create an endowment fund for education or 

interpretive projects. The discussion is just as important as the outcome as 

it provides opportunities for all participants to share their views. A list of NPS 

Friends Groups and their Mission Statements can be found at 

http://www.nps.gov/gettinginvolved/partnerships/Friendsgroups.htm.

Goals state what is to be accomplished in non-measurable ways to attain the 

mission. There can be any number of goals, but they should be realistic and 

achievable. This is the ‘WHAT’ part of the plan that the organization will follow.

Objectives are specific, measurable actions that must be taken to accomplish a 

goal. This is the ‘HOW’ part of the plan. 

Another function of the Mission Statement, Goals, and Objectives is to prepare 

the group to become a recognized charitable organization. This is commonly 

referred to as receiving a 501(c)(3) or nonprofit status. Donations to formal 

nonprofits are tax deductible, which is attractive to some people. The mission 

statement will be a key element in obtaining this tax status. The organization 

needs to assure the mission statement fits the requirements of the Internal 

Revenue Service for nonprofit status. A group must be involved with at least 

one of these categories: scientific, educational, or charitable.

 Hanson, Mary A., Haertel, Kandee. 2003. Getting Organized: Creating an Equestrian Advocacy Organization. Equestrian Land Conservation Resource Publication. Lexington, KY

Mission, Goals & Objectives9
National Park Service — Making Friends Handbook 23

Example of a Mission Statement & Goals 

from the Mississippi River Fund Strategic Plan

The Mississippi River Fund’s mission is to strengthen the enduring connection 

between people and the Mississippi River and build community support for 

the Mississippi National River and Recreation Area.

We do this by:

l Raising funds to support of the Park’s education and stewardship programs

l Increasing awareness of our National Park and the Mississippi River

l Providing community connection, expertise, advocacy and inspiration for 

 the Park

An Action Plan identifies the specific activities that will take place within a 

specific time frame. It prioritizes and identifies which actions need to be taken 

first before other goals or objectives can be accomplished. The short-term 

actions are typically completed within one year. Some activities can be 

implemented concurrently, but others will have to wait until a later, more 

appropriate time. 

An Action Plan can be laid on a chart providing a graphic representation to 

help members visualize the activities that need to be completed.

Action Plan

Table 1. Example of an Action Plan

Action

Membership

Base

Create

Newsletter

Purchase Historic

Building

Completion 

Date

December

January 1, 2008

January 2011

Person

Fran Smith

Joseph Santo

Loye Carmel &

Superintendent

Resources

Required

Assistance entering 

data

Publishing software, Printing bids, 

Bulk mailing permit

Fundraising Plan

Donor Recognition 

Plan

Status

Still need volunteers 

for entering data

Have donor for 

software

Need businesses 

for bids

Waiting on 

nonprofit status

On hold until 

incorporation is 

completed.
National Park Service — Making Friends Handbook 24 

Recruiting Board Members

Leadership in the working world is driven by production, and people are 

compensated by receiving their wages and benefits. Involvement in a Friends 

Group is a volunteer effort. The rewards can be the personal satisfaction of 

accomplishment, the recognition by others, the interaction with others, or the 

participation in a topic a person feels passionate about.

Beyond the planning process of creating a Friends Group, a Board of Directors 

will be needed to accomplish the work. The responsibility to issue invitations 

to join the board will come from the initial group, who will likely have created 

an informal nominations committee. The park Superintendent and staff will 

be able to work with the committee to identify board prospects. NPS staff will 

also be able to attend meetings with board prospects, provide limited clerical 

support, and, when it does not unduly burden park staff, offer familiarization 

tours. 

According to the Center for Nonprofit Management the responsibilities of 

nonprofit boards fall into four major categories 

(http://www.cfnpe.org/ResourceInfo_DevelopBoardOfDirectors.htm):

l Legal and fiduciary

l Oversight of the organization and its management

l Fund raising

l Representation of different constituencies’ viewpoints as well as the demo 

 graphics of the community. 

A sample board recruitment grid is available at 

http://www.managementhelp.org/boards/brd_grid.htm and another is found in 

the next section of this document.

When beginning to recruit board members there should be discussions that 

cover responsibilities and contributions of time, efforts, and, if appropriate, 

financial support. It is advantageous to have a board member position description, with a statement of duties and an agreement that sets forth length of 

their term, the succession process, and their expected annual involvement and 

contributions. In this way, new board members understand expectations and 

obligations from the beginning. The number of board members is customized to suit the situation of the group; however, as a general guide there should 

be no fewer than five unrelated board members. Board membership should 

reflect the diversity of the communities served by the organization.

As the organization develops, committees of two to five board members may 

be established for basic functions such as board recruitment, fundraising, 

finance, or evaluations. These committee members can do in-depth, focused 

work between full board meetings and report back and make their recommendations to the full board. This allows for more efficient use of board members’ 

time and skills. 
National Park Service — Making Friends Handbook 25

Boards can include additional committees and workgroups, such as for special 

events, as a way to attract others with connections and expertise without 

requiring a commitment to serve on a board. These committees and workgroups may also serve as stepping stones to board membership.

NPS employees may not serve as members of the Board (voting or ex-officio), 

but they can however serve in a liaison capacity.

It is likely that both the original group and park leadership will have an idea of 

the key people in the community they would like to see have a greater involvement with the park. Beyond that there are other ways to cast a wide net. The 

group or its nomination committee can, in cooperation with the park, make 

presentations to service clubs, churches, social clubs, schools, and community 

meetings. These approaches can reach a wide audience. Individual contacts 

also work very well. Personal visits are especially effective for involving prominent members of the community. Media releases, letters to the editor, and 

written articles can be effective in raising interest in the community, but will 

not be a substitute for a face-to-face, personal contact. Typical places to begin 

reaching out to potential contacts can include:

l Community leaders (city council, chambers of commerce, economic 

 develop groups)

l Organizations supporting a similar focus as the park (history, natural 

 resources, recreation, etc.)

l Businesses

l School boards and teachers

l Service clubs

l Conservation or environmental organizations

l Universities or colleges

l Local residents interested in similar issues

Where to Find Board Members
National Park Service — Making Friends Handbook 26 

Selection of board members can be accomplished through review and 

discussion of existing information about the nominees, their skills, and the 

needs of the organization. A board planning matrix should be used to 

organize discussions and highlight potential members as shown in the 

following example.

Not every person approached will want to be intensely involved as a board 

member. However, they may be willing to volunteer for a one-time activity, 

donate money, or assist as long as they do not have to take the lead. It will be 

important for the core group to start and maintain a contact list of these individuals. This can be used later to disseminate information on the work of the 

group or progress toward its formalization in order to ensure they have ample 

opportunity to be involved should something develop that interests them personally. In addition, these people may be interested in short-term committees, 

and this level of involvement, can be an opportunity to develop future Board 

members.

Characteristics

Names

Phyllis Snow, Mayor

Robert Mercer

Auto Shop Owner

Manuel Rossi

Banker

Stephanie Choo

Resident

Considered a

Community 

Leader

X

X

X

Has expertise on

park's main 

purpose

X

Has financial 

experience or 

contracts

X

X

Good public 

Speaker

X

X

Interested in 

helping

X

X

X

Table 2. Matrix for Creating a Friends Groups' Board of Directors

One of the biggest challenges in working 

with Friends Groups is managing the 

expectations and orienting the Board 

members to park purpose, NPS Mission, 

and constraints of Federal Processes.

—Cindy Nielsen, Superintendent, Great Basin National Park
National Park Service — Making Friends Handbook 27

Initially, the board members take an active role creating and running their 

organization. They not only volunteer their ideas, knowledge, and financial 

support, but also complete the physical work of making contacts, fundraising, 

creating newsletters, writing letters, etc. Eventually if the group grows and 

wishes to continue there will be a decision to hire staff. 

The board then plans how to structure the organization, hire staff, and create 

continuing sources of funding, to not only accomplish projects that support 

the park, but also support the expenses of staff and overhead. The board 

members’ responsibilities move from the day-to-day operations of the 

organization to primarily governance and oversight activities. For an article 

on the life cycles of organizations go to 

http://richardmale.com/documents/NPOLifeCycle.pdf.

Most groups begin as an all volunteer organization. Typically there are no 

funds for either startup or project work. The first expenses of travel, meals, 

telephone calls, printing, stamps, etc. most likely will be paid by the 

participants from their personal funds or small donations.

Money is never the main focus of the organization, but it is often an 

important topic towards the accomplishment of the group’s goals. When 

recruiting board members, people with the ability to raise funds or approach 

others for donations are very important. 

Once a group determines what is to be accomplished, a budget is created. It 

can be very basic at first. A treasurer is appointed or elected. This person will 

track and report on monetary matters at each meeting. If or when a group 

decides to hire staff, a budget will have to include categories for compensation 

and benefits. The staff can take over the tracking of expenses and incomes for 

the group with oversight by the board. 

Some funds will be needed to support the operation of the Friends Group. 

Initially this can be travel expenses, printing, and mailing costs. Eventually, 

if a group grows there may be expenses for staff and office. Partners need not 

seek NPS approval to raise funds expressly restricted to use in administration 

of the organization. It is the board’s responsibility to assure the organization 

covers its expenses while still providing funds for projects. 

The following is an example of a typical partnership organization’s budget. 

The treasurer should work with committee chairs to assure each project or 

expense is tracked. At the end of the calendar or fiscal year a financial report 

that includes expenses and income is finalized. It provides a review of how the 

actual budget compared to the projected budget, and then used to create the 

next year’s budget. 

Board Responsibilities 

into the Future

Financing a Friends Group
National Park Service — Making Friends Handbook 28 

Table 3. Example of a Friends Group Start-Up Budget

Compensation and Benefits

Executive Director ________

if any

Full Time ________

Part Time ________

Administrative Support ________

if any

Full Time ________

Part Time ________

Training, Conferences ________

i.e. Friends Alliance, 

APPL Foundation Center

Printing and Publications

Copying ________

Publications, Graphics ________

Donor Newsletter ________

Donor Envelopes ________

PR/Media Services ________

Travel and Meetings

Out-of-Town Travel ________

Local Travel ________

Entertainment ________

Facilities and Arrangements ________

Awards and Recognition ________

Consultants/Professional Fees

Fundraising ________

Legal ________

Accounting, Audit ________

Investment Management

Fund Raising Projects

Major Gift Solicitation ________

Direct Mail/Memberships ________

Special Events ________

Communications

Phone, Fax, Long Distance ________

Postage Shipping, Courier ________

Donor Software ________

Other Software ________

On-Line Services ________

Subscriptions Memberships ________

Supplies/Equipment

Office Supplies ________

Equipment Leases ________

Maintenance Agreements ________

Non-Depreciable Equipment ________

Furniture Purchases ________

Depreciation ________

Space Cost

Rent ________

Cleaning ________

Maintenance ________

Alterations/Improvements ________

Storage ________

Insurance/Service Fees

Insurance ________

Bank Charges ________

Payroll Processing ________

Business Fees, Licenses ________

Miscellaneous ________

TOTAL ________
National Park Service — Making Friends Handbook 29

The majority of NPS related Friends Groups have charitable or educational 

purposes and may incorporate as Internal Revenue Service (IRS) recognized 

nonprofits to obtain tax-exempt status. Creating a new nonprofit is neither 

easy nor fast, but it is essential to allow donors to claim tax deductions for 

their contributions. 

NPS may require nonprofit status if the group will be taking donations, but 

the group can also partner with another organization that already has formal 

nonprofit status. When writing any formal agreements with the NPS, information on who will be managing funds should be included. 

The information provided here is for general guidance only and not to 

be taken as legal guidance. Before finalizing any formal documents or 

agreements, everything should be reviewed by an attorney. Other 

professionals who should be consulted are an accountant and an 

insurance agent.

Once a group decides to become a formal entity, there are multiple state and 

Federal requirements. The following steps are a general guide and may not 

apply to all situations. Often a new group may do much of the initial work 

themselves and then have an attorney review the paperwork before submission. In situations that are more complex, legal assistance may be necessary 

throughout the process.

More information on meeting the federal requirements of nonprofit, also 

called 501(c)(3), statutes can be found in Appendix C and the Internal 

Revenue Service web site 

http://www.irs.gov/pub/irs-pdf/p557.pdf. 

Friends Groups will need to register in the states in which they will be raising 

funds. The Unified State Registration Form is a good place to start for information on the requirements in each state: http://www.multistatefiling.org.

Chapter Four — Formalizing the Friends Group

Becoming a Nonprofit (501(c)(3) Organization
National Park Service — Making Friends Handbook 30 

The first step is in formalizing the Friends Group is to draft the legal 

incorporation document — the "certificate" or "articles" of incorporation—

and filing the document with the state’s charitable registration office. This is 

usually the office of the Secretary of State or Attorney General although some 

states house this function in the Department of Consumer Affairs, Administration, Business Regulation, Commerce or Regulatory Licensing. The National 

Association of State Charity Officials, http://www.nasconet.org/agencies, can 

determine where to file. The Foundation Center notes that in some states, 

approval must first be obtained from any state agency that will be regulating 

the proposed programs of the nonprofit organization. 

Information required for Articles of Incorporation generally includes the following items:

l The name of the corporation

l The purpose of the corporation with the goals of the organization stated

 broadly in order to provide program flexibility in the future, and do not

 include purposes that will trigger state agency reviews of the proposed

 incorporation unless the organization in fact plans to conduct those

 programs. 

l A statement that the corporation does not afford “pecuniary gain,” or

 profit, to its members

l The period of duration of corporate existence, which may be perpetual

l The location, by city or community, of its registered office

l The name and address of each incorporator

l The number of directors constituting the first board of directors, the

 name and address of each director, and the tenure in office of the first

 directors

l The extent of personal liability, if any, of members for corporate 

 obligations and the methods of enforcement and collection (There will

 be none, except in unusual circumstances.)

l Include provisions for the distribution of corporate assets and for 

 dissolution

l The document will state whether the organization will be ruled by just 

 the Board of Directors or if the membership will have voting privileges. 

 A statement that membership is the Board of Directors can be 

 advantageous for non-membership organizations. Without such a 

 statement, it could be assumed that the corporation has a separate 

 membership that elects the Board of Directors. Members may have

 significant rights with respect to internal governance, such as the right to

 elect and remove directors, vote upon changes in the structure of the

 organization, and amend bylaws. While there can be significant benefits

 to forming a corporation as a membership corporation, it also imposes

 legal obligations in preserving the rights of members to participate in the 

 corporation's governance.

Articles of Incorporation
National Park Service — Making Friends Handbook 31

Additional guidance on creating a nonprofit can be found on the websites of 

the IRS: http://www.irs.gov/charities/charitable/article/0,,id=122725,00.html. 

In addition, BoardSource has a free e-book on starting a nonprofit, see: Starting a Nonprofit Organization: Turning Vision into Reality: 

http://www.boardsource.org/Knowledge.asp?ID=2.

For more information see "Legal Aspects: Cutting the Red Tape," from Starting and Running a Nonprofit Organization, Second Edition by Joan Hummel 

(University of Minnesota Press, 1980, 1996) pp.31-33. More information is 

also available at the websites of the Foundation Source 

(http://www.foundationsource.com) and the National Council of Nonprofit Associations (http://www.ncna.org). For the Free Complete Toolkit for Nonprofits visit http://www.managementhelp.org/boards/boards.htm#anchor314119.

It is necessary to file to incorporate as a tax-exempt, nonprofit corporation 

with the Secretary of State or the charitable registration office in the state the 

nonprofit will operate. Many states have associations of nonprofit organizations which have state-specific information available through the State Association Directory at the National Council of Nonprofit Associations 

http://www.ncna.org/index.cfm?fuseaction=Page.viewPage&pageId=641. 

Some of these associations have training programs on starting a nonprofit.

Incorporation and filing expenses can range from hundreds to thousands of 

dollars. Members can do most of the paperwork, but it is advisable to have an 

attorney review the documents before they are filed. Appendix B has 

examples of these documents, which can be adapted to fit specific situations. 

The corporation may cross state lines, but will only apply for incorporation 

in the state where the registered office is declared. If an attorney is part of the 

group, they or their firm may be able to review and file the papers pro bono, 

professional work undertaken voluntarily and without payment as a public 

service.

Because it is a nonprofit organization, the group will not have stock like a 

private, for-profit corporation. 

After the organization’s incorporation, the first meeting of the incorporators 

should be held. State law may require nonprofit corporations have bylaws and 

conduct themselves in a certain manner and within certain structural limitations, e.g., having a board of directors, officers, periodic meetings, financial 

records, and meeting minutes, etc. It is necessary at the first meeting to adopt 

the initial bylaws, elect the officers, and conduct any other business to begin 

the Group. By policy, NPS employees cannot serve as members of the Friends 

Group’s Board of Directors, but may be ex-officio members or advisors.

Once the Friends Group is notified by the state that they are incorporated and 

have been granted state tax-exempt status, they may then apply to the IRS for 

the organization’s Federal tax-exempt status using a Form 1023. 
National Park Service — Making Friends Handbook 32 

Bylaws govern the mechanics and rules of operating a nonprofit corporation. 

They differ from articles of incorporation with more detail than an outline of 

the organization. The officers and their duties will be described and voted 

upon at the first meeting of the board. There are many sources and examples 

for bylaws. The Foundation Center has an electronic library of articles at 

http://foundationcenter.org/getstarted/guides/nonprofit.html and there are many 

examples of bylaws available on the Internet.

Most bylaws articles should include:

l Purpose/Intent of the Corporation

l Location of the Office/Offices

l Board Members—Qualifications & Method of Selection

l Advisory Board (if intended to have one)

l Fiscal Policy 

l Liability and Limitations 

l Amendments

l Dissolution 

l Miscellaneous 

It is a good idea to review the bylaws every year or so to keep them current. 

It is also advisable to have a copy of the bylaws at meetings to consult during board meetings if questions arise. Some boards create board handbooks 

including these reference documents so each member has them for ready 

reference. Bylaws can be amended by a vote of the membership at the annual 

meeting or by a vote of the board if the organization is created to be managed 

by the Board of Directors.

Once the organization is recognized as a 501(c)(3) there will be annual reporting requirements. Whether a private group has taxable income for or activity 

during the year, all private foundations are required to file an annual return to 

the IRS on Form 990-PF, Return of Private Foundation. For more information 

on reporting to the IRS go to 

http://www.irs.gov/charities/foundations/article/0,,id=141361,00.html.

Bylaws

l Voting/Nonvoting, Terms

l Quorums

l Chairmanship of Meetings

l Provisions for Hiring Staff

l Standards of Conduct

l Officers/Trustees

l Title and Management of Property

l Committees 

l Vacancies 

l Purposes

l Dues, Duties, Dates, Times, and Conditions 

 for Convening Meetings

l Notice of Meetings

l Compensation

l Kinds of Directors Transactions

l Vacancies

l Powers

l Composition and Number

l Board Appointment

l List of Committees (standing and ad hoc)

l How committees operate 
National Park Service — Making Friends Handbook 33

Tips for Success:

l Keep the articles of incorporation and bylaws simple to afford flexibility.

l It is important to keep track of decisions for future reference.

l If work is to be assigned to a committee, it should be tracked, and have

 target dates for when results are to be reported the board.

l It is critical to be consistent in “how” business is conducted and always

 with the intent to work toward building trust.

l Maintain records and compete annual reports as required. 

Members of the board of the Friends of Moccasin Bend National Park with CHCH Superintendent Shawn Benge 

at the Friends' Lecture Series in Chattanooga, TN.
National Park Service — Making Friends Handbook 34 

Chapter Five — Agreements and Plans

A Friends Group Agreement is strongly recommended when an ongoing 

relationship is anticipated between the NPS and a specific park or program 

support organization, such as a park Friends Group. It is designed to formalize 

the relationship between the NPS and its partners. It addresses the relationship in broad terms, and incorporates clauses that are universally applicable to 

future partnership activities. Other activities such as fundraising, construction, 

transfer of federal funds, program development and operations, acquisition, 

etc., are administered through other types of agreements. These agreements 

may tier off and incorporate by reference the Friends Group Agreement. For 

an agreement template and an example see Appendix C.

The NPS is authorized by law (General Authority to Take Actions That 

Promote and Regulate Units of the National Park System: 16 U. S. C. § 1) to 

enter into agreements with other agencies and organizations. These agreements establish formal relationships that allow the NPS to more efficiently 

and economically accomplish its mission. Applicable laws and regulations 

prescribe the manner or conditions under which agreements may be entered. 

NPS managers also have some latitude in crafting and entering into 

agreements.

A list of all authorities and regulations related to Partnerships can be found at: 

http://www.nps.gov/partnerships/DO_agreements.htm. 

This information is subject to change, so the site should be visited to 

obtain the latest information.

Friends Group Agreements may authorize non-project specific fundraising 

activities such as annual or membership campaigns, planned giving, events, 

e-philanthropy, grants, etc., to help the partner in its efforts to support a park 

where such support is explicit. 

Partners generally do not need to seek NPS approval to raise funds expressly 

used in the administration of the partners’ organization. However, NPS 

approval is required when a partner wishes to initiate a project specific 

fundraising campaign, e.g., fundraising for construction of a facility, support 

of a specific educational program, or an endowment designed to benefit the 

park or program. 

Agreements
National Park Service — Making Friends Handbook 35

Fundraising Agreement for Specific Projects

A Fundraising Agreement is required when fundraising efforts are implemented 

to support specific projects such as the planning and implementation of a new 

park program or the construction of park facilities. 

While the NPS does not regulate the conduct of fundraising partners, fundraising activities that provide donations to the NPS are only appropriate when 

consistent with the law, mission, goals, and policies of NPS and the Department of the Interior. To ensure consistency, in most cases NPS only accepts 

donations from fundraising campaigns for its benefit that have been conducted 

pursuant to written agreements with its fundraising partners. 

Where a Friends Group Agreement between NPS and a partner already exists, 

fundraising agreements may “tier off” from the existing Agreement. Pursuant 

to Chapter 8 of Director’s Order #21 (DO#21), a formal Fundraising Agreement is required for project specific fundraising activities. Two model Fundraising Agreements are contained in the DO#21 Reference Guide and can also 

be found in Appendix C.

Highlights from the DO#21 on Donations & Fundraising include:

l Parameters for the activities of NPS employees who directly accept 

 and/or work with organizations who seek to raise money to benefit NPS. 

l Guidelines for the NPS when working with Friends Groups and other 

 nonprofit fundraising partners.

l Assurance that all activities related to fundraising maintain the integrity 

 of the parks, the impartiality of the NPS, and public confidence. 

l Verification that fundraising activities are not to be authorized in other

 forms of NPS agreements, e.g., Cooperating Association Agreements,

 Cooperative Agreements, or Grant Agreements.

A copy of DO#21 is available at 

http://www.nps.gov/policy/DOrders/DO21-reissue.pdf.
National Park Service — Making Friends Handbook 36 

A Donor Recognition Plan sets out the basic philosophy to guide donor 

recognition activities. It provides a framework for donor recognition in a park 

or by a program, ensuring that recognition is commensurate with the level of 

the gift, while allowing a measure of flexibility to meet the needs of individual 

donors. The plan also helps fundraising partners understand the means and 

levels of recognition that the NPS can provide. A plan can be simple or elaborate depending on the requirements and desires of the Superintendent or 

Friends Group. 

A Donor Recognition Plan is required for all parks and programs that receive 

or are likely to receive donations. This is a requirement of the NPS, not the 

partner. However, donor recognition must be addressed by the partners in 

their fundraising plan(s). While these plans will vary from park to park and 

from program to program, several fundamental policies control all such plans. 

For examples of these plans see Appendix D.

Donor Recognition Plan Requirements

l Donor Recognition Plans (DRP) must be pursuant to written agreements

 and consistent with DO#21.

l DRP should be developed with the partner at the park level, with Regional

 Director’s approval.

l DRP should include, at a minimum, the following elements:

l A statement of the basic philosophy of donor recognition 

 opportunities consistent with park mission, purposes, and plans

l Procedures for acknowledging/thanking donors 

l A hierarchy of donor levels and associated recognition

l The range of allowable forms of in-park recognition, as well as 

 the appropriate locations, consistent with this section

l Criteria for donor boards or walls, if any, including the location,

 minimum thresholds for recognition, and the length of time the 

 recognition is in place 

l Conditions under which donors/donations to partners will be 

 recognized by NPS consistent with DO#21, Section 6.1.1. 

DRP for parks that receive minimal donations (less than $50,000 annually) 

may be as simple as a memo stating that the park will send a thank you note in 

response to any donation. Provide a written response back for all donations 

and include recognizing the amount donated. This meets the IRS requirement 

for documentation if the donor wishes to take a tax deduction.

Donor Recognition Plan
National Park Service — Making Friends Handbook 37

DRP are developed and approved at the park and program level with the 

concurrence of the appropriate Regional or Associate Director. Regional 

Directors may establish common recognition standards that apply to multiple 

parks within a region and Associate Directors may establish common 

recognition standards that apply to multiple programs within a directorate. 

Friends Group Donor Recognition

While the previous section discussed the park’s donor recognition plan, the 

primary responsibility for recognizing and thanking donors falls to the Friends 

Group, as the entity first accepting the donation. Friends Group donor 

recognition plans should complement a park or program plan with respect 

to the donor recognition provided by the NPS. Friends Group donor 

recognition plans should be reviewed and approved by the Superintendent if 

they include in-park recognition to ensure consistency with the park’s plan. 

This will assure that a fundraising partner will not inadvertently lead a 

prospective donor to expect a level of recognition that NPS cannot, or will 

not, fulfill.

Information on in-park and off-site donor recognition can be found at 

http://www.nps.gov/partnerships/donor_partner_plan.htm. 

This website includes more ideas and examples on the following:

l Recognition of individuals

l Recognition of Foundation Giving

l Recognition for Corporate Contribution

l Letters of Acknowledgement

l Personal Notes and Calls

l Publicity

l Special NPS Events
National Park Service — Making Friends Handbook 38 

Chapter Six — Fundraising

Successful Friends Groups are created for ‘Friendraising’, not just for fundraising. The Friends Group’s members have a passion for the park and a desire 

to help fulfill its mission. If the goal requires financing beyond available funds, 

a fundraising effort is often undertaken. Although NPS employees may not 

solicit funds, both the Superintendent and Friends will need to consider their 

roles in the fundraising venture. 

NPS can facilitate the fundraising efforts of Friends Groups in many ways:

l Identifying projects/programs appropriate for private philanthropy

l Allowing non-obtrusive display/distribution of materials about an

 authorized fundraising partnership or activity

l Creating publications, progress reports, graphics, presentation, etc

l Attending planning meetings

l Providing site visits and tours

l Working with Friends Group in co-sponsoring events

l Applying for competitively awarded grants

l Participating in Friends Group donor cultivation events

The Friends Group’s role can include:

l Working with NPS to engage the public in philanthropy to benefit 

 the park or program

l Fundraising in accordance with written fundraising agreement

l Holding and managing endowments

l Allowing review of fundraising campaign materials

l Working with the NPS to develop appropriate donor recognition

l Assessing fundraising readiness

l Holding and managing endowments

Fundraising is a necessary part of the life cycle of a nonprofit organization, but 

is not the main objective. It is a means to an end: fulfilling the organization’s 

mission and taking advantage of opportunities to support the park or program.

Friendraising, NOT Fundraising is the Focus
National Park Service — Making Friends Handbook 39

The Association of Partners for Public Lands (APPL) has developed a series 

of self-assessment tools. The full series of checklists is available from APPL. 

This section includes two summary versions which were presented at a joint 

training class on fundraising basics held in partnership with the NPS in the fall 

of 2007. The first assists the board and staff of the Friends and the park to look 

critically at the partnership to assess its ability to begin, or support, fundraising based on achievement of certain benchmarks, while the second guides a 

review of the strengths of the Friends related to their capacity to raise funds.

Benchmarks

l Fundraising provides a means for people to become involved and 

 express their support for public lands.

l Fundraising practices adhere to nationally accepted standards and to 

 public lands agency policies.

l Fundraising provides revenue for identified needs, and advances the 

 mission of the organization and agency(s).

In assessing readiness for fundraising activities, the Friends Group should be 

able to agree with each statement11:

General Organization

l The organization is nonprofit and tax exempt. 

l A concise, organizational mission statement is written and available. 

l A concise, written history of the organization is written and available. 

l A written, multi-year plan supports the vision and mission of the 

 organization, with goals, objectives, and programs projected over the

 next 3-5 years. 

l The plan is based on assessment of current and future constituent

 needs. 

l Both the board and staff are involved in the plan and committed to its

 implementation and evaluation. 

l Mechanisms are in place for receiving and evaluating feedback from

 various sources. 

10Reprinted with permission from “Self Assessment Tool for Nonprofit Public Lands Partners,” Association 

of Partners for Public Lands, Draft 2007

11Reprinted with permission, Association of Partners for Public Lands.

Assessing Readiness10
National Park Service — Making Friends Handbook 40 

Fund Raising Experience

l The organization has done fundraising previously or has an advisor.

l Staff and/or board members have previously raised funds for a project. 

l There is a process in place for setting annual fundraising goals.

l Methods for fundraising (one-on-one, direct mail, telephone, written 

 proposals, special events, etc.) are determined based on what is best for 

 the organization rather than what appears to be the easiest or fastest method. 

l Funds are raised in an ethical manner for activities consistent with the 

 organization’s mission and plan.

l The fundraising program is staffed and funded at a level consistent 

 with fundraising expectations. 

l The organization is accountable to donors and other key constituencies 

 and will demonstrate its stewardship through annual and periodic reports. 

l A membership program is in place. 

Staff and Volunteers

l There is understanding of the organization’s mission and philosophy by 

 staff, board, and other volunteers. 

l A sense of vision and continuity is provided by the leadership of the 

 organization. 

l The organization’s board, staff, and volunteers are committed to a 

 fundraising program.

l Board members represent the community, the organization’s constituents, 

 and target audiences.

l Board members are committed to giving and obtaining gifts for the 

 organization.

Constituencies and Prospects (Feasibility) 

l There is an understanding of the organization’s mission by the organization’s

 constituencies, prospective donors, and the general public. 

l The organization has identified who it serves and who it wants to reach. 

l A constituency analysis had identified the markets (individual, corporate, 

 foundation, association, etc.) that have the greatest funding potential for the

 organization. 

l Further refinement has identified specific prospects with linkage, interest, 

 and ability to give to the organization. 

l Donors and prospects are provided with opportunities to become involved

 in the organization and communicated with throughout the year, specifically

 at times other than when being asked for money. 
National Park Service — Making Friends Handbook 41

Financial Procedure

l The organization adheres to generally accepted accounting procedures. 

l The organization has registered with proper state authorities for fundraising.

l A financial plan predicts income and expense requirements for annual 

 operating/program needs, special purpose/capital needs, and endowment/

 cash reserve needs. 

l The financial plan identifies dollar amounts which must be raised each year 

 for these needs. 

l The budget allocation for fundraising and the supporting public information

 program are adequate to support an effective program. 

Office Support Systems and Procedures

l An in-house mailing list is computerized, with procedures for 

 updating/purging information, and with the capacity for growth. 

l A complete, or even partial, database of contributors and their past levels

 and types of support exist. 

l A gift recording and gift acknowledgments system has been developed.

l A mechanism is in place for systematic renewal of past/lapsed donors. 

l A mechanism is in place for capturing key information about members, 

 donors, and prospects. 

l Office equipment is adequate to accommodate database and 

 communication needs. 

l Backup procedures are used to ensure against loss of data. 

l Assure security and privacy of donors’ personal information.

 
National Park Service — Making Friends Handbook 42 

Rank each statement on a scale from 1 to 5.

1= This is never the case 5= This is always the case. Board Staff Agency 

 Partner

Systems & Processes

Funds raised for activities are consistent with the organization's

mission and plan.

Fundraising materials provide informative, accurate, and truthful

information.

Board members contribute as well as engage in fundraising

endeavors.

Adequate donor database, management, and accounting

systems are in place to maintain communications, donor 

history, and financial records.

Online contributions are processed through a secure site.

Planning and Policies

The agency and organization jointly plan to achieve mutual 

objectives with roles and responsibilites defined.

Expectations are mission-focused, mutually understood, and 

communicated to appropriate line staff and volunteers.

The organization's core documentation is up-to-date, including

IRS 501(c) (3) letter of determination, audited financial statement,

fact sheet, and listing on GuideStar. For older organizations reports

from organizations such as the BB's Wise Giving Alliance (Give.org)

have been reviewed and issues identified have been addressed.

Agency agreements and fundraising plans are in place and 

appropriate to the scope of fundraising efforts.

Protocols are in place to ensure that all donations accepted will

maintain the integrity and impartiality of, and public confidence

in NPS, DOI, and our organization.

The organization has registered with proper state authorites

for fundraising.

There is a case for support (case statement) for the organization

and for major projects and programs.

A financial plan predicts income and expense requirements, with

dollar amounts that must be raised annually for identified needs.

The budget adequately supports an effective fund raising program.

A gift acceptance policy exists that clearly defines the types of

gifts and assets the organization will accept.
National Park Service — Making Friends Handbook 43

Rank each statement on a scale from 1 to 5.

1= This is never the case 5= This is always the case. Board Staff Agency 

 Partner

Donor Engagement

Donor rights and confidentiality are observed.

The organization demonstrates accountability to donors through

communications, i.e. annual and periodic reports.

Gifts are acknowledged in a timely and appropriate manner

and receipts include the required IRS and state disclosure 

information.

Contributions/grant funds are used for the purposes for which 

they were donated (restricted funds are not used for operating

expenses or other purposes).

A donor recognition plan exists and donors are recognized 

appropriately for their support.

Benefits of membership programs are appropriate, cost effective

and valued by constituents.

Management & Monitoring

A feasibility study is conducted before major capital campaigns

are initiated.

Employees/fundraising consultants are not compensated based

on a percentage of funds raised.

Overall costs of fundraising are measured and monitored, with a

goal of maintaining fundraising costs at 20 percent or less of 

funds raised.
National Park Service — Making Friends Handbook 44 

The

Fundraising

Cycle

Identify Prospective Donors

Research

Plan

Meet & Cultivate

Ask

Thank & Recognize

Involve, Report, 

Communicate & Renew

Fundraising is a business in and of itself with a wide range of possible funding 

sources to tap. The members or staff of the Friends Group will need to outline 

a plan for fundraising, including the amount to be raised, the audience, the 

type of appeal, methods of recognition, a budget, etc. The Fundraising Cycle 

above demonstrates the interaction of all parts of a fundraising effort.

Fundraising is a continuous process, beginning with introducing the 

organization to the prospective donor and cultivating his or her interest in 

the organization. It follows a cycle that includes:

l Prospect Identification — evaluating the constituent base and targeting 

 potential donors

l Research — adding pertinent information about the prospects to 

 understand their interests and motivations; this includes an assessment 

 to determine whether a donation from a potential prospect will meet the

 standards identified in DO#21, Sections 6.1.1 and 8.5, and the agreement 

 between the NPS and the Friends Group

l Planning — developing the appropriate methods of engaging prospects in

 the organization

l Cultivating — enabling the prospective donors to learn about the 

 organization, its leadership, its vision for the future, and effectiveness of

 past programs

l Asking — soliciting the gift by stating the case, listening, asking, and 

 awaiting the prospect’s response

l Thanking & Recognizing — including not only an immediate written thank

 you letter, but also verbal thanks, and other public acknowledgement

 based upon the recognition plan

l Involving, Reporting, Communication, and Renewal — informing donors

 of the organization’s success in delivering the service for which the gift was

 solicited, engaging them in the work of the organization, and providing 

 opportunities for continued support

12Fundraising Basics — Understanding the Fundraising Process. Partnership Office, National Park Service 

(2007)

The Fundraising Cycle12
National Park Service — Making Friends Handbook 45

The array and inter-relationship of fundraising strategies that park support 

organizations employ can readily be envisioned through the illustration of a 

Donor Pyramid. Optimally, a comprehensive fundraising program employs 

strategies at each level of the pyramid to engage first-time donors at entry levels and cultivate them to make successively larger gifts at the upper levels over 

time. More information concerning the Donor Pyramid can be found through 

the NPS Partnership website.

Donor Pyramid

Bequests

Planned Gifts

Major Gifts

Capital Campaigns

Endowment Campaigns

Special Events

Annual Campaigns

Special Events

Membership Programs

Direct Donations

Online Donations

Annual Giving

On-Site / First Time Giving

Donation Boxes

Guest Donation Program

Park Newsletter

Park Volunteers

Adopt-a-Park Program

Online Donations 

Visitor Awareness & Quality Experience

Years

20+
National Park Service — Making Friends Handbook 46 

The most effective way to reach the largest number of people is through the 

media. Donna Asbury, Executive Director of the Association of Partners for 

Public Lands states, “Friends Groups can augment the efforts of the NPS in 

reaching the public with important messages regarding upcoming events, 

conservations efforts, and opportunities to volunteer or contribute to the goals 

of the park or a specific park project.” For these purposes, Friends Groups 

should coordinate media coverage with the park liaison and the park’s public 

information officer. 

It will be important to cultivate a relationship with the reporters on staff of 

local radio and TV stations and newspapers who regularly cover the kinds of 

stories that relate to the work of the Friends Group. These contacts and relationships will help in positioning stories to get media coverage: for example, 

an announcement of a successful program or project or a special event. 

Board Members should be willing to make presentations on projects and 

events to local government entities, Chambers of Commerce, service clubs, 

or businesses that might be interested in participating. These contacts can be 

helpful in identifying potential participants (and information outlets) for an 

event and donors. It is helpful to inquire if they will mention the event in their 

member or employee newsletters.

When the media and outreach focus is on a specific event, as much possible 

and appropriate, members should work with the park to publicize the event 

to park visitors through the park newspaper, notices in the visitor center, on 

bulletin boards, websites, etc. Always identify a Friends Group member with 

their contact information for further information or questions.

Typical Points of Contact for Public Relations: 

l Park Superintendent

l Public Affairs Specialist

l Community Outreach Coordinator

l Chief of Interpretation and Education

l Volunteer Coordinator

Chapter Seven — Outreach & Media
National Park Service — Making Friends Handbook 47

News Releases

News releases should provide all of the information a reporter needs to write a 

basic story on an event, project, or program, including contact information for 

more in-depth queries or interviews.

The NPS Graphic Identity program provides information and examples of 

newsletter and news release templates and is located at www.graphics.nps.gov.

News releases should include the most important facts:

l Who is sponsoring the event, and who will be participating?

l What is happening?

l Where is it happening?

l When is it happening? (date and time)

l Why is the event being held?

Public Service Announcements (PSAs)

Radio and television stations are required to donate a certain amount of 

airtime for “Public Service Announcements (PSA).” In addition, newspapers, newsletters, and magazines sometimes provide free space for messages 

of community interests. A cover letter should include identifying the Friends 

Group and their contact, the park contact information, and the basics of the 

PSA. Also, indicate the beginning and ending airdates for the announcement 

in both the cover letter and in the PSA script itself. 

Print PSAs should be sent with a cover letter, press release, and contact information to the public service director at local newspapers and to the editors of 

appropriate newsletters and magazines. 

For radio and television PSAs, contact the public service director to 

determine:

l What the station’s guidelines are for writing and for submitting PSAs

l The deadline for submitting PSAs to the station

l The station’s preferred length and format (usually 30 seconds)
National Park Service — Making Friends Handbook 48 

Internet and Web 

While NPS is prohibited from soliciting funds in person, parks are permitted 

to "develop lists of programs, projects or activities that NPS could undertake 

with donated support." Director's Order #21, Section 5.1, states that parks 

may provide information regarding their ability to accept donations in support 

of their programs, describe to the public and potential donors NPS needs, 

how donations will be used.

The park’s website can also describe the important role that philanthropy 

continues to play in their park. Most park websites include a "Support Your 

Park" page that can be used to explain park needs, describe how donated 

funds are used to help fulfill the park’s mission, highlight volunteer contributions, provide instructions on how to make a gift to the park or to the NPS, 

offer internship opportunities, and include information and links to the park’s 

Friends Groups and Cooperating Association as well as to the National Park 

Foundation.

The “Support Your Park” pages can include links to park Friends Groups and 

Cooperating Associations. The links can be inserted within the text description of the work of the group or through the organization’s logo. Partner logos 

are permitted on NPS Internet sites if an approved fundraising relationship or 

formal acceptance of a donation has been established. 

Linkages to partners’ websites are allowed if they conform to Departmental 

information technology management and security policies, and are authorized 

by written agreement between the park and partner, as described in Director's 

Order #21, Section 6.3.2. 

l For a NPS web page, that includes ‘Support Your Park’ information view: 

http://www.nps.gov/yell/supportyourpark/index.htm. Notable examples of 

effective and engaging websites at various parks can be found at 

http://www.nps.gov/partnerships/park_web_page.htm.

Partner Web Pages

Friends Groups’ web pages typically highlight park needs, engage the public 

in giving to parks and programs, and accept donations to benefit park projects 

and programs online. Online fundraising efforts must be in accordance with 

the appropriate fundraising agreements outlined in Director's Order #21, Section 8.1.

Links from NPS websites to non-NPS managed websites will trigger a NPS 

produced disclaimer intercept, unless the partner's website has been approved 

by the NPS under a formal agreement, as described in Director's Order #70, 

Internet and Intranet Publishing, Section 6.7. Friends Group or fundraising 

agreements, address links, and material to be posted on NPS websites must be 

approved before posting.
National Park Service — Making Friends Handbook 49

Friends Groups should recognize donors on their websites. A number of partner web pages that have successfully raised funds may be used as examples. 

They ensure effective online fundraising by:

l Demonstrating need or worthiness

l Predominately displaying numerous opportunities to donate

l Providing donation options

l Demonstrating that donation page is secured 

l Acknowledging every online contribution immediately

l Keeping their constituencies informed while developing an email list

l Soliciting member feedback

l Offering on-line vending services

Information concerning partner web pages and on-line funding can be found 

at: http://www.nps.gov/partnerships/partner_web_pages.htm

NPS Graphic Identity Program and Use of Arrowhead Symbol

The Graphic Identity Program offers a set of graphic standards to be used for 

NPS communication materials such as newsletters, reports, site bulletins, 

brochures, etc. The NPS Graphic Identity program can be found at:

www.graphics.nps.gov.

Use of NPS Arrowhead Symbol

The NPS Arrowhead is the well-recognized symbol of the agency. Use of the 

NPS Arrowhead should be consistent with Director’s Order #52D: 

Use of the Arrowhead Symbol. Director’s Order #52D is located at: 

http://www.nps.gov/policy/DOrders/52D--60-day.htm.
National Park Service — Making Friends Handbook 50 

Chapter Eight — Managing for a Successful Friends Group

Monitoring & Evaluating

Monitoring & Evaluating

How does a Friends Group know if they are successful? Why does it matter? It is critical to track the work and results. The information reveals the 

outcomes beyond project results. Was anything accomplished that benefited 

the park? What actions were the most successful? Has the group grown large 

enough to take on larger projects? Tracking the time spent on specific activities can report volunteer time that can be translated into in-kind dollars. It 

can also reflect the commitment level of the group to others, including elected 

officials.

There are many ways to measure success. The Action Plan should have set out 

goals, objectives, and benchmarks to use as the basis for assessing the progress 

and work. Even if the group is small, monitoring and evaluating the effort will 

assure the park, donors, and Friends Group members that the group is on 

track and making progress. 

It is important to step back and adjust goals and objective to assure the group 

is making progress. Questions to answer in determining success could include, 

but are not limited to:

l Are long and short-range plans in place? 

l Is the Group on track to reach their goals? 

l Is everyone accomplishing their assigned tasks? 

l What has changed that calls for evaluating the Friends Group’s 

 goals and objectives?

l Have new people or resources joined the effort that requires 

 adjustments?

l Have problems developed that are impeding progress? 

l Who could assist in evaluating the Friends Group’s effectiveness 

 and make recommendations?

Although the overall goal might not yet be reached, but knowing that the 

group is moving toward success can be acknowledged and celebrated. 

One person or committee may have worked extra hard with great results 

and should be recognized for their efforts. Likewise, if someone is having 

problems, monitoring can provide them the opportunity to receive help 

before they get overwhelmed.
National Park Service — Making Friends Handbook 51

Updating

Federal policies and rules are continuously undergoing review and updating. 

A Friends Group must be aware of these changes and make adjusts to agreements, contracts, designs, or other actions as required. Superintendents are 

kept apprised of these changes and should notify partners.

This handbook has links with NPS web pages, which are updated as changes 

occur. 

The Friends of Acadia and park staff re-dedicating Homans Path at Acadia National Park.
National Park Service — Making Friends Handbook 52 

Spotlight On

Established in 1950, the Wilson's Creek National Battlefield Foundation is one 

of the oldest private sector support groups associated with the National Park 

Service. It is a nonprofit corporation with IRS 501(c)(3) status. Foundation members support the efforts of the National Park Service at Wilson's Creek National 

Battlefield with yearly membership donations to the Foundation, additional 

financial pledges, and volunteer activities.

The goal of the Foundation is to enhance awareness and appreciation of this 

national treasure is a haven for historians and those who enjoy the outdoors. 

Equally important to Wilson's Creek is the Foundation's function as the 

fundraising arm of the park. Through memberships and other donations, 

the Foundation works to provide funds for projects that are not covered by 

the park's federal budget. 

Membership is open to both individuals and corporations. Since the Foundation's initial purchase of 37 acres on Bloody Hill, site of the heaviest fighting 

during the battle, the Foundation has worked to preserve and protect the park 

with many successful projects. Future projects of the Foundation include:

• Purchase and placement of additional cannon carriages

• Establishment of an endowment fund to continue the work of 

 the Foundation 

• Fundraising over $1.7 million for a new visitor center addition 

Throughout the years, the Foundation has gone through highs and lows. They 

have learned that members and donors want to see results. They know to always have a project that people can get involved in and be excited about. That 

is what keeps this Foundation going. 

The Superintendent meets with the Board of Directors once a month and committee members weekly. The Foundation and Eastern National (the park’s cooperating association) also get along well and have mutual respect for each other. 

Everyone’s mission is to support the park. 

Not every project is perfect, but they get results. Superintendent Hilmer says, 

“It’s all about dealing with personalities. We do not always agree upon everything, but we do 90% of the time and the other 10% we don’t worry about.” 

For new ideas, the park provides the Foundation with the park’s annual plan 

and Foundation members share their ideas. It is this sharing of ideas that keeps 

creating the successful projects.

Superintendent Hillmer said he really respects the Foundation. “Can this park 

exist without them? Yes. Can we get as much done? No.” 

Wilson's Creek National Battlefield, 

Superintendent Theodore Hillmer and 

Wilson's Creek National Battlefield Foundation
National Park Service — Making Friends Handbook 53

Celebrating Successes

Benchmarks provide an opportunity to recognize volunteers and donors, thus 

revitalizing the group. The awarding of grant money, reaching a fundraising 

goal, the beginning construction of a new park, placement of signs, and similar 

events can be reasons for celebration before the project is completely finished. 

Recognizing people, particularly those whose participation has been significant, provides the satisfaction most people appreciate when volunteering. 

Groups should establish formal or even informal awards to recognize special 

efforts. It is important to find opportunities for celebration and present recognitions, awards, or acknowledgements in public. 

Hosting events and celebrations around accomplishments can also provide 

outreach opportunities as well as fun. This is an excellent means to involve the 

greater community and gather new volunteers and donors.

Organizing for the Future

The nature of Friends Groups is that their boards and activity levels ebb and 

flow over time. Success is directly tied to the energy and commitment of its 

volunteers. There are times when all the stars align and programs and projects 

see unprecedented success, while other times only minimum efforts can be 

maintained. 

Centralizing the Friends Group’s information in a specific location is recommended to keep records available through the transitions of board membership. This will not only help to keep the organization legally viable through 

leadership changes and provide information for grant applications and foundation gifts.

The organization also has legal responsibilities to maintain its nonprofit status 

with the IRS. Organizations must keep and file reports annually. What and 

how much information will be needed is determined by the amount of money 

the organization manages. For more information on the forms and information required by the IRS, visit 

http://www.irs.gov/charities/nonprofits/index.html
National Park Service — Making Friends Handbook 54 

As a minimum, the following records should be kept safe, secure, and 

centralized:

l Minutes and Treasurer’s reports

l Important accounting information, such as bank registers and 

 statements, audits, receipts and purchase orders

l Membership information (Databases)

l All Federal and State records

l Copies of grant applications and related information

l Any agreements with governmental agencies or organizations

l Copies of newsletters

l Copies of media releases, special event press, and group successes

l Records of all donations, in-kind services, loans, gifts, etc.

l Employee records if the nonprofit has employee(s)

Succession Planning

An important and on-going consideration is a succession plan for the Friends 

Group. How will new members be brought in? How will new leaders and 

members be integrated into the group? How will the goals and history of the 

group be passed on? 

The founding Friends Group participants are rarely the only or the final members. People join, participate, and then leave due to any number of circumstances. Some leave because they become busy with other projects, change 

jobs, or new responsibilities limit their time. If they feel have they have accomplished their personal goals in relationship to the group, they may move on. 

Attracting new members is an on-going activity; experienced members can 

mentor the newer members so they understand the vision and history of the 

group. New people bring in new ideas and renewed vitality towards the 

effort. Experienced members should be willing to mentor new members 

for continuity.

Relationships with specific people are necessary for the organization’s success. 

Development, monitoring, and maintenance of political relationships are tasks 

to be continued and cultivated. When possible, it is beneficial to the organization if the same person remains as the key contact for a given group or government agency for an extended period of time. That key contact person should 

also be training a successor for the position so that contact is not lost if the key 

person is unavailable. 
National Park Service — Making Friends Handbook 55

Planning an Exit Strategy

A Friends Group may be created for a very specific purpose and once it is accomplished, there may no longer be a reason for the Group to continue. The 

members should congratulate themselves on a job well done, have a party, and 

move on to new activities.

In other situations, i.e., reduced members or a failed fundraising effort, the 

Group can be put in a position where the Group may not able to continue. 

Still, before abandoning a partnership, all involved should commit to candid 

conversations to determine if the partnership can be preserved. A mediator 

may be helpful in guiding the partners in reframing the common vision, goals, 

and expectations. Discussions may highlight problems, and then adjustments 

can be made on the vision and expectations. If the solution is ending the 

partnership, it should be done in a reasonable and respectful manner for all 

involved.

Many of the answers to these questions should be outlined in the corporate 

bylaws and in the General Agreement. In planning the dissolution of a Friends 

Group, some important questions should be asked, including:

l How long should the Friends Group last? 

l If a time specific goal, such as raising money for a new building, 

 is accomplished, should the group disband upon the grand opening 

 celebration of the building? 

l How will the group disband if the decision is made to close the 

 group?

 

l What is the group to do if no one will take over the leadership of 

 the group? 

l What if there is such a major disagreement and most of the group 

 no longer wants to participate?

l Are there assets to dispose of?

l Is there staff to release?

l How will current projects and reports be completed?

l Who will make these decisions at the end?
National Park Service — Making Friends Handbook 56 

The last course of action is to exercise the termination options in the General 

Agreement. The Termination and Expiration section of the General Agreement addresses a party’s ability to terminate the agreement, which includes 

what happens to funds or property either held by the partner for the benefit 

of NPS or owned by NPS upon termination or expiration of the agreement. 

Barring unique circumstances, either party should be able to terminate a 

General Agreement with notice to the other party. Notice periods typically 

run from 30 to 90 days and may include a requirement that the parties meet in 

an attempt to resolve outstanding issues that may have resulted in the notice of 

termination.

Final Thoughts...

Friends Groups provide opportunities for private citizens to partner with the 

NPS to enhance park units’ unique resources. They can attract new visitors, 

educate users, raise public awareness, and provide physical, financial, and political support. A formal group empowers and coordinates individuals to take 

action and make their united voices heard. 

It is hard work to create a viable Friends Group. The ingredients for success 

include a wide-reaching vision, cooperation, political savvy, and often just 

sheer luck. Realizing in advance that there will be setbacks, members will be 

ready to face whatever comes along. One or a few people can start a Friends 

Group, but it will take a cooperative effort of many individuals to accomplish 

the goal of assuring support for parks into the future.

These groups are by their nature grassroots and unique. Their enthusiasm and 

passion are the focus for the preservation and enhancement of parks. Their 

power lies in the simplicity and integrity of their mission, their passion for 

their endeavors, and their clear vision of the task before them. Their power is 

in being practical and focused, growing to become a strong, effective organization. 

A new phase of partnership activity is being initiated through the announcement of the Centennial Initiative (http://www.nps.gov/2016/). There will be 

more opportunities for partnering, but they will include more complex relationships and increased accountability. Friends Groups and Superintendents 

will need a deeper comprehension of partnership concepts for successful 

relationship building as it begins its second century.
National Park Service — Making Friends Handbook 57

Appendices

Appendix A — NPS Partnership Authorities & Resources 58

Appendix B — Tax-exempt Status 61

Obtaining 501(c)(3) Status 62

Appendix C — Agreement Examples 66

Model Friends Group Agreement 67

Example: Knife River General Agreement 90

Appendix D — Donor Recognition Examples 102

Apostle Islands National Lakeshore Donor Recognition Plan 102

Homestead National Monument of America Donor Recognition Plan 111

Appendix E — Resources 118
National Park Service — Making Friends Handbook 58 

Appendix A — NPS Partnership Authorities & Resources

The NPS Organic Act directs the Secretary to promote and regulate National 

Park System lands by such means and measures as to conform to the fundamental purpose of such lands, namely, conservation of the scenery and the 

natural and historic objects and wildlife therein, and to provide for the enjoyment of these resources in a manner and by such means as will leave them 

unimpaired for the enjoyment of future 

generations. 

The National Park Service may in fiscal year 1997 and thereafter enter into 

cooperative agreements that involve the transfer of National Park Service appropriated funds to State, local and tribal governments, other public entities, 

educational institutions, and private nonprofit organizations for the public 

purpose of carrying out National Park Service programs. 

The Secretary may enter into a lease with any person or governmental entity 

for the use of buildings and associated property administered by the Secretary 

as part of the National Park System, provided that (1) the lease does not 

authorize the lessee to engage in activities that are subject to authorization 

under a concessions contract, commercial use authorization, or similar instrument; and (2) use of the building and associated property shall not be (a) 

inconsistent with the law establishing the Park System unit in which the building or associated property is located, (b) shall not result in deprecation of the 

purposes and values of the unit, and (c) shall be compatible with National Park 

Service programs. For leases of historic structures see the description of 

16 U.S.C. § 470h-3. 

General Authority to Take Actions That Promote and Regulate Units of 

the National Park System (16 U.S.C. § 1)

Agreements for the Transfer of Appropriated Funds to Carry Out NPS 

Programs (16 U.S.C. § 1g)

Leases of Buildings and Associated Property (16 U.S.C. § 1a-2(k)) 
National Park Service — Making Friends Handbook 59

The Secretary is authorized to accept patented lands, rights-of-way over 

patented lands or others lands, buildings, or other property within the various 

national parks and national monuments, and moneys which may be donated 

for the purposes of the national park and monument system.

The following list summarizes and paraphrases authorities and statutory tools 

that may be useful to in forming partnership arrangements. Major categories 

of authorities discussed below include general authority that allows NPS to 

enter into partnerships, authority to transfer appropriated funds, and authority 

to accept donations. Information on the laws, regulations and policies for the 

National Park Service can be found at the following site 

http://data2.itc.nps.gov/npspolicy/

NPS Management Policies sets out the basic policies for the management of 

the national park system. http://www.nps.gov/policy/MP2006.pdf

DO #21 is available at:

http://www.nps.gov/policy/DOrders/DO21-reissue.pdf 

The Reference Guide to Director’s Order #21 — Donations and Fundraising 

can be found at:

http://www.nps.gov/policy/DOrders/DO21-ReferenceGuide.html

Director’s Order #53 on Special Park Uses contains additional guidance on 

special events.

http://www.nps.gov/policy/DOrders/DOrder53.html

Agreements Handbook including DO #20 provides additional guidance on 

other kinds of agreements that may be used to implement aspects of 

partnerships. http://www.nps.gov/hfc/acquisition/agreements.htm 

The NPS Identity Program was created in response to the NPS Message 

Project. http://www.nps.gov/hfc/products.htm

Director’s Order #70 on Internet and Intranet Publishing establishes NPS 

policy on the development of NPS websites 

http://inside.nps.gov/helpdesk/manual.htm 

General Authority for NPS to Accept Donations (16 U.S.C. § 6) 

Authorities

Management Policies and Director’s Orders 

Agreements

Graphic Identity
National Park Service — Making Friends Handbook 60 

Special Directive 93-07: Use of the Arrowhead Symbol

http://www.graphics.nps.gov/arrowheads.htm

Draft Director’s Order #52D: Use of the Arrowhead Symbol

http://www.nps.gov/hfc/products/pubs/directive-93-07.html

Department of the Interior Departmental Manual: Donation Guidelines (374 

DM 6) http://elips.doi.gov/app_dm/act_getfiles.cfm?relnum=3692

Ethics Issues in Partnerships can be found at: 

http://www.doi.gov/partnerships/ethics.html

Partnership Legal Primer introduces federal law and ethical considerations 

affecting partnerships. It can be found on the Department of the Interior’s 

Partnership web page:

http://www.doi.gov/partnerships/partnership_legal_framework.html

Other Partnership Resources
National Park Service — Making Friends Handbook 61

Appendix B — Tax-exempt Status

Tax-exempt status means that the organization does not have to pay federal 

income taxes on net income related to its tax-exempt purpose. This designation generally exempts the organization from state and local income taxes, as 

well, but laws vary from state to state. The following information is from the 

IRS website Tax Information for Charities and Other Nonprofits. 

www.irs.gov/charities.

There are a number of different types of tax-exempt organizations under 

various IRS code sections; cooperating associations and friends groups are 

generally designated as 501(c)(3) organizations. Donations to 501(c)(3) 

organizations are tax-deductible (subject to limits based on the donor’s 

taxable income and also subject to reduction if goods or services were 

provided in return for the donation.) 501(c)(3)s are organized and operated 

exclusively for one or more of the following eight exempt purposes described 

in Code section 501(c)(3). 

l Charitable (including advancement of social welfare or 

 lessening the burdens of government) 

l Educational 

l Religious 

l Scientific 

l Literary 

l Testing for public safety 

l Fostering national or international amateur sports competition 

l Preventing cruelty to children or animal 
National Park Service — Making Friends Handbook 62 

Generally, in its first 15 months of operation (15 months from the end of the 

month of the date of its filing of its organizational documents with the state), 

the organization MUST file a Form 1023 if it wishes to be tax-exempt and offer 

donors a tax deduction from its inception. It can file later, but its tax exemption would then only be effective from the date of the filing. Any charitable 

contributions made to the organization by donors from the date of organization until the date of filing would then be disallowed, which could cause real 

issues with the donors. 

The Form 1023 is filed with the IRS along with the organization’s basic statemandated documents — its bylaws and articles of incorporation. (There are 

some exceptions to needing to file a 1023 — for instance, churches or organizations with less than $5,000 per year in gross receipts, but even smaller 

organizations may wish to file to get an IRS determination letter to verify with 

donors that their donations will be deductible.) 

Significant parts of the 1023:

l Name 

l Employer Federal Identification Number (can be obtained very 

 quickly over the phone — Form SS-4) 

l Address 

l Articles of incorporation and bylaws 

l Very specific narrative description of the organization’s past, present

 and planned operations. All activities are to be listed separately and

 described with a description of how much of the organization’s

 efforts will be dedicated to each activity. Each activity must also 

 contain a description of how it will further the organization’s 

 tax-exempt purpose. 

l What will be the organization’s sources of financial support 

l A specific description of the organization’s fund raising activities,

 both past and planned, including a description of agreements with

 professional fund raisers and samples of solicitation letters. 

l A list of the names and addresses of the board of directors 

l Other information such as whether the organization is financially 

 accountable to any other organization, whether the organization is

 controlled by any other organization, etc. 

l If the organization is going to have a membership program, very

 detailed information about the membership program.

Obtaining 501(c)(3) Status
National Park Service — Making Friends Handbook 63

Whether the organization will attempt to influence legislation or intervene in 

political campaigns. 

Whether the organization is a private foundation or is publicly-supported 

(receives more than one-third of its support from the general public). 

Financial statements for the current tax year, the previous 3 tax years, or as 

budgeted (projected) for the next 2 years. 

To be recognized as tax-exempt under Code section 501(c)(3) and to maintain that status, an entity must meet an organizational and an operational test. 

When the IRS reviews the Form 1023, it is looking for the following two items: 

l Organizational Test

l The entity must be properly organized. While the entity may

 be a nonprofit corporation, trust, or unincorporated 

 association under state law, its organizing documents must: 

l Limit its purposes to one or more of the eight exempt 

 purposes listed in Code section 501(c)(3) (as listed above) 

l Not permit the organization to engage in a nonexempt 

 activity. 

l Further, assets of the organization must be permanently

 dedicated to an exempt purpose. 

l Operational Test

l The organization must show that it will engage primarily in

 activities that further its exempt purposes. This means that

 the entity must limit its participation in certain activities 

 while absolutely refraining from others (see section below

 on jeopardizing tax-exempt status). Failure to do so will put

 the organization’s 501(c)(3) status in jeopardy. 

If the IRS finds that the organization qualifies as a 501(c)(3) organization using 

both of these tests, it issues an “Advance Ruling” letter which says, based upon 

what you’ve told them, your organization is a qualified tax-exempt organization. The “Advance Ruling” is in effect for the first four years. Within 90 days 

after the end of the Advance Ruling period, you must supply additional information about your actual activities during the previous four years. If, from 

that information, the IRS finds that you are actually operating correctly and 

receiving sufficient donations and revenues from the general public to qualify 

as a publicly-supported tax-exempt organization, it will issue a final 501(c)(3) 

determination letter. 

The IRS’s Two-Part Test
National Park Service — Making Friends Handbook 64 

Once the IRS recognizes an organization’s tax-exempt status, the organization 

must notify the IRS if it amends its organizing documents or bylaws, or materially changes its activities from those described in its exemption application. 

To do this, the organization must send a copy of the amended document or a 

letter describing new activities to the IRS. 

Tax-exempt organizations must annually file Form 990 , Return of Organization Exempt From Income Tax, or Form 990-EZ , Short Form Return of 

Organization Exempt From Income Tax. The Form 990-EZ is designed for use 

by small tax-exempt organizations and nonexempt charitable trusts. An organization may file Form 990-EZ, instead of Form 990, only if (1) its gross receipts during the year were less than $100,000, and (2) its total assets (line 25, 

Column (B) of Form 990-EZ) at the end of the year were less than $250,000. 

Form 990 or Form 990-EZ must be filed by the 15th day of the 5th month after 

the end of the organization's accounting period. The Form 990 and Form 

990-EZ instructions and the Form 990-PF instructions indicate the Service 

Center to which they must be sent. 

The reporting forms ask questions which will allow the IRS to assess whether 

the organization’s activities are supporting its tax-exempt purpose, whether it 

has had any transactions with board members and other related parties during the year. It also asks for financial information formatted in a specific way 

which allows it to assess how much of the organization’s financial resources 

are being used to fulfill its tax-exempt purposes on an annual basis. 

A tax-exempt organization that fails to file a required return is subject to a 

penalty of $20 a day for each day the failure continues. The same penalty will 

apply if the organization fails to give correct and complete information or 

required information on its return. The maximum penalty for any one return 

is the lesser of $10,000 or 5 percent of the organization's gross receipts for the 

year. If the organization has gross receipts in excess of $1,000,000, the penalties are increased to $100 per day with a maximum penalty of $50,000. 

Changes in Purpose or Activities

Annual Reporting to IRS — NEW IN 2008
National Park Service — Making Friends Handbook 65

After an organization qualifies for 501(c) (3) statute, it must continue to act in 

furtherance of its exempt purposes to keep its tax-exempt status. There are 

four types of activities that can jeopardize that status. 

These are: 

l Private benefit/inurement 

l Lobbying 

l Political campaign activity

l Activities generating excessive unrelated business income (UBI)

 Some of these activities are absolutely prohibited, while others are

 restricted. 

Jeopardizing Tax-Exempt Status
National Park Service — Making Friends Handbook 66 

Appendix C — Agreement Examples

Please visit http://www.nps.gov/policy/DOrders/DOrder20.html and 

http://www.nps.gov/partnerships/directors_orders.htm to obtain the latest 

information on agreements.

When an ongoing relationship is anticipated between the National Park 

Service (NPS) and a specific park or program support organization, (hereinafter referred to as a “Friends Group) it is best to execute a Friends Group 

Agreement that addresses the relationship in broad terms, and incorporates 

clauses that are universally applicable to future Partnership activities. These 

agreements are designed to formalize the relationship between the NPS and 

its support organizations. Other activities such as fundraising, in-park construction, the transfer of federal funds, program development and operations, 

acquisitions, etc. are administered through other types of agreements, which 

may tier off and or incorporate by reference the Friends Group Agreement. 

Friends Group Agreements may authorize non-project specific fundraising 

activities such as annual or membership campaigns, planned giving, events, 

e-philanthropy, grant applications, etc. to help the Partner in its efforts to 

support a park where such support is explicit. Additionally, Partners need not 

seek NPS approval to raise funds expressly restricted to use in administration 

of the Partners organization. In contrast, pursuant to Chapter 8 of Director’s 

Order 21, a formal Fundraising Agreement is required when a Partner wishes 

to initiate a project or program specific fundraising campaign, e.g., fundraising 

for construction of a facility or support of a specific educational program. In 

addition, a Fundraising agreement is required for when raising funds for the 

establishment of an endowment or similar investment account. Two model 

Fundraising Agreements are contained in the Director’s Order 21 Reference 

Guide.

For more information on agreements involving donations and fundraising and 

to get the current Model Agreements go to: 

http://www.nps.gov/policy/DOrders/DO21-reissue.pdf and 

http://www.nps.gov/policy/DOrders/DO21-ReferenceGuide.html
National Park Service — Making Friends Handbook 67

DRAFT

For the latest Model Agreement go to:

http://www.nps.gov/policy/DOrders/DO21-ReferenceGuide.html

Model Friends Group Agreement

 

 Agreement Number _________

FRIENDS GROUP AGREEMENT

Between the

NATIONAL PARK SERVICE,

__________________________

(Site Name)

And

PARK SUPPORT/PARTNER ORGANIZATION(S)

Introductory Paragraph: 

The introductory paragraph of a Friends Group Agreement states what the 

Partnership is about. It also restates the names of the parties to the agreement 

(including their abbreviated versions). For example:

This Agreement is entered into between the National Park Service

 (NPS), a bureau of the United States Department of the Interior, and

 the Friends of the Park (Partner) for the purpose of implementing

 mutually agreed to projects, programs and activities for the benefit of

 Picture Perfect Park (Park), Montana. 
National Park Service — Making Friends Handbook 68 

I. Background and Objectives

As a general rule, relevant background information and the objectives of the 

parties are identified and explained through a series of clauses at the beginning of a Friends Group Agreement. These clauses should concisely convey 

the relevant context, history and facts underpinning the Friends Group 

Agreement. Additionally, they should convey the intent of each party 

entering into the Friends Group Agreement and educate the reader on: 

1) Who the parties to the Friends Group Agreement are, e.g., the

 Friends Group is a 501(c)3 incorporated and doing business in 

 the State of Montana. 

2) The history of the relationship between the parties; 

3) The subject matter of the agreement; 

4) Relevant legislation, e.g., a Park enabling act that contemplates or

 directs that the NPS undertake activities in the agreement;

5) The critical facts necessary to understand the agreement;

6) How existing or related agreements (if any) affect the agreement;

 and 

Do not underestimate the importance of the Background and Objectives 

section of a Friends Group Agreement. Often the individuals originally 

involved in negotiating a Friends Group Agreement are no longer involved, or 

their perspectives or recollections change over time. Therefore, if differences 

of opinion arise, the Background and Objectives section can assist in understanding the original intent of the parties

While there is technically no limit on the length of the Background and Objectives section, if there is more than a page and a half of explanatory clauses 

the section should be reviewed to determine if unnecessary information is 

included.
National Park Service — Making Friends Handbook 69

II. Enforceability

Whether an agreement is enforceable is a fact dependant determination. 

Generally, courts look to see whether necessary elements of contract are 

present in an agreement. The following provision may assist a court in a 

finding that a contract is enforceable and should be included in any Friends 

Group Agreement immediately after the Background and Objectives section. 

Do not include this provision as a separate article.

NOW, THEREFORE, in consideration of the mutual promises and 

covenants contained herein, and for other good and valuable 

consideration, the receipt and sufficiency of which are hereby 

acknowledged, the parties, intending to be legally bound, hereby 

agree as follows: 

III. Definitions

If applicable, include a definition section to define terms of art, critical terms, 

etc., which will be used in the agreement. Do not assume the reader knows 

these definitions.

IV. Statutory Authority

This section lists the statutory authorities NPS is relying on to support the 

actions it will take pursuant to the Friends Group Agreement. Where our 

Partner is congressionally chartered, the Partner’s legal authorities should 

also be listed in the statutory authority section. 

The underlying law providing the NPS the statutory authority for an action, 

as opposed to its implementing regulation, is cited in this section. Usually the 

citation is expressed as a section of the United States Code where laws governing the National Park Service and National Park System are codified. Thus, a 

typical statutory authority section might read as follows:
National Park Service — Making Friends Handbook 70 

Statutory Authority: NPS enters into this Friends Group Agreement pursuant 

to 16 U.S.C. § 1-4, 6.

These authorities are explained in detail below: 

The NPS Organic Act directs the Secretary of the Interior to promote and 

regulate national Park System lands by such means and measures as to conform to the fundamental purpose of such lands, namely conservation of the 

scenery and natural and historic objects and wildlife therein, and to provide 

for the enjoyment of these resources in a manner and by such means as will 

leave them unimpaired for the enjoyment of future generations. The Organic 

Act provides broad authority to operate and manage parks.

The Secretary of the Interior is authorized to accept patented lands, rights-ofway over patented lands or other lands, buildings, or other property within the 

various national parks and monuments, and moneys which may be donated for 

the purposes of the national park and monument system. 

In addition, the relationship described in many Friends Group Agreements 

includes the volunteer activities of its members. In that case, the following 

citation would be included in the statutory authority section: 

The Secretary of the Interior is authorized to recruit, train, and accept the 

services of individuals without compensation as volunteers for or in the aid of 

interpretive functions, or other visitor services or activities in and related to areas of the National Park System. Such volunteers may not be used for hazardous duty or law enforcement work or in policy making processes or to displace 

any employee. A special exception allows the acceptance of the services of 

individuals that the Secretary determines “are skilled in performing hazardous 

activities.”

The foregoing list is by no means exhaustive, and many parks have specific 

statutory authorities that allow or mandate certain activities and relationships 

occur at parks. These specific authorities should also be cited in this section as 

well. The Department of Interior’s Partnership Legal Primer contains a partial 

list of additional legal authorities NPS may rely on to enter into Friends Group 

Agreements. The section on NPS authorities is quite extensive and lists most 

park-specific authorities. The Partnership Legal Primer can be found on the 

Department of the Interior’s Partnership web page: 

http://www.doi.gov/Partnerships/pdfs/national_parks_service_authorities.pdf

16 U.S.C. § 1–4 — General Authority to Take Actions That Promote and Regulate 

 Units of the National Park System

16 U.S.C. § 6 — General Authority for NPS to Accept Donations

16 U.S.C. 18g-j — Acceptance of Volunteer Services
National Park Service — Making Friends Handbook 71

In contrast to statutes, documents such as Executive Orders or NPS Director’s 

Orders do not provide legal authority for NPS actions and should not be cited 

as legal authority. Such documents may, however, be cited in the Background 

and Objectives section or elsewhere in the agreement to help explain NPS and 

Partner motivations, goals and objectives.

It is advisable to consult Regional Office Partnership Coordinators early in the 

process of considering any Partnership relationship. They can help identify 

the appropriate authorities, or bring in the Regional Solicitor’s Office where 

necessary to help NPS and its potential Partner identify legal authorities and 

understand what is legally possible.

V. Responsibilities and Understandings of the Parties 

The Responsibilities and Understandings section of a Friends Group Agreement sets out what each party agrees to do. NPS and its Partner will want to 

state common understandings or make commitments to jointly undertake 

certain actions. These joint understandings and commitments should be captured in a separate subsection labeled “NPS and the Partner jointly agree to:” 

Examples of provisions that could be contained in this section are processes 

for consultation, coordination, and dispute resolution.

Each party should also be assigned its own subsection in the Friends Group 

Agreement listing its own responsibilities and understandings. For example, 

there should be a subsection entitled “NPS agrees to:” and a counterpart subsection should be established for the Partner(s), i.e., the “Partner agrees to:” 

It is impossible to provide a list of standard agreement clauses for incorporation into the Responsibilities and Understandings section for all Friends 

Group Agreements because agreement provisions must be tailored to the facts 

presented by a specific partnership. The following identifies provisions that 

should be considered and, if found relevant, addressed in the Responsibilities and Understanding section of a Friends Group Agreement. This list is not 

exhaustive. NPS staff and in some instances the Solicitor’s Office might determine that additional or alternative clauses should be included in a particular 

case.
National Park Service — Making Friends Handbook 72 

A. NPS and the Partner jointly agree to

 1. Participate in regular meetings, to foster close cooperation

 on agreement implementation.

 2. Make a good faith effort to achieve the following specified

 goal and objectives during the term of this Agreement: 

 [List and discuss goals and objectives.]

 3. Work together in good faith to resolve differences at the level

 of the Key Officials identified in Article XI of this 

 Agreement prior to elevating matters within the Partner 

 organizations or appealing elsewhere within NPS or the 

 federal government. [Note: the partners may consider

 inserting a period for discussions, e.g. 30 or 60 days, in 

 which the Key Officials will work together to resolve issues

 prior to elevation.]

 4. Make timely decisions on matters necessary to proper 

 implementation and administration of this Agreement.

 5. Work in good faith to execute sub agreements to this 

 agreement necessary to meet the mutual objectives of the

 parties. Such agreements may include without limitation

 Fundraising Agreements.

 6. Work actively and collaboratively to ensure that all NPS 

 Director’s Order #21 requirements, as amended, 

 supplemented or superseded, are met in the implementation

 and administration of this Agreement and sub agreements

 executed hereto.

B. NPS agrees to

 1. Authorize NPS employees to undertake the following 

 activities to support the efforts of the Partner: [List activities,

 e.g., providing information on the need for, and scope of, 

 a project to a Partner’s prospective donors, and attend 

 Partner’ fundraising events.]

 2. Review and approve or deny all proposed agreements 

 between a Partner and a third-party that materially bear on

 the subject matter of this Agreement. An example of 

 material agreement might be a proposed agreements with a

 firm hired to conduct, or assist the Partner in designing an

 exhibit or producing a film for the park. 
National Park Service — Making Friends Handbook 73

 3. Consider applications from the Partner for Special Use 

 Permits to authorize in-park activities in connection with 

 this Agreement. 

 4. Provide the Partner with the Park’s donor recognition plan

 that outlines how and where donors may be recognized in a

 park. All donor recognition also must comply with 

 Director’s Order #21. 

C. Partner agrees to

 1. Comply with the terms of applicable laws, regulations and

 Government policies.

 2. Conduct general fundraising activities in support of NPS in

 conformance with the terms and conditions of NPS 

 Director’s Order #21.

 3. Remain for the term of this Agreement, fully qualified to seek

 and receive philanthropic contributions under state and

 federal law. 

 4. Obtain a Special Use Permit or other appropriate approvals

 prior to undertaking activities in a park unit. 

 5. Implement the goals specific to the Partner described in

 Paragraph A.2. (List Partner specific responsibilities.)

 6. Not use funds or other benefits made possible by this 

 Agreement or related agreements, its relationship with NPS,

 or NPS property to support or benefit any individual, or 

 other entity or cause.

 7. Review the contributions of donors to ensure that proposed

 donations do not give rise to an appearance of loss of 

 integrity or impartiality or otherwise reduce public 

 confidence in the Partner or the NPS. To this end, the 

 partner will implement the donor review process contained

 in Attachment A to this Agreement. 
National Park Service — Making Friends Handbook 74 

Note: Respecting the Donor Review Process: 

Where a Partner’s donor provides a significant donation, the Departmental 

Manual (374 DM 6) and DO #21 respecting donation acceptance require 

review of the donor to ensure that the proposed donation does not give rise to 

an appearance of loss of integrity or impartiality, or otherwise reduce public 

confidence in the Partner or the NPS. Both the NPS and its Partners have 

responsibilities relating to donor review. 

Attachment A to this CFA contains a sample donor review provision. The 

provision was drafted for incorporation into a fundraising agreement with a 

large, experienced, and well organized fundraising Partner. That Partner had 

successfully raised hundreds of millions of dollars over the course of a twodecade long relationship with NPS. Therefore, the provisions of the sample, 

including dollar thresholds for donor review, were drafted to give the Partner 

primary responsibility for donor review. In this example, NPS donor review 

only occurs at relatively high dollar thresholds and or when corporate donations are involved. 

NPS staff retains discretion to draft donor review procedures that vary from 

Attachment A, but such provisions cannot be less restrictive than those 

contained in Attachment A. For example, NPS staff may decide to lower the 

vetting thresholds triggering donor review, or to incorporate other appropriate 

safeguards where a Partner has little or no track record of substantial fundraising for NPS. The WASO Partnership Office, the Solicitor’s Office, and the 

Departmental Ethics Office are available for consultation in such matters.

Notwithstanding the foregoing, it is unlikely that fundraising activities 

occurring under a Friends Group Agreement will trigger intensive donor 

review. Only non-project specific fundraising may occur pursuant to a Friends 

Group Agreement and large donors generally want to support specific 

projects. Therefore, Attachment A will most likely be used in conduction with 

a fundraising campaign authorized by a specific and separate Fundraising 

Agreement.
National Park Service — Making Friends Handbook 75

VI. Property Utilization

A. In General: the “Property Utilization” section of a Friends Group

 Agreement describes NPS property that a Partner may use to assist

 NPS in obtaining mission-related objectives. The Property 

 Utilization section also places conditions on such use. Partners may

 not undertake activities on federal park property that support, in

 whole or part, non-NPS related interests. 

 NPS must have statutory authority to permit Partners to use 

 Government property. While in many cases the NPS Organic Act

 may provide sufficient statutory authority for temporary Partner use

 of Government property, NPS staff should consult with the 

 Solicitor’s Office to identify applicable legal authorities on a case-by-

 case basis. Permission to utilize NPS property may be contained

 in a Friends Group Agreement and may be incorporated by 

 reference into a Fundraising Agreement.

The following are example property utilization provisions:

 1. Subject to the conditions set out in Paragraph 2 (below),

 provide the Partner with appropriate use of NPS resources

 in furtherance of activities authorized by this Agreement.

 Resources available for Partner use are limited to the 

 following: [List resources, structures, equipment, etc.] 

 2. The Partner will abide by the following terms and conditions

 respecting use of property authorize herein: [List, e.g., the

 duration of use, maintenance responsibilities, site and safety

 conditions, payment of utilities, compatibility of Partner

 activities with other NPS responsibilities, hours of operation,

 compliance with NPS IT security requirements, etc.] 

 Note: Terms and conditions of property use may also be 

 addressed in an attachment to this agreement or, where 

 appropriate, in a separate agreement.

 3. The Partner will acquire and maintain insurance coverage

 associated with the use of NPS property in accordance with

 the requirements of X of this Agreement.

 4. During the term of this Agreement, the Partner may direct

 future requests for the use of NPS property to the NPS Key

 Official identified in Article X. The Key Official may provide

 written authorization for such use including conditions 

 thereon, in a form deemed appropriate by NPS (including

 but not limited to issuance of Special Use Permit), and the

 authorization will be incorporated as an appendix to this

 Agreement.
National Park Service — Making Friends Handbook 76 

B. Intellectual Property

 Occasionally Partner organizations wish to use NPS intellectual

 property, e.g., the NPS Arrowhead, pictures of NPS rangers in

 uniform, NPS taglines, park photos, etc., in their educational or 

 fundraising efforts. Similarly, NPS may wish to use a Partners’

 intellectual property to further mission objectives. Should this

 occur, appropriate intellectual property licenses and protections

 must be included in an agreement between the parties, e.g., a

 Friends Group Agreement, a Fundraising Agreement, or a stand

 alone agreement. 

 Intellectual property issues normally arise in the context of 

 Corporate Campaigns and Article X of the Model Corporate 

 Campaign Agreement contains Intellectual property provisions. For

 purposes of economy these provisions are not duplicated here,

 however, the Model Corporate Campaign Agreement provisions

 can be adapted for use in a Fundraising Agreement where 

 appropriate. Further, the WASO Partnership Office and the 

 Solicitor’s Office, Division of General Law in Washington have 

 special expertise in intellectual property issues involving Partners.

 These offices are a useful resource should an intellectual property

 issue arise.

VII. Term of Agreement

The term of a Friends Group Agreement should not exceed a term of 5 years. 

Friends Group Agreements may be renewed for additional periods of up to 

5 years if agreed to by the parties in writing prior to expiration of the Agreement. The following language may be used to establish the Agreement term:

Unless earlier terminated by operation of the terms of this Agreement, or by 

agreement of the parties in writing, this Agreement will run for a period of five 

years beginning on the date the last signature is affixed to this Agreement. 

Note: Where NPS uses a Friends Group Agreement as a base agreement from 

which one or more sub agreements tier, e.g., Fundraising Agreements, the 

term of the Friends Group Agreement must be no less than the term of the sub 

agreement. This may require NPS to extend the term of the existing Friends 

Group Agreement (to the extent permissible under NPS policy), shorten the 

term of proposed sub agreement, or both. 
National Park Service — Making Friends Handbook 77

VIII. Termination and Expiration

The termination and expiration section of any Fundraising Agreement addresses: 1) a party’s ability to terminate the agreement; and 2) what happens to 

donations and interest and earnings thereon after termination or expiration of 

the Agreement

A. Termination

The following three termination clauses would typically be 

incorporated into any agreement. The parties would determine 

which to use based on an assessment of facts in consultation with 

legal counsel.

 1. The following termination clause alternative does not 

 require a “cause” such as breach of the agreement, for 

 termination. This clause may be appropriate where the 

 primary function of an agreement is to facilitate 

 philanthropic donations. Depending on the circumstances,

 NPS and the Partner may choose to lengthen the notice 

 period for termination suggested below. 

 Either party may terminate this Agreement for any reason by

 giving thirty (30) days written notice. Neither party shall be 

 liable to the other for any damages, costs or claims in the 

 event of termination. Termination will be effective at the end

 of the thirty (30) day period. 

 2. The following alternative clause requires cause for 

 termination. This clause is appropriate where the parties

 intend to preserve the right to seek judicial or other 

 remedies in the event they are harmed by a material breach

 of the agreement. Depending on the facts of the situation

 the parties may choose to allow the breeching party to cure

 the breech within a specific amount of time, e.g., 30 days. 

 If either party fails to observe the terms and conditions of 

 this Agreement, the other party may terminate this 

 Agreement for default without any legal process whatsoever

 by giving thirty (30) days written notice of termination, the

 termination will be effective at the end of the thirty (30) day 

 period. In the event of termination for a material breach of

 the agreement, all claims at law or in equity, all defenses to

 such claims, and recourse to all administrative or judicial

 forums with appropriate jurisdiction is preserved.
National Park Service — Making Friends Handbook 78 

 3. The following “Termination for Convenience of the

 Government” (TFC) clause may be used in 

 conjunction with either alternative above and is often

 used when harm to public and government interests may

 result from the actions of a Partner or is agents. We note,

 however, that in most cases a TFC provision is not

 needed where a Partner is not authorized to undertake

 in-park activities. If NPS uses a Special Use Permit to

 authorize in-park activities a TFC may be included in the

 permit.

 The National Park Service may terminate this Agreement

 for the convenience of the Government, at any time,

 when it is determined to be in the best interest of the

 public to do so. The effected parties shall be notified

 within 5 working days following termination 

B. Partner Disposition of Assets in the Event Termination or 

Expiration of the Agreement; Cessation of Partner Operations

 

Once funds and in-kind goods are donated for the benefit of NPS, all

 parties, including donors, should expect the donations to be used for

 the purposes for which they were donated. 

Tax laws governing formation and operation of non-profit entities

require that upon closure of an organization, or its merger with 

another organization, the disposition of the organization’s remaining

funds is governed by the organization’s Articles of Incorporation. 

Generally, funds may be expended for the purposes for which they

were donated, or they may be given to the federal government, or state

or local governments. Thus, organizations are not necessarily 

required to ensure that funds it holds are used for the benefit of NPS.

Therefore it is important that the text of the Partner’s Articles of 

Incorporation is, and remains, clearly consistent with the disposition

provisions of the Fundraising Agreement. 

Since donated funds must be used for the purposes for which they

 were donated, NPS and its Partner should reach agreement on the

 scope of Partner’s solicitations to donors. This agreement may be

 memorialized in the Fundraising Agreement. For example, donors

 may be informed through written solicitations and other Partner 

communications that in the event that donated funds or in-kind goods

 cannot be used for “Program A” they will be used for “Program B.”
National Park Service — Making Friends Handbook 79

The following provision may be used to address disposition of Partner assets 

donated for the benefit of NPS projects or programs.

 1. Upon termination or expiration of this Agreement, or 

 cessation of Partner operations for any reason, all funds

 including interest and earnings thereon, and all in-kind

 contributions held by the Partner for the benefit of NPS

 or its projects or programs, shall be transferred to NPS or

 to a third-party deemed acceptable by NPS (under such

 terms and conditions deemed acceptable by NPS) for use

 consistent with the purposes for which the donations were

 made. Nothing herein shall prevent the Partner from 

 satisfying allowable outstanding obligations reasonably

 incurred in association with this Agreement prior to its

 termination or expiration. 

 2. Within thirty (30) days of execution of this Agreement the

 Partner will ensure that its Articles of Incorporation 

 expressly incorporate the disposition provision of Article

 VIII.B.1 and will remove any conflicting provisions from its

 Articles of incorporation. 

 3. Nothing herein is intended to conflict with State law 

 governing non-profit disillusion and asset disposition. 

 4. To the greatest extent allowable under law, both parties shall

 take actions necessary to give full force and effect to the text

 and intent of Article VIII.B.

IX. Key Officials:

List the names and contact information of Key Officials of each organization 

responsible for administration and implementation of the agreement. Provide 

that the parties should be notified if a Key Official changes. 

Key Officials play a very important role in ensuring smooth implementation 

of Friends Group Agreements. Therefore, consideration should be given to 

whether the Key Officials have the time and expertise needed to discharge this 

function. The Key Officials should generally be the party primarily responsible 

for maintaining the Partnership.

Note: Clauses appearing in bolded italics in Articles VIII, IX, and X below 

cannot be easily modified or deleted. Modifications to these standard clauses 

are rarely authorized by NPS or the Solicitor’s Office. When needed, discussion of these clauses appears as normal text. The discussion section addresses 

when NPS staff may have flexibility to modify a particular standard clause.
National Park Service — Making Friends Handbook 80 

X. Liability and Insurance

The NPS recognizes that the type and amount of insurance coverage required 

of Partners should be determined by risk. Therefore, where a Partner will not 

be undertaking activities within park units no insurance is required. If NPS 

intends to authorize a Fundraising Agreement that does not contain an insurance clause because the Partner has no plans for in-park activities, the Fundraising Agreement should state that NPS retains the right to require the Partner to acquire insurance should the Partner propose future in-park activities, 

e.g., a donor recognition event. Insurance requirements could be inserted in 

the Special Use Permit authorizing the event.

Since NPS Partners must indemnify NPS for losses incurred as a result of 

their or their agents’ actions, it may be in the Partner’s best interest to research 

appropriate insurance coverage. Information regarding appropriate coverage 

generated by the Partner’s insurer may be helpful to NPS’ analysis of insurance sufficiency, but NPS should not defer to such information without critical 

evaluation. NPS is in the process of developing tools and resources to assist 

NPS staff in determining whether a Partner’s insurance proposal is appropriate. Partner

Lastly, NPS does not require state or local governments to acquire insurance. 

These entities, like NPS are considered self-insured.

The following clauses are recommended for inclusion in all fundraising 

agreements:

A. Prior to undertaking any authorized activities within a park unit

 the Partner shall procure comprehensive general liability 

 insurance and other appropriate insurance coverage from a 

 responsible company or companies in coverage amounts and

 upon terms acceptable to NPS. The policy or policies shall name

 the United States as an additional insured, shall specify that the 

 insured shall have no right of subrogation against the United States

 for payments of any premiums or deductibles due there under, and

 shall specify that the insurance shall be assumed by, be for the 

 account of, and be at the insured’s sole risk. After consultation with

 insurance professionals, the Partner will consult with NPS regarding

 the adequacy of proposed insurance coverage and terms. If the

 insurance proposal is accepted in writing by NPS, the Partner will

 provide NPS with written confirmation that agreed to coverage

 was procured prior to undertaking any activities within the park

 unit at issue. Insurance shall be reviewed every two years 

 beginning on the date of purchase of insurance coverage, and shall

 be updated and modified if necessary to ensure consistency with

 generally accepted insurance practices and NPS policies. NPS 

 reserves the right to require the Partner to acquire additional or

 supplemental insurance, or other form of security such as a bond, 

 if NPS determines that the Partner’s insurance is not adequate to

 cover liability associated with in-park activities. 
National Park Service — Making Friends Handbook 81

B. The Partner assumes liability for and does hereby agree to, save,

 hold harmless, defend and indemnify the United States of America,

 its agents and employees from and against any and all liabilities, 

 obligations, losses, damages or judgments (including without 

 limitation penalties and fines), claims, actions, suits, costs and 

 expenses (including without limitation attorneys’ fees and experts’

 fees) of any kind and nature whatsoever on account of fire or other

 peril, bodily injury, death or property damage, or claims for bodily

 injury, death or property damage of any nature whatsoever, and by

 whomsoever made, in any way arising out of, the activities of the

 Partner, its employees, agents or contractors under this Agreement.

 This indemnification shall survive the termination or expiration of

 this Agreement.

We note that Partners occasionally ask that NPS indemnify them. The AntiDeficiency Act bars Federal agencies from providing indemnification to Partners. NPS may only be found liable to Partners through processes established 

in applicable federal law, such as those contained in the Federal Tort Claims 

Act.

If it is determined, through the terms of the Agreement, that the Partner will 

occupy and use NPS property, e.g., where the Partner’s offices are located in a 

park owned structure, the following clauses should be included. In the instance of shared space between the NPS and the Partner, the NPS may consider waiving or pro-rating the insurance requirement. The insurance clause is 

used in addition to – not in place of – other required insurance clauses discussed above.

C. The Partner will pay the United States the full value of all damages

 to the lands or other property of the United States directly caused

 by the Partner, its employees, agents, representatives, or 

 contractors.

Consider inserting this clause in agreements that allow a Partner to occupy a 

NPS structure for Partnership-related purposes. The NPS may consider waiving or pro-rating this clause where a structure is shared with NPS employees, 

e.g., where the NPS and the Partner have offices in the same NPS facility. This 

insurance clause is used in addition to - and not in place of – other required 

insurance clauses discussed above.
National Park Service — Making Friends Handbook 82 

D. The Partner shall procure and maintain fire and hazard protection

 insurance in an amount equal to the replacement cost of NPS 

 structures and facilities utilized by the Partner. The Partner shall

 provide the NPS with confirmation of such insurance coverage.

 Any repairs or reconstruction carried out on structures and 

 facilities on parkland with the proceeds of this insurance are 

 subject to approval by the Superintendent.

E. The Partner will provide worker’s compensation protection to 

 Partner officers, employees, and representatives. 

XI. Financial Management

The following general accounting clauses are designed to account for donations held by a Partner for the benefit of NPS. NPS may want to include 

additional reporting requirements on a case-by-case basis. These provisions 

may be incorporated by reference into sub agreements, including Fundraising 

Agreements that tier off this Friends Group Agreement.

A. The Partner will maintain accounting books and records under a

 system of accounts and financial controls that is consistent with

 Generally Accepted Accounting Principles. 

 

B. The Partner will permit NPS or its designee, or the Comptroller

 General to verify and audit any financial auditor records from the

 books, correspondence, memoranda and other records of the 

 Partner, during the period of this Agreement, and for such time

 thereafter as may be necessary to accomplish such verification.

C. The Partner will ensure that if any funds raised under this 

 Agreement are commingled with other funds held or managed by

 the Partner, an accounting system will be utilized which 

 independently tracks and distinguishes funds raised under this 

 Agreement from such other funds.

D. NPS provide that Partner with a detailed report(s) on the use of

 funds or in-kind donations made available to the NPS as a result of

 this Agreement. The report(s) shall be provided [insert date or

 dates] until all funds or in-kind donations provided have been 

 expended or utilized by NPS.
National Park Service — Making Friends Handbook 83

E. Where the Partner continues to manage endowment or investment

 accounts that may be used to benefit NPS projects or program, this

 Article [insert number] shall survive termination or expiration of 

 this Agreement. 

F. Financial Audits. In addition to provisions A-D of this Article, if

 during the term of this Agreement the Partner may or does raise or

 manage a total of One Million Dollars ($1,000,000) or more in funds

 (including interest and earnings thereon) for the benefit of NPS and

 or NPS projects or programs, the Partner will annually furnish NPS

 with: 1) a copy of its IRS 990 form and 2) a financial audit 

 generated by an independent certified public accountant (CPA) in

 conformance with Generally Accepted Accounting Principles. 

 The financial audit shall at a minimum:

 (a) Comprehensively assess the overall operational and 

 financial position of the Partner. 

 (b) Specifically assess the operational and financial position

 of the Partner with respect to activities authorized by

 this Agreement or sub agreements executed hereto. 

 Include in this assessment: cash donations and interest and

 earnings thereon, endowment income, pledged donations, 

 in-kind donations, other income, fundraising expenses,

 expenditures, etc.

 (c) Recommend corrective actions where appropriate and note

 where problems identified in the prior year audits persist.

 (d) Incorporate notes that describe the significant accounting

 policies used in preparing the financial audit.

 i) Partner agrees to take appropriate corrective action

 based on the audit findings when doing so may 

 further the goals of this Agreement or related 

 agreements.

 ii) The financial audit shall be provided to the 

 Comptroller of the National Park Service within 9

 months of the end of the Partner’s fiscal year which

 ends on (month / day) of each year. 

Alternative auditing and reporting requirements may apply where federal appropriated funds are transferred to a Partner through a grant or cooperative 

agreement. NPS staff should consult with their contracting officer and the 

Solicitor’s Office to identify appropriate audit provisions in such cases. 
National Park Service — Making Friends Handbook 84 

XII. Required and Miscellaneous Clauses

A. NON-DISCRIMINATION

 All activities pursuant or in association with this Agreement shall be

 in conducted in compliance with the requirements of Executive

 Order 11246; Title VI of the Civil Rights Act of 1964, as amended

 (78 Stat. 252; 42 U.S.C. § 2000d et seq.); Title V, Section 504 of the

 Rehabilitation Act of 1973 (87 Stat. 394; 29 U.S.C. § 794); the Age

 Discrimination Act of 1975 (89 Stat. 728; 42 U.S.C. §§ 6101 et seq.);

 and with all other federal laws and regulations prohibiting 

 discrimination on grounds of race, color, sexual orientation, 

 national origin, disabilities, religion, age, or sex.

B. NPS APPROPRIATIONS 

 

 Pursuant to 31 U.S.C. § 1341, nothing contained in this Agreement

 shall be construed to obligate the Department of the Interior or the

 United States to any current or future expenditure of funds in

 advance of the availability of appropriations from Congress. Nor

 does this Agreement obligate the Department of the Interior or the

 United States to spend funds on any particular project or purpose,

 even if funds are available.

Clause XII.B. is designed to help ensure that NPS and its employees comply 

with the Anti-Deficiency Act. Under the Act, NPS cannot obligate funds not 

yet appropriated by Congress.

C. PRIOR APPROVAL 

 Below is a sample checklist of items requiring prior NPS approval.

 The Partner shall obtain prior written approval from NPS 

 before:

 1. Holding special events within the Park;

 2. Entering into third-party agreements of a material nature;

 3. Assigning this Agreement or any part thereof;

 4. Constructing any structure or making any improvements

 within the Park;

 5. Releasing any public information that refers to the 

 Department of the Interior, NPS, the Park, any NPS 

 employee (by name or title), this Agreement or the Projects

 contemplated hereunder.
National Park Service — Making Friends Handbook 85

The above prior approval clause is generally used to restate or consolidate 

prior approval requirements contained in other parts of the agreement. New 

prior approval requirements may be added here as well. The above examples 

of prior approvals are representative of prior approval clauses found in many 

NPS agreements. But they may not be appropriate for inclusion in all agreements.

D. Compliance with Applicable Laws 

 This Agreement and performance hereunder is subject to all 

 applicable laws, regulations and government policies, whether now

 in force or hereafter enacted or promulgated. Nothing in this 

 Agreement shall be construed as in any way impairing the general

 powers of the NPS for supervision, regulation, and control of its

 property under such applicable laws, regulations, and management

 policies. Nothing in this Agreement shall be deemed inconsistent

 with or contrary to the purpose of or intent of any Act of Congress.

 This clause is a general savings clause which helps ensure that 

 applicable legal or policy requirements not expressly addressed in

 the Friends Group Agreement apply regardless. 

E. Disclaimers of Government Endorsement

 The Partner will not publicize or circulate materials (such as 

 advertisements, solicitations, brochures, press releases, speeches, 

 pictures, movies, articles, manuscripts, or other publications), 

 suggesting expressly or implicitly, that the Government, the 

 Department, NPS, or Government employees endorse the Partner's

 business, goods, or services. All materials referring to the 

 Government must be approved by the NPS Key Official prior to 

 publication. Nothing herein is intended to prevent NPS or the

 Department of the Interior from recognizing the Partnership or 

 contributions made by the Partner to NPS, and from authorizing an

 inclusion of such recognition in materials generated by the Partner

 related to this Agreement.

F. Release of Information 

 The Partner must obtain prior approval through the NPS Key 

 Official for any public information releases which refer to the 

 Department of the Interior, any bureau, park unit, or employee 

 (by name or title), or this Agreement. The specific text, layout, 

 photographs, etc., of the proposed release must be submitted

 with the request for approval. Likewise, the NPS must obtain prior

 approval through the Partner Key Official for any public 

 information releases which refer to the Partner, employee (by name

 or title), or this Agreement. The specific text, layout, photographs, 

 etc., of the proposed release must be submitted with the request for 

 approval. 
National Park Service — Making Friends Handbook 86 

 In order to streamline approvals, language about the Partnership

 and fundraising effort can be jointly developed and agreed to early

 in the development of campaign or communication materials. This

 jointly developed language can than be used by either party without

 additional review and approval.

G. Merger

 This Agreement, including any attachments and or documents 

 incorporated by reference is the sole and entire agreement of 

 the parties. 

H. Modifications 

 This Agreement may be extended, renewed or amended only when

 agreed to in writing by the NPS and the Partner.

I. Waiver 

 Failure to enforce any clause of this Agreement by either party shall

 not constitute waiver of that clause. Waivers must be express and 

 evidenced in writing.

 Waiver is a legal term used to describe a permission to take an action

 contrary to the terms of an existing agreement. A waiver can be: 1)

 formal, i.e. express written permission to take an action; 2) informal,

 i.e., verbal permission to take an action; or 3) implied, i.e., a party is

 on notice that an action is occurring, or will occur, the action is 

 inconsistent with the terms of an agreement, and the party fails to

 object in a timely way. Difficult Partnership problems can arise

 when an informal or implied waiver is alleged by one party and

 rejected by the other. The waiver clause requires that all waivers

 must be made in writing to minimize problems that otherwise 

 could arise.

J. Counterparts 

 This Agreement may be executed in counterparts, each of which

 shall be deemed an original (including copies sent to a party by 

 facsimile transmission) as against the party signing such 

 counterpart, but which together shall constitute one and the same

 instrument.

 Sometimes it is logistically difficult for all parties to sign the same

 copy of an agreement. This clause permits execution through the

 signature of separate copies of the agreement.
National Park Service — Making Friends Handbook 87

L. No Lobbying for Federal Funds

 The Partners will not seek appropriations from Congress to 

 support any ongoing or proposed Partner activity or project 

 relating to the subject matter of this Agreement or sub agreements

 hereto, including without limitation federal appropriations for

 construction, renovation, property acquisition, leasing, 

 administration or operations. Nothing in this paragraph is 

 intended to preclude Partners from applying for and obtaining a

 competitive or non-competitive grant of federal financial assistance

 from a federal agency or from undertaking otherwise lawful 

 activities with respect to any project or proposal included in the

 President's budget request to Congress. Nothing in this paragraph

 should be construed as requesting, authorizing or supporting 

 advocacy by nonfederal entities before Congress.

 Current NPS policy bars Partners from seeking appropriations for

 Partnership activities unless the activity is included in the 

 President’s budget to Congress. Pursuant to NPS policy, this is a

 required clause in all Friends Group Agreements and Fundraising

 Agreements and cannot be altered. 

M. Member of Congress 

 Pursuant to 41 U.S.C. § 22, no Member of Congress shall be 

 admitted to any share or part of any contract or agreement made, 

 entered into, or adopted by or on behalf of the United States, or to

 any benefit to arise thereupon.

N. Agency 

 The Partner is not an agent or representative of the United States,

 the Department of the Interior, or the NPS; nor will the Partner 

 represent its self as such to third parties. NPS is not an agent or 

 representative of the Partner, nor will the NPS represent itself as

 such to third parties. 

 This clause helps to ensure that a Partner’s representations to 

 donors, and a Partner’s actions with respect to donations, are not 

 misconstrued as representation by, or actions of, the Government.

 Conversely, it also clarifies that NPS employees do not act on behalf

 of its Partners.

O. Non-Exclusive Agreement 

 This Agreement in no way restricts either the NPS or the Partner

 from entering into similar agreements, or participating in similar

 activities or arrangements, with other public or private agencies,

 organizations, or individuals.
National Park Service — Making Friends Handbook 88 

P. No Third-Party Beneficiaries 

 Unless expressly stated herein, nothing in this agreement is intended

 to grant any rights or provide any benefits to any third-party.

Q. Survival 

 Any and all provisions which, by themselves or their nature, are

 reasonably expected to be performed after the expiration or early

 termination of this Agreement shall survive and be enforceable after

 the expiration or early termination of this Agreement. Any and

 all liabilities, actual or contingent, which have arisen during the term

 of this Agreement and in connection with this Agreement, shall 

 survive expiration or termination of this Agreement.

R. Partial Invalidity

 If any provision of this Agreement or the application thereof to any

 party or circumstance shall, to any extent, be held invalid or 

 unenforceable, the remainder of this Agreement or the application

 of such provision to the parties or circumstances other than those to

 which it is held invalid or unenforceable, shall not be affected 

 thereby and each provision of this Agreement shall be valid and be

 enforced to the fullest extent permitted by law.

S. Captions and Headings 

 The captions, headings, article numbers and paragraph numbers

 appearing in this Agreement are inserted only as a matter of 

 convenience and in no way shall be construed as defining or limiting

 the scope or intent of the provision of this Agreement nor in any

 way affecting this Agreement.

T. Force Majeure

 Neither party shall be liable for failure to perform its obligations 

 under this Agreement due to events beyond its reasonable control,

 including, but not limited to, strikes, riots, wars, fire, acts of God,

 and acts in compliance with any applicable law or regulations.
National Park Service — Making Friends Handbook 89

XIII. Signatures

IN WITNESS WHEREOF, the parties have executed this Agreement on the 

date set forth above.

_________________________________________ ________________

[For the National Park Service, Name, and Title] Date

_________________________________________ _________________

[For the Partner, Name, and Title] Date

Note: Include the name and title of each signatory to the agreement. Make 

 sure that Director’s Order 21 guidance is followed with respect to 

 appropriate NPS signature levels.

XIV. Attachments

 The following is a non-exclusive list of documents which should be

 attached to a Fundraising Agreement: 

Attachment A: Partner Articles of Incorporation

Attachment B: Partner By-Laws

Attachment C: IRS Determination Letter Recognizing the Partner’s Non-Profit Status (if available)
National Park Service — Making Friends Handbook 90 

This General Agreement (Agreement) is entered into between the National 

Park Service (Service) and the Knife River Indian Heritage Foundation 

(Foundation) for the purpose of establishing a basis for donation assistance 

benefiting Knife River Indian Villages National Historic Site (Park).

Service donation acceptance authority is provided by 16 U.S.C. § 6 and 

Director’s Order 21.

Whereas, the Park is a unit of the National Park System;

Whereas, the Foundation is a 501(c) (3) private, non-profit organization, incorporated doing business under the laws of the State of North Dakota whose 

purpose is to promote the preservation, development, and public understanding of the Park;

Whereas, the Foundation will assist in providing aid to the park and education 

to the public in cooperation with the Park;

Whereas, the Foundation is committed to operating a thoughtful and effective 

fundraising and donation program;

Whereas, the current Board of Directors of the Foundation consists of 

approximately six individuals that bring to the Foundation a record of 

demonstrated civic-mindedness, generosity, a network of significant resources, 

and a commitment to the stewardship of the Park;

Whereas, the Foundation wishes to assist the Service in meeting and achieving Service priorities for resource protection, education, recreation and visitor 

services at the Park;

Now therefore, the parties agree that:

ARTICLE I AUTHORITY

ARTICLE II BACKGROUND AND OBJECTIVES

General Agreement Between the National Park Service and the 

Knife River Indian Heritage Foundation

Example: General Agreement
National Park Service — Making Friends Handbook 91

1. Recognize the Foundation as a Friends Group and partner organization 

well suited to raise funds or other resources for approved purposes.

2. Provide the Foundation with all current and future information 

concerning Service fundraising and donation policies and procedures 

that the Foundation must observe. Service policy in this regard is 

currently contained in Director’s Order 21 and is hereby incorporated 

by reference into this agreement.

3. Provide appropriate acknowledgment of the Foundation’s 

philanthropic efforts and the generosity of Foundation donors. 

4. Keep the Foundation appropriately informed of projects, programs, 

and objectives relating to the Park that are suitable for private sector 

support.

5. Ensure that donations provided by the Foundation are used solely on 

behalf of and for the benefit of the Park and to the greatest extent 

possible, are used consistent with donor intentions.

6. Make available to the Foundation such appropriate information and 

data as may reasonably be required and is publicly available to inform 

potential donors and others about the status of projects or programs 

proposed by the Park.

7. Provide the Foundation with an up-to-date list of Service priorities for 

the Park.

8. Work with the Foundation to help the Foundation determine which 

plans and projects may be funded or supported through the 

Foundation’s efforts.

9. Ensure that any restricted donation the Service accepts is used for its 

intended purpose, provided that such use is consistent with applicable 

laws, regulations, Service policies, and Service planning documents.

10. Prepare and submit to the Foundation within 90 days of the end of the 

calendar year an annual accounting of how the previous year’s 

Foundation contributed funds were expended.

11. Identify appropriate individuals within the Service to serve as liaison 

with the Foundation on all matters covered by this Agreement and 

sub-agreements hereto.

ARTICLE III OBLIGATION AND UNDERSTANDINGS

A. The Service agrees to:
National Park Service — Making Friends Handbook 92 

12. Promptly review any request from the Foundation for approval of 

publicity, informational documents, or other material for public 

release that relate to Foundation activities on behalf of the Service.

13. To the extent practicable, arrange for and conduct tours and 

inspections for individuals and groups at the request of the 

Foundation, provided that such activities assist the Foundation in 

meeting the goals of this Agreement and will not, in the judgment of

the Service, unduly infringe upon or detract from normal visitor 

activities and services at the Park. Requests for such tours and other

events will be made in advance through the Key Official identified in

 Article VIII of this Agreement. The Superintendent will have final

 decision-making responsibility respecting such requests.

14. Appoint the Service Key Official to participate, when invited, as a 

non-voting liaison to the Foundation’s Board of Directors.

15. Review Foundation proposals for fundraising and donation activities 

and determine whether, in light of Director’s Order 21 and other legal 

and policy guidance, the proposal can be pursued. If a proposal can 

be pursued, Service will determine whether it may proceed under the 

terms of this Agreement or whether execution of a separate 

sub-agreement to this Agreement is necessary. The Service shall reflect

all such determinations in writing.

1. Be fully qualified under North Dakota and Federal law to engage in 

fundraising and receive philanthropic contributions for the purposes 

stated in the Agreement.

2. Conduct its fundraising and donation activities in accordance with 

Service Directors Order 21, as amended, modified, or superseded, and 

with applicable laws.

3. Submit written proposals for authorization of all fundraising and 

donation activities to the Service prior to any solicitation for donation.

4. Undertake any plans or studies deemed necessary by the Service to 

approve any fundraising proposal. Examples of plans or studies that 

may be required include, but are not limited to, a fundraising plan, a 

communications plan, a donor recognition plan and a fundraising 

feasibility study.

B. The Foundation agrees to:
National Park Service — Making Friends Handbook 93

5. Donate to the Service all funds acquired through its fundraising 

activities that are intended to benefit the Park, except those funds that 

may be retained for fundraising, management, and other overhead 

costs as a direct result of fundraising, which will not exceed existing or

future levels provided for in Director’s Order 21, as amended, 

supplemented, or superseded. Currently, Director’s Order 21 allows

for retention of up to twenty percent of the total amount raised

through authorized fundraising activities. Further, pursuant to 

Director’s Order 21, Foundation fundraising intended to benefit the 

Foundation, e.g., fundraising to cover Foundation administrative costs 

that are not incurred in association with a Park fundraising campaign, 

may be retained by the Foundation.

6. Obtain written approval from the Service Key Officials designated in

 Article VIII of this Agreement, or his/her designee, before releasing to

the public any information that refers to Foundation fundraising and 

donation efforts, to the Department of the Interior, the Service, or to 

any Department or Service employee (by name or title). The specific 

text, layout, photographs, and graphics or images to be contained in 

a proposed release must be submitted to the Service Key Official or his/

her designee along with the request for the approval.

7. Obtain prior approval from the Park Superintendent for any events or

ceremonies to be held in the Park. Any events or ceremonies 

sponsored by the Foundation will comply with all applicable Service 

policies and procedures and may require a Special Use Permit.

8. Submit all third-party agreements of a material nature, e.g., agreements 

with other foundations and agreements with professional fundraisers, 

to the Service for review and approval prior to execution. The Service 

will use best efforts to review and approve or reject any proposed 

third-party agreement within 30 days of its receipt by Service. 

9. Not publicize or otherwise circulate promotional material (such as 

advertisements, sales brochures, press releases, speeches, pictures,

movies, articles, manuscripts or other publications) that states or 

implies Governmental, Departmental, Service, or Governmentemployee endorsement of a product, Service, or position that the 

Foundation represents.

10. Donate to the Service or, with the written concurrence of the Service, 

otherwise use for purposes that benefit the Park, all interest, dividends, 

and earnings, etc., accrued on donated money or property held by the 

Foundation for the benefit of the Service in a manner consistent with 

the terms and conditions of this Agreement.
National Park Service — Making Friends Handbook 94 

11. Subject to Article VI, relinquish any and all right to, or oversight of, the

funds raised to benefit the Park, less fundraising, management, and 

other overhead costs directly incurred as a result of fundraising, not 

exceeding existing or future levels provided for in Director’s Order 21, 

upon termination of this Agreement.

12. Forebear from seeking appropriations from Congress to support any 

ongoing or proposed Foundation activity or project related to the 

subject matter of this Agreement or sub-agreements hereto, including

without limitation federal appropriations for construction, renovation, 

property acquisition, leasing, administration, or operations. 

Nothing in this paragraph is intended to preclude the Foundation from 

applying for and obtaining a competitive or non-competitive grant or 

federal financial assistance from a federal agency, or from undertaking 

otherwise lawful activities with respect to any project or proposal 

included in the President’s budget request to Congress; nor shall any

thing in this paragraph be construed as requesting, authorizing, or 

supporting advocacy by non-federal entities before Congress. 

1. Their respective goals and responsibilities are best achieved through 

cooperation and communication.

2. The Key Officials of both organizations will work in good faith to 

resolve any issues of concern raised by either party to elevating matters 

higher within the Service, the Federal government, or the Foundation.

3. They will work closely and cooperatively to develop annual 

fundraising priorities.

4. They will consult twice-yearly and cooperatively to develop annual 

fundraising priorities.

5. The Foundation may invite the Service Key Official to observe 

Foundation board meetings and to provide status reports as 

appropriate.

6. During the six months following execution of this Agreement, the 

Service will work with the Foundation to develop appropriate methods 

and means of acknowledging appreciation for donations received as a 

part of the Foundation’s work.

C. The Foundation and the Service agree that:
National Park Service — Making Friends Handbook 95

7. When deemed necessary by the Service, the parties execute one or 

more sub-agreements to this Agreement to authorize specific 

Foundation fundraising or donation proposals. In the event of a 

conflict between a sub-agreement and this Agreement this Agreement 

will control. Sub-agreements are generally required for high dollar 

or high visibility fundraising or donation campaigns, e.g., a campaign 

to fund capital construction costs.

1. The Foundation will maintain accounting books and records under a 

system of accounts and financial controls meeting accepted 

professional standards for non-profit charitable organizations.

2. The Foundation will furnish to the Service an annual financial report 

on March 31 of each year including financial statements audited by 

an independent licensed or certified public accountant. The annual 

financial report shall be in such detail that all interest, investment 

income, gross receipts and expenses incurred by, or accruing to, the 

Foundation in connection with activities under this Agreement will be 

clearly addressed.

3. The Foundation will permit the Service, or its designee, or the 

Comptroller General to verify and audit the financial report form the 

books, correspondence, memoranda and other records of the 

Foundation, during the period of this Agreement, and for such time 

thereafter as may be necessary to accomplish such verification.

4. The Foundation will ensure that any funds raised under this 

Agreement are kept in a separate distinct bank account from other 

funds raised or held by the Foundation.

ARTICLE IV ACCOUNTING
National Park Service — Making Friends Handbook 96 

This Agreement shall be effective when signed by both parties and shall remain 

in effect for a period of five years from the effective date, unless terminated 

pursuant to Article VI below or unless extended by mutual agreement of both 

parties in writing.

1. Either party may terminate this Agreement for convenience at any time 

by giving thirty (30) days written notice to the other party. Upon 

termination, each party shall bear its own cost.

2. Upon termination or expiration of this Agreement and after 

consultation with the Foundation, the Service will determine 

1) whether the funds or in-kind contributions donated for the Park 

may appropriately be used for other projects with the Park, 2) whether 

consultation with known donors is appropriate in order to determine 

whether the funds can be used for other projects within the Park or 

3) whether unobligated funds should be returned to the donors. 

In the event that the Service and the Foundation disagree over the 

disposition of these funds or in-kind contributions, the funds or 

in-kind contributions will not be used for other projects within 

the park without the written permission of the donor(s). After such 

determination and the return of any funds to donors, the Foundation 

will relinquish to the Service any and all rights to, or oversight of, any 

remaining funds or in-kind contributions (less fundraising, 

management, and other overhead costs directly incurred as a result 

of fundraising, not exceeding existing or future levels provided for in 

Director’s Order 21) accepted to benefit the Park that haven’t already 

been officially donated to the Service. Any funds or in-kind 

contributions that will not be used for the Project or other projects 

within the Park shall be returned promptly to the donors. 

ARTICLE V TERM OF AGREEMENT

ARTICLE VI TERMINATION AND EXPIRATION
National Park Service — Making Friends Handbook 97

In furtherance of and as an expense of this Agreement, in connection with the 

fundraising activities that are the subject of this Agreement, the Foundation 

shall:

1. Prior to undertaking any authorized activities within a park unit the 

Partner shall procure comprehensive general liability insurance from

a responsible company or companies in coverage amounts and upon 

terms acceptable to NPS. The policy or policies shall name the United 

States as an additional insured, shall specify that the insured shall have

no right of subrogation against the United States for payments of any 

premiums or deductibles due there under, and shall specify that the 

insurance shall be assumed by, be for the account of, and be at the 

insured’s sole risk. After consultation with insurance professionals, 

the Partner will consult with NPS regarding the adequacy of proposed 

insurance coverage and terms. If the insurance proposal is accepted in 

writing by NPS, the Partner will provide NPS with written 

confirmation that agreed to coverage was procured prior to 

undertaking any activities within the park unit at issue. Insurance 

shall be reviewed every two years beginning on the date of purchase of 

insurance coverage, and shall be updated and modified if necessary 

to ensure consistency with generally accepted insurance practices and 

NPS policies. NPS reserves the right to at any time require the 

Partner to acquire additional or supplemental insurance, or other form 

of security such as a bond, if NPS determines that the Partner’s 

insurance is not adequate to cover liability associated with in-park 

activities. 

2. The Foundation will pay the United States the full value of all damages 

to the lands or other property of the United States caused by the 

Foundation, its employees, agents, representatives, or contractors.

3. In connection with the fundraising activities that are the subject 

of this Agreement, the Foundation assumes liability for and does 

hereby agree to, save, hold harmless, defend and indemnify the 

United States of America, its agents and employees from and against 

any and all liabilities, obligations, losses, damages or judgments 

(including without limitation penalties and fines), claims, actions, suits, 

costs and expenses (including without limitation attorneys fees and 

experts’ fees) of any kind and nature whatsoever on account of fire 

or other peril, bodily injury, death or property damage of any nature 

whatsoever, and by whomsoever made, in any way arising out of the 

fundraising activities of the Foundation, its employees, agents or 

contractors under this Agreement. This indemnification shall survive 

the termination or expiration of this Agreement.

ARTICLE VII LIABILITY AND INSURANCE
National Park Service — Making Friends Handbook 98 

1. Key officials are essential to ensure maximum coordination and 

communications between parties and the quality of work being 

performed. The Key Officials are:

(A)For the Service:

Superintendent

Knife River Indian Villages National Historic Site

P.O. Box 9

Stanton, North Dakota 58571

701-745-3300

(B)For the Foundation

Co-Presidents 

Donna Buchmann and Calvin Grinnell

Knife River Indian Heritage Foundation

P.O. Box 84

Stanton, North Dakota 58571 

1. Non-Discrimination. The Foundation and the Service shall abide by 

the provisions of Executive Order 11246, as amended, and shall be 

in compliance with the requirements of Title VI of the Civil Rights Act

of 1964, codified at 42 U.S.C. §§ 2000d et seq., as amended; Title V,

Section 504 of the Rehabilitation Act of 1973, codified at 29 U.S.C. 

§ 794, as amended; the Age Discrimination Act of 1975, codified at 42 

U.S.C. §§ 6101 et seq., as amended; and with all other Federal laws and

regulations prohibiting discrimination on grounds of race, color, 

sexual orientation, national origin, disabilities, religion, age or sex, in 

employment and in providing of facilities and services to the public.

2. National Park Service Appropriations. Pursuant to the AntiDeficiency Act, 31 U.S.C.§ 1341(a)(1), as amended, nothing herein 

contained shall be construed as binding the United States to expend 

in any one fiscal year any sum in excess of appropriations made by 

Congress for the purpose of this Agreement for that fiscal year, or to

involve the United States in any contract or other obligation for the 

further expenditure of money in excess of such appropriations.

ARTICLE VIII KEY OFFICIALS

ARTICLE IX REQUIRED CLAUSES
National Park Service — Making Friends Handbook 99

3. Members of Congress. Pursuant to 41 U.S.C. § 22, no member of 

Congress or Resident Commissioner shall be admitted to any share 

or part of any contract or agreement made, entered into, or accepted 

by or on behalf of the United States, or to any benefit to arise 

thereupon.

4. Lobbying with Appropriated Moneys. The parties shall abide by the 

provisions of 18 U.S.C. § 1913: No part of the money appropriated by

any enactment of Congress shall, in the absence of express 

authorization by Congress, be used directly or indirectly to pay for 

any personal service, advertisement, telegram, telephone, letter, 

printed or written matter, or other device, intended or designed to 

influence in any manner a Member of Congress, a jurisdiction, or an

official of any government, to favor, adopt, or oppose, by vote or 

otherwise, any legislation, law, ratification, policy, or appropriation, 

whether before or after the introduction of any bill, measure, or 

resolution proposing such legislation, law, ratification, policy, or 

appropriation; but this shall not prevent officers or employees of

the United States or of its departments or agencies from 

communicating to any such Member or official, at his request, or to

Congress or such official , through proper official channels, requests 

for any legislation, law, ratification, policy, or appropriations which 

they deem necessary for the efficient conduct of the public business, or 

from making any communication whose prohibition by this section 

might, in the opinion of the Attorney General, violate the Constitution

or interfere with the conduct of foreign policy, counter-intelligence, or 

national security activities.

5. Assignment. No part of this Agreement shall be assigned to any other 

party.

6. Third Parties Not to Benefit. This Agreement does not grant rights or 

benefits of any nature to any third party.

7. Applicability of Laws. This Agreement is subject to all applicable 

laws, regulations, or official policies of the Service existing on the date 

of execution or as amended, modified, or superseded.

8. Effective Date. This Agreement becomes effective on the date the last 

signature is affixed.

9. Waiver. Failure to enforce any provision of this Agreement by either 

party shall not constitute a waiver of that provision, or a waiver of a 

claim for subsequent breach of the same type, or a waiver of any other 

term of this Agreement. The waiver of any provision of this Agreement 

must be express and in writing.

10. Modification. All modifications to this Agreement shall be in writing 

and shall be signed by the Foundation and the Service.
National Park Service — Making Friends Handbook 100 

11. Disclaimers of Government Endorsement. Pursuant to 43 CFR 

§ 12.2(d)(2) the Foundation will not publicize or circulate materials 

suggesting, expressly or implicitly, that the federal government, the

Service, or Service employees endorse the Foundation’s work or 

products or consider them superior to others. All materials referring 

to the government must be approved by the Service prior to 

publication.

12. Severability. If any term or provision of this Agreement is held to be 

invalid or illegal, such terms or provisions shall not affect the validity or 

enforceability of the remaining terms and provisions. 

13. Release of Information. All information submitted to the Service by 

the Foundation pursuant to this Agreement is subject to release by the 

Service to the extent provided by applicable laws.

14. Merger. This Agreement contains the sole and entire agreement of 

the parties. No oral representations of any nature form the basis or 

may amend this Agreement. This Agreement may be extended, 

renewed, or amended only when agreed to in writing by the Service 

and the Foundation.

15. Counterparts. This Agreement may be executed in counterparts, each 

of which shall be deemed an original (including copies sent to a party 

by telecopy or facsimile transmission) as against the party signing such 

a counterpart, but which together shall constitute one and the same 

instrument.

16. Headings. The captions used herein are for convenience or reference 

only, are not part of this Agreement and do not in any way limit or 

amplify the terms and provisions hereof.
National Park Service — Making Friends Handbook 101

IN WITNESS HEREOF, the parties have executed this Agreement on 

the date(s) set forth below.

FOR THE NATIONAL PARK SERVICE:

 Signature: ___________________________________

 Name: ______________________________________

 Title: ______________________________________

 Date: ______________________________________

FOR THE KNIFE INDIAN HERITAGE FOUNDATION:

 Signature: ___________________________________

 Name: ______________________________________

 Title: ______________________________________

 Date: ______________________________________

 

 Signature: ___________________________________

 Name: ______________________________________

 Title: ______________________________________

 Date: ______________________________________

ARTICLE X SIGNATURES
National Park Service — Making Friends Handbook 102 

Appendix D — Donor Recognition Examples

Please visit http://www.nps.gov/policy/DOrders/DO21-reissue.pdf and 

http://www.nps.gov/partnerships/donor_partner_plan.htm to obtain the latest 

information on Donor Recognition Plans.

Background and Purpose

The National Park Service (NPS) recognizes private philanthropy as both a 

noble tradition of the national parks and as a vital element of the Service’s 

success. Donations come to the NPS from individuals, organizations, foundations, corporations, businesses, and other entities, purely as expressions of 

support, in response to the donor’s awareness of needs, or as a result of an 

organized fundraising campaign by others. These funds and in-kind contributions enhance the NPS's ability to carry out its programs and activities. The 

NPS appreciates the generosity of those who donate directly, and those who 

work through authorized nonprofit organizations and other authorized individuals or entities to raise funds for the benefit of the National Park System or 

the programs of the National Park Service.

The Director of the NPS issues policies that serve as the framework for NPS 

employees' conduct in relation to donation activities and fundraising campaigns which benefit the NPS. These policies can be found in Director’s Order 

21 (DO-21): Donations and Fundraising. Donor Recognition Plans are required for all parks or programs that receive or are likely to receive donations. 

Apostle Islands National Lakeshore (APIS) its authorized nonprofit partners 

(authorized partners), the Friends of the Apostle Islands National Lakeshore 

(Friends)13 and the National Parks of Lake Superior Foundation (NPLSF)14 , 

regularly receive offers of donations and desire to accept donations and appropriately recognize donors for their support of the mission of APIS, Friends, 

and NPLSF. Due to the collaborative nature under which the park and its 

authorized partners operate, this Donor Recognition Plan (Plan), which is 

consistent with DO-21, was developed cooperatively and will be used by both 

APIS and its authorized partners. Changes to the Plan will be made, whenever 

possible, with the full participation and agreement of the authorized partners. These guidelines balance the need to express appropriate and equitable 

acknowledgement of donors with the need to protect the values and purposes 

of the National Park Service (NPS).

 13Authorized by General and Fundraising Agreement Number G6140-05-0033, through 12/03/2009.

 14A General and Fundraising Agreement with Apostle Islands National Lakeshore, Grand Portage 

National Monument, Isle Royale National Park, and Pictured Rocks National Lakeshore is under 

development. NPLSF will be an authorized partner when said agreement is signed., and has agreed to 

abide by the terms of DO-21 and this Donor Recognition Plan as if it is an authorized partner in the 

interim.

Apostle Islands National Lakeshore Donor Recognition Plan
National Park Service — Making Friends Handbook 103

The financial needs of APIS and its authorized partners are diverse and 

include, but are not limited to, the desire for donations in the categories of 

capital, operations, endowment, property (real and personal), and programming, as well as special event/program sponsors. For the purposes of this 

Plan, the term donation includes cash and non-cash gifts and refers to something of value received from an outside source without consideration or an 

exchange of value. Funds or other items received as a result of a competitively 

awarded grant from a foundation are also covered by the term donation. 

Grants that are governmental in nature are not included in the scope of this 

plan. A sponsor is a donor who provides a substantial portion of the funding 

for an authorized event or program. Event sponsors typically receive publicity 

such as banners and signs at the event as well as prominent mention in printed 

materials and event advertisements. Recognition of special event sponsors is 

specifically discussed in this Plan.

Because this Plan is an extension of DO-21, there are several references to 

particular sections of that document. The reader of this Plan should also be 

knowledgeable of the contents of DO-21.

This plan will be reviewed each year and updated as necessary.

Donor/Donation Review, Approval, and Acceptance

While the support received through donations can be very important to the 

successful accomplishment of aspects of the NPS mission, donations must be 

made in a legally and ethically appropriate manner. When accepting a 

donation, it is important that APIS and its authorized partners weigh the 

totality of the circumstances surrounding the potential donation. In other 

words, the acceptance of the donation must 1) maintain the integrity of NPS 

and the Department of the Interior’s (DOI) programs and operations; 2) 

maintain the impartiality, as well as the appearance of impartiality, of NPS and 

DOI, and of NPS and DOI employees; and 3) maintain public confidence in 

the NPS, DOI, and their programs and employees. 

Since Friends and NPLSF are the authorized fundraising partners of APIS, donors will often make a donation to Friends or NPLSF, which is subsequently 

donated to APIS. APIS recognizes that it has no authority to directly regulate 

the fundraising or donation activities of Friends or NPLSF. Nevertheless, 

where fundraising is conducted in the name of, or for the benefit of, APIS or 

the NPS, it is imperative that the integrity of the NPS/APIS mission and its 

donors be maintained. Violating this integrity could be cause for the NPS to 

terminate its relationship with an authorized partner.
National Park Service — Making Friends Handbook 104 

Before accepting a donation, APIS and its authorized partners will refer to the 

specific “Donations” guidance outlined in DO-21 (Section 6.0 – 6.1.4). On 

a project-specific basis, additional fund-raising documents will be prepared 

when required. APIS and its authorized partners reserve the right to decline 

any gift for any reason.

APIS will not accept any donation, even from Friends or NPLSF, that in the 

judgment of the park Superintendent, violates or appears to violate, the 

specific ethics and integrity provisions of DO-21 or the ethics and integrity 

provisions of federal law, regulation, or policy. No donation will be accepted 

from the park concessionaire, any company or organization under a 

Commercial Use Authorization, or any current Use and Occupancy holder 

unless there is a clear, unambiguous, written disclaimer from the donor that 

no consideration will be expected or accepted by the donor, and APIS and its 

authorized partner (as appropriate) weigh the likelihood, as well as the 

perception, of conflict-of-interest and determine them to be of no 

significance.

Thank You Letters

All donations accepted on behalf of APIS or its authorized partners will be 

acknowledged in writing by the respective recipient; for APIS, the Superintendent; and for Friends and NPLSF, the Chairs or their designees. Friends 

and NPLSF will notify the Superintendent of any donations with a value of 

$1000 or more. Most contributions to one of the authorized partners are 

commingled with other funds and lose their identity when conveyed to APIS 

and therefore will not normally receive an additional thank you letter from the 

Superintendent. On occasion, however, funds received and acknowledged by 

one of the park’s authorized partners are earmarked, (i.e. held distinct from 

other donated or operating funds) due to the conditions on the donation or 

some other factor. When earmarked donations are conveyed to APIS from 

one of its authorized partners, the Superintendent will acknowledge the gift 

made through the partner in writing to the donor directly, with a copy to the 

Chair of the partner organization. The only exception will be in circumstances where the donor requests anonymity.

Acknowledgement letters from the Superintendent will normally be drafted by 

the park program manager responsible for the program the donation will support. These letters should be written as soon as possible after the donation is 

received. The letter should identify the type of donation (if cash, the amount), 

reiterate any conditions of the donation which the park agrees to, and thank 

the donor. 

Donor Recognition
National Park Service — Making Friends Handbook 105

Additional Types of Recognition 

In addition to thank you letters, APIS and/or its authorized partners may 

choose to recognize a donor through press releases, media photo opportunities, mementos, certificates, an article or listing in either the APIS or authorized partner’s newsletter, annual report, or website, and/or event recognition, 

as appropriate, subject to donor approval. Partners may also provide premiums in recognition of donations above certain thresholds. In some cases, 

certain types of recognition are a condition of APIS or Friends and NPLSF 

receiving a donation. In those cases, appropriate recognition will take place 

through one or more of the options listed below.

Donor Recognition Board

APIS and its authorized partners believe it is fitting and appropriate that there 

be a single location in the park where generous donors are publicly recognized in a systematic and on-going manner. This will serve as both a tangible 

and visible record of philanthropic support for the park, and an expression of 

APIS, Friends, and NPLSF appreciation for such support.

A Donor Recognition Board or equivalent display will be established and 

located in one of the foyers of the park’s Visitor Center on the mainland, since 

it is the primary visitor point of contact. Approved donor recognition may 

include the donor name, the year, and when appropriate, the type of project 

donation. Corporate name scripts and logos will not be used on the Donor Recognition Board. Anonymity will be respected and only those donors wishing to 

be recognized will be acknowledged.

The Donor Recognition Board will utilize a format that allows recognition of 

donors by the placement of name plates or other markers that can be added 

or removed with relative ease, or the simple redesign and replacement of the 

entire display on an as-needed basis.

Some donor recognition displays emphasize the amount of a donor’s contribution, or display the names of more generous donors in larger type or for a 

longer period of time. All donations are truly important to Apostle Islands 

National Lakeshore, however. Even while we are acknowledging our appreciation for donations, it is important to preserve the integrity and impartiality of 

the public trust. Hence the APIS Donor Recognition Board will be designed 

to thank all donors above a threshold ($500 in cash or equivalent value) 

equally, and normally for a one year period in the year following the donation. 

This threshold will be reviewed and revised as needed. The Donor Recognition Board may be combined with a Volunteer Recognition Board.

Other types of recognition may be added to the Donor Recognition Board at 

the discretion of the Superintendent as the need arises to acknowledge major 

financial contributions to the park (e.g. endowments, lifetime gifts, planned 

gifts, bequests. etc.).
National Park Service — Making Friends Handbook 106 

Bulletin Boards and Interpretive Signs

When a significant donation is received that supports a park program in the 

field, the Superintendent may authorize the acknowledgement of the donation 

on a park bulletin board (for a short term program) or a park interpretive sign 

(for a long-term or permanent enhancement to the park or its programs). See 

section on Credit Lines for additional guidance. For example: in recognition 

of the donation of funding to support a ranger at Meyers Beach, the following 

message was posted on the Meyers Beach Bulletin Board.

Memorials

A donation given “in memory of” or “in honor of” an individual(s) will be 

recognized in the same way as other contributions. Memorial plaques, headstones, or monuments will not be placed in the park except as authorized by 

Chapter 9.6 of NPS Management Policies 2006.

The Friends of the Apostle Islands National Lakeshore... 

was created to help promote an appreciation for and to help preserve the cultural 

and natural heritage of the Apostle Islands. 

Their goals include:

	 • Connect people with the history, beauty, and adventure of the Apostle	 	

 Islands National Lakeshore.

	 • Increase community involvement with the islands.

	 • Support the educational, recreational, and resource protection efforts of 		

 the National Park Service.

	 • Raise funds to support park projects and events.

Funds raised by the “Friends” cover the costs of a park ranger and a Student 

Conservation Association intern stationed at Meyers Beach in summer 2006. 

The National Park Service gratefully acknowledges this gift.
National Park Service — Making Friends Handbook 107

 

Benches, Trees, or Other Plantings

At the discretion of the Superintendent and consistent with park needs, donations of benches, trees, or other plantings may be accepted. APIS will determine the most appropriate location for these items, which will generally be 

placed in developed areas of the park (and never, for benches, in designated 

wilderness) unless the donation is to support the park’s ecological restoration 

efforts in the backcountry. Recognition for a donated bench, tree, or planting 

will occur at the Donor Recognition Board in the park Visitor Center, or on a 

park Bulletin Board near the donated item, not on the item itself, subject to the 

guidelines noted elsewhere in this plan.

Site-Specific Donor Recognition For Approved Capital Projects

In addition to being recognized on the Donor Recognition Board, it is possible 

that some donors may be recognized in other ways at the site of the capital 

project.

Long-term recognition: Recognition of capital contributions for preservation, 

rehabilitation, or construction of park buildings/structures or sites may be 

provided by donor recognition plaques or on-site donor boards, when circumstances warrant, as determined by the Superintendent. Generally, it will 

be desirable to focus donor recognition for capital projects at the Donor Recognition Board in the Visitor Center. However, when on-site recognition is a 

key factor in successful project accomplishment and after careful review the 

Superintendent determines that the additional recognition is appropriate and 

consistent with NPS policy and DO-21, donors may be acknowledged both at 

the project location and the Donor Recognition Board. The duration and kind 

of on-site donor recognition (i.e. displaying a recognition plaque stating that 

the work done on the building was “made possible through a generous donation from XYZ”) will be considered on a case-by-case basis and will be agreed 

to in writing in advance of the donation. Plaques or other donor recognition 

treatment will not be affixed to the historic fabric of cultural resources, placed 

in natural zones, or otherwise be placed where they would intrude on the 

character of the area. 

Short-term recognition: During project fundraising, construction, and for a 

limited time following project completion, temporary, on-site, signs may be 

used by APIS and its authorized partners (subject to APIS approval) to recognize donors involved in specific capital improvement or rehabilitation projects. 

APIS, Friends, or NPLSF will be responsible for creating the temporary sign, 

which will be attractively done, describe the project, acknowledge donors, and 

not intrude on the visitor experience. Donor name scripts and business logos 

may be included as part of the recognition provided they amount to short, 

discrete, unobtrusive donor credit lines at the end of the information on the 

sign. The level of donation required for temporary, on-site recognition will be 

determined on a case-by-case basis, depending on the total cost and duration 

of the project. 
National Park Service — Making Friends Handbook 108 

Credit Lines, Logos, and Name Script

Brochure or other printed material: A donor name script or logo may be included as part of the recognition provided it amounts to a short, discrete, unobtrusive donor credit line at the end of the material. For example, the credit 

line on a park brochure may state: “This brochure was made possible through 

the contribution of <logo, name script, or name>”. 

Electronic material (video, film, etc.): The donor recognition may appear 

either at the beginning of the presentation or at the end. However, the use of 

digital on-screen graphics or “bugs” are not permissible forms of donor recognition. In the case of computerized information kiosks or other electronic displays to be placed in visitor service areas, the credit line containing the donor 

name script or logo may appear either at the beginning of the presentation or 

at the end. The recognition may not appear on the kiosk casing itself. 

Physical items that remain in the park: Except as noted elsewhere, donor 

recognition will not normally be permitted on other donated or donor funded 

items, interpretive waysides, recreation equipment, and other items that remain in the park. 

Boats, motor vehicles, clothing, or equipment: No donor recognition will be 

allowed on any of these items used by the NPS or its employees in the performance of their duties.

Advertising and marketing slogans and tag lines: These may not appear under 

any circumstances.

Special Events in Apostle Islands National Lakeshore

The primary guidance for holding special events (or “special park uses”) is 

found in Director’s Order 53 on Special Park Uses and in Special Directive 

95-11. Director’s Order 21 applies to NPS donor or partner recognition at 

such events. 

Special events fall into two categories; non-NPS events allowed under special park use permit, and events wholly or partially sponsored by the NPS. 

In either case, the Superintendent will not allow recognition that suggests commercialization of APIS. However, the Superintendent may recognize business 

sponsors by limited use of logos and name script on event facilities, signs and 

literature at such special events provided that the size, scale, scope and location of business logos and name script does not dominate the event facilities 

or area. Events may not be “named” for sponsoring business entities, as in 

“XYZ Corp. Heritage Festival”.
National Park Service — Making Friends Handbook 109

NPS Sponsored and Co-sponsored Events 

For officially-sponsored NPS events, the name of the event must predominate. At these events, the NPS may provide appropriate recognition provided 

that business names are not used in any way that would imply or suggest NPS 

endorsement of a product or company, or be construed as commercial solicitation or advertising. The purpose of such recognition is to acknowledge the 

sponsor. To ensure against the appearance of endorsement, pre-event written 

agreements must spell out the responsibilities of the parties and any conditions 

on the offering or acceptance of the gift and should include provisions specifying the amount, type, and size of sponsor recognition signs. These provisions 

may be included in a special park use permit, an exchange of letters, or other 

written documentation. 

On-site notices (e.g. banners) must be appropriate to the character and scale 

of the event. Such notices may be displayed for a period of time in advance 

of the event to encourage public attendance. Banners must not have text such 

as “XYZ Company Clean Up the Park Day” or “Clean Up the Park Day Sponsored by XYZ Company.”

Sponsors may be permitted to establish a temporary hospitality area for sponsored special events. 

Distribution of free product or sample products is permitted at events cosponsored by NPS only if the item directly relates to the purpose of the event 

(e.g. plastic bags for a clean-up day) or is consumable at the event. The items 

may be imprinted with the name of the event and recognize sponsors by name 

(using name script if desired), logo and website address. 

Non-NPS Events

Guidance on this topic is found in Director’s Order 53 on Special Park Uses. 

It is worth repeating a salient directive here from DO-53: The National Park 

Service will not permit the public staging of special events that are conducted 

primarily for the material or financial benefit of the organizers or participants, 

or which involve commercialization or in-park advertising or publicity. Notices 

on temporary displays directly associated with the event containing sponsors’ 

names, logos, or name script may be placed in close proximity to the event in 

both time and location. Banners must not have text such as “XYZ Company 

Clean Up the Park Day” or “Clean Up the Park Day Sponsored by XYZ Company” or in any way imply NPS involvement or endorsement of the event.

Distribution of free products or sample products to park visitors or others is 

not permitted at non-NPS events. 
National Park Service — Making Friends Handbook 110 

Naming of Park Features or Facilities

The naming of natural or cultural features, park facilities, recreational resources, or rooms will not be used to recognize monetary contributions or other 

donations to APIS, Friends and NPLSF, or the NPS. (See 36 CFR §2.62 (Memorialization) and NPS Management Policies 9.6.) 

Special Consideration

Donors will not receive special consideration regarding any law, regulation, or 

policy affecting public use of the park. This includes application for Special 

Use Permits, and the prohibitions and limitations on in-park advertising.

Endorsement 

Acceptance of private support by APIS or Friends or NPLSF is not and should 

not be interpreted as an endorsement of that donor, or any product or programs associated with that donor. Federal employees are prohibited from 

using or permitting the use of their position, title, or authority to endorse any 

service, product, or enterprise. This prohibition does not prevent APIS or its 

authorized partners from acknowledging the assistance provided by a donor 

and how that assistance has benefited the park. 

Use of the NPS Arrowhead or Images of NPS Staff in Uniform by the Donor

These uses are strictly regulated by federal law, regulation, and NPS policy. 

See 36 CFR11 

(http://www.access.gpo.gov/nara/cfr/waisidx_04/36cfr11_04.html) and DO-52D 

(http://www.nps.gov/policy/DOrders/52D--60-day.htm) for additional guidance.

Prohibited Recognition
National Park Service — Making Friends Handbook 111

The National Park Service (NPS) recognizes private philanthropy as both a 

noble tradition of the national parks and as a vital element of the Service’s 

success. Donations come to the NPS from individuals, organizations, foundations, corporations, businesses, and other entities, purely as expressions of 

support, in response to the donor’s awareness of needs, or as a result of an 

organized fundraising campaign by others. These funds and in-kind contributions enhance the NPS's ability to carry out its programs and activities. The 

NPS appreciates the generosity of those who donate directly, and those who 

work through authorized nonprofit organizations and other authorized individuals or entities to raise funds for the benefit of the National Park System or 

the programs of the National Park Service.

The Director of the NPS issues policies that serve as the framework for NPS 

employees' conduct in relation to donation activities and fundraising campaigns which benefit the NPS. These policies can be found in Director’s Order 

21 (DO-21): Donations and Fundraising. Donor Recognition Plans are required for all parks or programs that receive or are likely to receive donations. 

Homestead National Monument of America (HOME) and its 501(c)3 partner, 

Friends of Homestead National Monument of America (FRIENDS), regularly 

receive offers of donations and desire to accept donations and appropriately 

recognize donors for their support of the mission of HOME and FRIENDS. 

Due to the seamless nature under which the park and its partner operate, this 

Donor Recognition Plan (Plan), which is consistent with DO-21, was developed jointly and will be used by both HOME and FRIENDS. These guidelines 

balance the need to express appropriate and equitable acknowledgement of 

donors with the need to protect the values and purposes of the National Park 

Service (NPS).

The financial needs of HOME and FRIENDS are diverse and include, but are 

not limited to, the desire for donations in the categories of capital, operations, 

endowment, property (real and personal), and programming, as well as special 

event/program sponsors. For the purposes of this Plan, the term “donation” 

includes “gifts” and refers to something of value received from an outside 

source without consideration or an exchange of value. Funds or other items 

received as a result of a competitively awarded grant from a foundation are also 

covered by the term “donation”. Grants that are governmental in nature are 

not included in the scope of this plan. A “sponsor” is a donor who provides 

a substantial portion of the funding for an event or program. Event sponsors 

typically receive publicity such as banners and signs at the event as well as 

prominent mention in printed materials and event advertisements. 

Recognition of special event sponsors is in Section III.F of the Plan.

Homestead National Monument of America Donor Recognition Plan
National Park Service — Making Friends Handbook 112 

Because this Plan is an extension of DO-21, there are several references to 

particular sections of that document. The reader of this Plan should also be 

knowledgeable of the contents of DO-21.

This plan will be reviewed each year and updated as necessary.

The support received through donations is very important to the successful 

accomplishment of the NPS mission, but donations must be made in a legally 

and ethically appropriate manner. When accepting a donation, it is important 

that HOME or FRIENDS weigh the totality of the circumstances surrounding 

the potential donation. In other words, the acceptance of the donation must 

1) maintain the integrity of NPS and the Department of the Interior’s (DOI) 

programs and operations; 2) maintain the impartiality, as well as the appearance of impartiality, of NPS and DOI, and of NPS and DOI employees; and 3) 

maintain public confidence in the NPS, DOI, and their programs and employees. 

Since FRIENDS is the authorized fundraising partner of HOME, donors 

will often make a donation to FRIENDS, which is subsequently donated to 

HOME. HOME recognizes that it has no authority to directly regulate the 

fundraising or donation activities of FRIENDS. Nevertheless, where fundraising is conducted in the name of, or for the benefit of HOME, it is imperative 

that the integrity of the NPS/HOME mission and its donors be maintained. 

Before accepting a donation, HOME and FRIENDS will refer to the specific 

“Donations” guidance outlined in DO-21 (Section 6.0 – 6.1.4). On a projectspecific basis, additional fund-raising documents will be prepared when 

required. HOME reserves the right to decline any gift for any reason.

A. Thank You Letters

All donations accepted on behalf of HOME or FRIENDS will be acknowledged in writing by the respective recipient; for HOME, the Superintendent; 

and for FRIENDS, the President. FRIENDS will notify the Superintendent 

of any donations with a value of $2,500 or more, and the Superintendent will 

acknowledge the donor’s gift in writing, except where anonymity is requested. 

The Superintendent’s acknowledgement should identify the type of donation 

(if cash, the amount), reiterate any conditions of the donation, and thank the 

donor. 

B. Additional Types of Recognition

In addition to thank you letters, HOME and/or FRIENDS may choose to 

recognize a donor through a variety of ways including press releases, media 

photo opportunities, mementos, certificates, premiums, listing in FRIENDS’ 

newsletter, annual report, or website, and/or event recognition, as appropriate, 

I. Donor/Donation Review, Approval, and Acceptance

II. Donor Recognition
National Park Service — Making Friends Handbook 113

subject to donor approval. Donors’ names will be added to HOME’s mailing 

list. In some cases, certain types of recognition are a condition of HOME or 

FRIENDS receiving a donation. In those cases, appropriate recognition will 

take place through one or more of the options listed below.

C. Acknowledgement on Donor Recognition Plaque

HOME and FRIENDS believe it is fitting and appropriate that there be a single 

location in the park where donors are publicly recognized in a systematic and 

on-going manner. This will serve as both a tangible and visible record of philanthropic support for the park, and an expression of HOME’s and FRIENDS’ 

appreciation for such support.

A Donor Recognition Plaque will be located in either of the foyers of the 

Heritage Center, since it is the primary visitor point of contact. Donor approved recognition may include the donor name and when appropriate, the 

type of project donation. Corporate name scripts and logos will not be used on 

the Donor Recognition Plaque. Anonymity will be respected and only those 

donors wishing to be recognized will be acknowledged with a nameplate. An 

anonymous plate will be included on the plaque and updated annually. Accumulating totals can move donors to higher levels. Donors over $100,000 

can be recognized with an additional appropriate plaque located at either the 

Heritage Center foyers or Education Center. Donor recognition for projects at 

the Freeman School will also be identified in the school’s history book

Monetary contributions or other contributions which can be expressed as 

having direct monetary value will be recognized as follows:

1. Contributions

Amount of Donation 

Hand Power – $100 - $499

Horse Power – $500 - $999

Steam Power – $1,000 - $4,999 

Gas/Diesel – $5,000 - $49,999 

Electric – $50,000 - $99,999

Power of the Future – $100,000+

These categories, relating to power, will promote the industrial theme associated with the homestead story.
National Park Service — Making Friends Handbook 114 

2. Memorials

A cash donation given “in memory of” or “in honor of” an 

individual(s) will be recognized in the same way as contributions.

3. Benches/Trees/Plantings

At the discretion of the Superintendent and consistent with park

needs, donations of benches, trees, or other plantings may be 

accepted. HOME will determine the most appropriate location for

these items. Recognition for a donated bench, tree, or planting will

occur on the Donor Recognition Plaque, not on the item itself, 

subject to the guidelines noted in Section II.C.1 – Contributions

D. Site-Specific Donor Recognition for Capital Projects

In addition to being recognized on the plaque, it is possible that some donors 

may be recognized in other ways at the site of the capital project.

Longer-term recognition: Recognition of capital contributions for preservation, rehabilitation, or construction of park buildings/structures or sites may 

be provided by donor recognition plaques or on-site donor boards, when 

circumstances warrant, as determined by the Superintendent of HOME. 

Generally, it will be desirable to focus donor recognition for capital projects 

on the plaque. However, when on-site recognition is a key factor in successful 

project accomplishment, recognition of donors may be appropriate near the 

project location and on the plaque. The duration and kind of on-site donor 

recognition (i.e. displaying a recognition plaque stating that the work done on 

the building was “made possible through a generous donation from XYZ”) 

will be considered on a case-by-case basis and will be agreed to in writing in 

advance of the donation.

Short-term recognition: During project fundraising, construction, and for 

a limited time following project completion, temporary, on-site, signs may 

be used by HOME and FRIENDS to recognize donors involved in specific 

capital improvement/rehabilitation projects. HOME and/or FRIENDS will be 

responsible for creating the temporary sign, which will be professionally done, 

describe the project, acknowledge donors, and not intrude on the visitor 

experience. Donor name script and business logos may be included as part 

of the recognition provided it amounts to a short, discrete, unobtrusive donor 

credit line at the end of the information on the sign. The level of donation 

required for temporary, on-site recognition will be determined on a case-bycase basis, depending on the total cost and duration of the project. 
National Park Service — Making Friends Handbook 115

E. Credit Lines, Logos, and Name Script

l Brochure or other printed material: Donor name script or logo may

 be included as part of the recognition provided it amounts to a short, 

 discrete, unobtrusive donor credit line at the end of the material. 

 For example, the credit line on a park brochure may state: “This 

 brochure was made possible through the contribution of 

 <logo, name script, or name>”. 

l Electronic material (video, film, etc.): The donor recognition may 

 appear either at the beginning of the presentation or at the end. 

 However, the use of digital on-screen graphics or “bugs” are not 

 permissible forms of donor recognition. In the case of computerized 

 information kiosks or other electronic displays to be placed in visitor

 service areas, the credit line containing the donor name script or

 logo may appear either at the beginning of the presentation or at the

 end. The recognition may not appear on the kiosk casing itself. 

l Physical items that remain in the park: Recognition for all other 

 donated or donor funded items, interpretive waysides, recreation

 equipment, and other items that remain in the park, may include a

 short, discrete, unobtrusive credit line using the donor’s name, but

 not name script or logo.

l Vehicles: No recognition will be allowed on motor vehicles. 

 Advertising and marketing slogans and tag lines may not appear

 under any circumstances.

F. Special Events at Homestead National Monument of America

The primary guidance for holding special events (or “special park uses”) is 

found in Director’s Order 53 on Special Park Uses and in Special Directive 

95-11. Director’s Order 21 applies to NPS donor or partner recognition at 

such events. 

Special events fall into two categories; non-NPS events allowed under special park use permit, and events wholly or partially sponsored by the NPS. In 

either case, the Superintendent may not allow recognition that suggests commercialization of HOME. However, the Superintendent may recognize business sponsors by limited use of logos and name script on event facilities, signs 
National Park Service — Making Friends Handbook 116 

and literature at all such special events provided that the size, scale, scope and 

location of business logos and name script does not dominate the event facilities or area. Events may not be “named” for sponsoring business entities, as in 

“XYZ Corp. Heritage Festival”.

1. NPS Sponsored and Co-sponsored Events

 For officially-sponsored NPS events, the name of the event must 

 predominate. At these events, the NPS may provide appropriate 

 recognition provided that business names are not used in any way 

 that would imply or suggest NPS endorsement of a product or 

 company, or be construed as commercial solicitation or advertising. 

 The purpose of such recognition is to acknowledge the sponsor. 

On-site notices (e.g. banners) must be appropriate to the character and scale of 

the event. Such notices may be displayed for a period of time in advance of the 

event to encourage public attendance. Sponsors may be permitted to establish 

a temporary hospitality area for sponsored special events. 

Distribution of free product or sample products is permitted at events cosponsored by NPS only if the item directly relates to the purpose of the event 

(e.g. plastic bags for a clean-up day) or is consumable at the event. The items 

may be imprinted with the name of the event and recognize sponsors by name 

(using name script if desired), logo and website address. 

2. Non-NPS Events 

 Guidance on this topic is found in Director’s Order 53 on Special 

 Park Uses. Notices on temporary displays directly associated with 

 the event containing sponsors’ names, logos, or name script may 

 be placed in close proximity to the event in both time and location. 

 Distribution of free products or sample products to park visitors is 

 not permitted at non-NPS events. 
National Park Service — Making Friends Handbook 117

A. Naming of Public Facilities

The naming of features or park facilities will not be used to recognize monetary contributions or other donations to HOME, FRIENDS, or the NPS. 

(See 36 CFR §2.62 (Memorialization) and NPS Management Policies 9.6.) 

B. Special Considerations 

Donors will not receive special consideration regarding any law, regulation, or 

policy affecting public use of the park. This includes application for Special 

Use Permits, and the prohibitions and limitations on in-park advertising.

C. Endorsement 

Acceptance of private support by HOME or FRIENDS is not and should not 

be interpreted as an endorsement of that donor, or any product or programs 

associated with that donor. Federal employees are prohibited from using 

or permitting the use of their position, title, or authority to endorse any service, product, or enterprise. This prohibition does not prevent HOME and 

FRIENDS from acknowledging the assistance provided by a donor and how 

that assistance has benefited the park. 

D. Natural, cultural, and recreational resources (trees, buildings, trails, etc.)

Natural, cultural, and recreational resources of any kind will not be named for 

or in honor of an individual, organization, or business.

Corporate support is part of the long tradition of philanthropy and shared 

stewardship of the National Park System as well as individual parks. HOME 

and FRIENDS welcome and encourage corporate America’s continued support of the HOME and FRIENDS missions. HOME and FRIENDS will 

follow the requirements pertaining to acceptance and recognition of corporate 

donations as in Section 7 of DO-21.

Homestead National Monument of America Friends of Homestead National 

Monument

_________________________ ____________________________________

Mark Engler . Laureen Riedesel

Superintendent President

IV. Corporate Support of National Parks

III. Prohibited Recognition

V. Signatures
National Park Service — Making Friends Handbook 118 

Appendix E — Resources

NPS Partnership Homepage provides comprehensive information related to 

managing effective relationships with primary partners. 

http://www.nps.gov/partnerships/index.htm

Authorities

Information on the laws, regulations and policies for the National Park Service 

can be found at the following site http://data2.itc.nps.gov/npspolicy/ 

Management Policies and Director’s Orders

NPS Management Policies sets out the basic policies for the management of 

the national park system. http://www.nps.gov/policy/MP2006.pdf

DO #21 is available at

http://www.nps.gov/policy/DOrders/DO21-reissue.pdf

The Reference Guide to Director’s Order #21 — Donations and Fundraising can 

be found at http://www.nps.gov/policy/DOrders/DO21-ReferenceGuide.html

Agreements

Agreements Handbook including DO #20 provides additional guidance on 

other kinds of agreements that may be used to implement aspects of 

partnerships. http://www.nps.gov/hfc/acquisition/agreements.htm

Rivers, Trails, and Conservation Assistance Program, also known as the Rivers & Trails Program or RTCA, is a community resource of the National Park 

Service. Rivers & Trails staff work with community groups and local and State 

governments to conserve rivers, preserve open space, and develop trails and 

greenways. http://www.nps.gov/rtca/

Community Toolbox — Consensus Building is a collection of techniques for 

public participation that communities can use to get organized, to turn their 

vision into reality, to work together to improve their special places.

http://www.nps.gov/phso/rtcatoolbox/index_comtoolbox.htm

Department of the Interior Departmental Manual

Donation Guidelines (374 DM 6) 

http://elips.doi.gov/app_dm/act_getfiles.cfm?relnum=3692

Ethics Issues in Partnerships can be found at

http://www.doi.gov/partnerships/ethics

Partnership Legal Primer introduces federal law and ethical considerations 

affecting partnerships. It can be found on the Department of the Interior’s 

Partnership web page 

http://www.doi.gov/partnerships/partnership_legal_framework.html

NPS Web Pages
National Park Service — Making Friends Handbook 119

Friends Group Directory provides contact information for these groups, 

identifies the parks they support and the NPS region in which they are located 

http://data2int.itc.nps.gov/partnerships/friends_groups_directory.cfm

NPS VIP Program - http://www.nps.gov/volunteer

The NPS Identity Program was created in response to the NPS Message 

Project. http://www.nps.gov/hfc/products/message-project.htm

Director’s Order #70 on Internet and Intranet Publishing

establishes NPS policy on the development of NPS websites 

http://inside.nps.gov/helpdesk/manual.htm

Special Directive 93-07: Use of the Arrowhead Symbol 

http://www.graphics.nps.gov/arrowheads.htm 

Draft Director’s Order #52D: Use of the Arrowhead Symbol 

http://www.nps.gov/hfc/products/pubs/directive-93-07.html

Army Corps of Engineers 

The Natural Resources Management Partnership Page maintained by the 

Natural Resources Management Branch of the Army Corps of Engineers 

explores potential concepts for public-private partnerships in recreation and 

natural resources management. The purpose of this site is to clarify and define 

the responsibilities and legal restrictions pertaining to working with a wide 

range of partners for recreation and natural resources management. It will also 

help users to identify potential forms of public-private partnerships and to understand the differences between the various authorities. This will assist users 

in determining which authority to use for a particular situation.

http://corpslakes.usace.army.mil/partners/partners.html

U.S. Fish & Wildlife Service 

Partners for Fish and Wildlife Program is a voluntary partnership program 

that helps private landowners restore wetlands and other important fish and 

wildlife habitats on their own lands. 

http://ecos.fws.gov/partners/viewContent.do?viewPage=home

The Refuge Support Groups consist of private citizens who form grassroots 

nonprofit organizations which provide volunteer and financial support to 

their local National Wildlife Refuge or service facility. The website provides 

information on the Refuge Support Groups program, cooperating agencies, 

resources, publications, training, and grants.

http://www.fws.gov/friends/home/frontpg-blue-600.asp

Federal Partnership Sites 
National Park Service — Making Friends Handbook 120 

Bureau of Land Management

The Bureau of Land Management's partnership website: Provides BLM, its 

partners, and the public information and tools to foster the understanding and 

skills necessary for successful, collaborative partnership with communities.

http://www.blm.gov/partnerships/

US Forest Service

The United States Forest Service's Partnership Resource Center: Website has 

a comprehensive list of available training in partnership competencies and 

numerous links to training opportunities.

http://www.partnershipresourcecenter.org/

http://www.partnershipresourcecenter.org/resources/publications/index.php

National Park Foundation (NPF) was chartered by Congress in 1967 to raise 

private support for National Parks, and to further the conservation of natural, 

scenic, historic, scientific, educational, inspirational, or recreational resources 

for future generations of Americans. http://www.nationalparks.org/Home.asp

Association of Partners for Public Lands, through education, information, and 

representation, enhances the potential of its members — the cooperating and 

interpretive associations and friends groups — to provide the highest levels of 

program and service to public agencies entrusted with the care of America's 

natural and cultural heritage. Training available in “Fundraising Basics and 

Obtaining Grants to Meet Your Needs. http://www.appl.org/

Guide to Nonprofit Charitable Organizations a compilation of web resources 

and articles on nonprofits, fundraising, and related issues by Joanne Fritz. 

Visit http://nonprofit.about.com/.

Earth Share

A nationwide network of America's leading nonprofit environmental and 

conservation organizations, works to promote environmental education and 

charitable giving through workplace giving campaigns. 

Visit http://www.earthshare.org/.

Partner Organizations

Non Profits
National Park Service — Making Friends Handbook 121

Panel on the Nonprofit Sector is an independent effort by charities and foundations to ensure that the nonprofit community remains a vibrant and healthy 

part of American society. A current publication available is “Principles for 

Good Governance and Ethical Practice: A Guide for Charities and Foundations”2007. http://www.nonprofitpanel.org

The Nonprofit Online Resource provides fundraising resources, nonprofit 

marketing advice, a dictionary of nonprofit terms, and tips on graphics. If you 

register your nonprofit, you have access to “virtual interactive consultant.” 

Visit: http://www.findit.org/html/fund_raising.html.

GuideStar’s mission is to revolutionize philanthropy and nonprofit practice by 

providing information that advances transparency, enables users to make better decisions, and encourages charitable giving. Search GuideStar’s database 

of more than 850,000 IRS-recognized nonprofit organizations for details of 

grant-makers through their posted 990. Visit http://www.guidestar.org.

Innovation Network, Inc. (InnoNet) is a nonprofit organization working to 

share planning and evaluation tools and know-how. They provide consulting, 

training, and online tools for nonprofits and funders. 

Visit http://www.innonet.org/. 

The Management Assistance Program for Nonprofits (MAP for nonprofits) 

MAP for Nonprofits provides management consulting and services, as well as 

board recruitment and training, to large, medium and small nonprofit organizations in the Twin Cities and beyond, helping nonprofit clients to more effectively achieve their missions. Its Free Management Library includes original 

material, and provides links to nonprofit resources on the Internet. It is a free 

community resource intended for users across the world. 

Visit http://mapnp.nonprofitoffice.com/. 

Minnesota Council on Nonprofits Management Resources (MCN)

Through it website, MCN offers resource publications, workshops and events, 

cost-saving programs and advocacy. MCN continually works to inform, 

promote, connect and strengthen individual nonprofits and the nonprofit 

sector. Visit http://www.mncn.org/.

University of Wisconsin Extension, Learning Institute for Nonprofit 

Organizations (UWEX)

A nonprofit management education center, UWEX provides a compilation 

of resources arranged by categories that include Board Development/Governance, Foundation Information, Fundraising and Grant Writing, Giving/

Philanthropy, Strategic Planning/Program planning etc. 

Visit http://www.uwex.edu/li/learner/sites.htm.
National Park Service — Making Friends Handbook 122 

The National Association of State Charity Officials (NASCO)

An association of state offices charged with oversight of charitable organizations in the United States. Since the requirements and procedures for forming 

charitable organizations differ from state to state, as do the registration and filing requirements for organizations that conduct charitable activities or solicit 

charitable contributions, the site contains links to state-specific information. 

Visit http://www.nasconet.org/. 

Nonprofit Resource Center

A one-stop directory for internet resources of interest and value to nonprofit 

organizations. The site is designed for managers, board members and volunteers of nonprofit and tax-exempt organizations, as well as people who are 

considering starting a nonprofit organization. A law firm, whose sole business 

is low-cost incorporations of nonprofit organizations, is provided as a service 

of nonprofit incorporators. Visit http://not-for-profit.org/index.html. 

Nonprofit Times

The leading business publication for nonprofit management, Nonprofit Time’s 

website provides a collection of links as selected articles from current and 

back issues of the publication. 

Visit http://www.nptimes.com/. 

TechSoup

Created by CompuMentor, a San Francisco charity, TechSoup a one stop 

resource for nonprofits’ technology needs. It provides free information, 

resources, and support. In addition to online information and resources, they 

offer a product philanthropy service called TechSoup Stock where nonprofit 

can access donated and discounted technology products. 

Visit http://www.techsoup.org/. 

Unified Registration Statement, The Multi-State Filer Project

The Unified Registration Statement represents an effort to consolidate the 

information and data requirements of all states that require registration of 

nonprofit organizations performing charitable solicitations within their jurisdictions. The effort is organized by the National Association of State Charities 

Officials and the National Association of Attorneys General, and is one part of 

the Standardized Reporting Project, whose aim is to standardize, simplify, and 

economize compliance under the states' solicitation laws. 

Visit www.multistatefiling.org. 
National Park Service — Making Friends Handbook 123

The American Institute of Philanthropy (AIP) is a nationally prominent charity 

watchdog service whose purpose is to help donors make informed giving decisions. Visit http://www.charitywatch.org.

Association of Fundraising Professionals (AFP) represents nearly 28,000 members in more than 190 chapters throughout the world working to advance philanthropy through advocacy, research, education and certification programs. 

The association fosters development and growth of fundraising professionals 

and promotes high ethical standards in the fundraising profession. 

Visit www.afpnet.org.

The Chronicle of Philanthropy is the newspaper of the nonprofit world. It is 

the primary news source, in print and online, for charity leaders, fund raisers, 

grant makers, and other people involved in the philanthropic enterprise. 

Visit http://philanthropy.com/fundraising. 

The Foundation Center's mission is to strengthen the nonprofit sector by advancing knowledge about U.S. philanthropy. It maintains lists of training and 

technical assistance resources such as grant writing guides for grant seekers, 

and has an online orientation to the grant seeking process. Visit 

http://foundationcenter.org.

The Grantsmanship Centers offers grantsmanship training to nonprofit and 

government agencies. TGCI conducts some 200 workshops annually in grantsmanship and proposal writing, and produces publications including Program 

Planning and Proposal Writing, an industry standard. Subscribe to the free 

Grantsmanship Center Magazine. Website also includes Federal Register grant 

information, state funding, and community foundation information. 

Visit http://www.tgci.com. 

Grassroots Fundraising Journal

The flagship publication of Grassroots Fundraising, available by subscription. 

Articles from previous publications can be ordered in PDF format, and the 

website offers a few free articles such as The Ten Most Important Things You 

Can Know About Fundraising. 

Visit www.grassrootsfundraising.org.

Philanthropy
National Park Service — Making Friends Handbook 124 

Heinze-Lacey, Beverly (2002) Taking Flight — An Introduction to Building 

Refuge Friends Organizations. National Wildlife Refuge Association

Howe, Jim, Ed McMahon, and Luther Propst (1997). Balancing Nature and 

Commerce in Gateway Communities. Island Press, Washington, D.C. and 

Covelo, California.

Propst, Luther, and Liz Rosan (1997).National Parks and their Neighbors: 

Lessons from the Field on Building Partnerships with Local Communities. The Sonoran Institute, Tucson, Arizona.

Stolton, Sue, and Nigel Dudley, editors (1999) Partnerships for Protection: 

New Strategies for Planning and Management of Protected Areas. WWF/

IUCN, Gland, Switzerland. Earthscan, London.

Wondolleck, Julia M. and Steven L. Yaffee (2000) Making Collaboration 

Work: Lessons from Innovation in Natural Resource Management. Island 

Press, Washington, D.C. and Covelo, California.

Schaff, Terry & Schaff Doug (1999) The Fundraising Planner— A Working 

Model for Raising the Dollars You Need. Jossey-Bass Publishers

Klein, Kim. (1996) Fundraising for Social Change Berkley: Chardon Press

Straus, David. (2002) How to Make Collaboration Work: Powerful Ways to 

Build Consensus, Solve Problem, and Make Decisions. Kerrett-Koehler 

Publishers. http://www.bkconnection.com/static/collaboration.asp

Printed Materials
National Park Service — Making Friends Handbook 125

Understanding Directors Order #21 ~ Donations & Fundraising

Participants Guide

NPS TEL Event

February 5, 2009

Fundraising Basics –Understanding the Fundraising Process

Participants Guide

NPS TEL Event

August 1, 2007

Developing and Working with Friends Groups

Participants Guide

U.S. Fish and Wildlife Service

National Conservation Training Center

May 30 – June 1, 2007

The Language of Partnership

Participants Guide

Language of Partnership Seminar

Association of Partners for Public Lands 

Annual Convention

March 22, 2007

Obtaining Grants to Meet your Needs

Participants Guide

NPS TEL Event

September 19, 2006

Working with NPS Agreements for Partnerships: 

Module II – Developing and Managing Agreement for Effective Partnering

Participants Guide

NPS TEL Event

November 4, 2004

Working with NPS Agreements for Partnerships: 

Module I – Tools for Effective Partnering

Participants Guide

NPS TEL Event

November 3, 2004

Building a Partnership Workplace

Participants Guide

NPS TEL Event

September 2, 2004

Other Resources & Trainings

~ Contact the NPS Partnership Program Training Manager for additional 

training opportunities at 304-535-5035
National Park Service — Making Friends Handbook 126 

Federal Funding Sources — Federal agencies allow applicants to electronically 

find and apply for competitive grant opportunities from all the US Federal 

agencies that manage grant funds at http://www.grants.gov/.

Essentials of Fundraising — The knowledge of these principles will help park/

partners make intelligent judgments about fundraising to benefit the park. 

http://www.nps.gov/partnerships/principles.htm.

Partnership Legal Primer — Introduces federal law and ethical considerations 

affecting partner-ships. It can be found on the Department of the Interior’s 

Partnership web page: 

http://www.doi.gov/partnerships/partnership_legal_framework.html

Department of the Interior Departmental Manual: Donation Guidelines (374 

DM 6) http://elips.doi.gov/app_dm/act_getfiles.cfm?relnum=3692.

Ethics Issues in Partnerships: http://www.doi.gov/partnerships/ethics.html

The Fundraising Feasibility Study: It’s Not About the Money. Novam, Martin 

L. CFRE, editor. 2007. John Wiley and Sons Inc., Hoboken, New Jersey.

Free Complete Toolkit for Nonprofits. Foundation Source and the National 

Council of Nonprofit Associations, 

http://www.managementhelp.org/boards/boards.htm#anchor314119

Additional Fundraising Resources
National Park Service — Making Friends Handbook 127
National Park Service — Making Friends Handbook 128