OERD Special Projects/ Fort Defiance Park: The Confluence of Freedom

Prepared by Dr. Raymond C. Lenzi, Associate Vice Chancellor for Economic Development,
Dr. Bruce C. Davis, Office of Economic and Regional Development, and
Robert H. Swenson, Assistant Professor of Architecture and Interior Design,
Southern Illinois University Carbondale.
Funds were provided by the City of Cairo through a grant
from the USDA Rural Development.

Acknowledgements: We would like to thank the members of the Fort Defiance Park: The Confluence of Freedom Advisory Committee. Starting November 6, 2002 the committee met a total of thirteen times during 2002-04. Twenty-eight different people attended some or all of these meetings and contributed over three hundred forty hours of their time towards the development of the Master Plan for Fort Defiance Park: The Confluence of Freedom. The advisory committee included private citizens from the Cairo area, members of the Cairo business community, representatives from several local and state government agencies, members from two different Cairo city administrations, and Southern Illinois University Carbondale.

We also would like to thank the City of Cairo and the Southern Illinois District Office of the USDA Rural Development for providing funds needed to carry out this project.

Fort Defiance Park: The Confluence of Freedom Advisory Committee Members:n During the course of the project the following individuals have participated as members of the advisory committee: Ms. Cindy Benefield, Southernmost Illinois Tourism Bureau; Ms. Amy Brinkmeyer, Capaha Bank; Judson Childs, City of Cairo; Bruce Davis, Southern Illinois University Carbondale Office of Economic and Regional Development; Preston Ewing, City of Cairo; Paul Farris, City of Cairo; Maggie Flanagan, Southern Illinois Community Foundation; Angela Greenwell, Confluence Community Development; Eric Gregg, Illinois Department of Commerce and Economic Opportunity; John Gulley, Illinois Department of Commerce and Economic Opportunity; Debbra Gutterman, CGB Waterfront Services; Glen Hall, USDA Rural Development; John Hammel, USDA Rural Development; James Hanson, Southern Illinois University Carbondale Office of Economic and Regional Development; Raymond Lenzi, Southern Illinois University Carbondale Office of Economic and Regional Development; Jay Manus, First National Bank; Carolyn Mayberry, Confluence Community Development; Janet Moses, Alexander County; Louise Ogg, Cairo Customs House Museum; Russell Ogg, Cairo Customs House Museum; Donna Raynalds, Southernmost Illinois Delta Empowerment Zone; Monica Smith, Cairo Library; DeBran Sudduth, City of Cairo; Robert Swenson, Southern Illinois University Carbondale Department of Architecture and Interior Design; Lisa Thurston, Southern Five Regional Planning District and Development Commission; Joseph Wedding, Southern Illinois University Carbondale Department of Architecture and Interior Design; James Wilson, City of Cairo; Jimmy Wissinger, City of Cairo.

Fort Defiance Park: The Confluence of Freedom represents a unique opportunity to create a national tourism attraction based on Civil War History at the equally unique confluence of America's two great river systems - the Ohio and Mississippi. Here General Ulysses S. Grant came in 1861 to lead the great Western Campaign of the Civil War that restored the Union and ended slavery. This is the story that the Fort Defiance Park: The Confluence of Freedom will tell.

The proposed Fort Defiance Park: The Confluence of Freedom is at the south end of Cairo at the confluence of the Ohio and the Mississippi rivers in what is now called Fort Defiance Park. The park is on the major north-south Interstate highway connecting Chicago, Memphis, and New Orleans. This is a great central location with 89 million people within 500 miles. According to the Illinois Department of Transportation 3,577,000 vehicles annually travel between Illinois and Missouri on Interstate 57 just north of Cairo. A major benefit of the Confluence of Freedom Park is to create a place of interest to help attract regional travelers to the area and to promote overnight and extended day trips in the area.

The Master Plan for the Confluence of Freedom Park in Cairo, Illinois has six major elements plus suggestions for later park upgrades and expansion: 1) Museum of the Western Campaign; 2) Avenue of the Heroes; 3) Fort Defiance re-creation; 4) U.S.S. Cairo ironclad re-creation and Civil War Naval Museum; 5) Boatmen's Memorial Plaza Event area; and 6) Campground / Park Upgrades.

Funding for the project can come from a number of sources including: Illinois Department of Commerce and Economic Opportunity's Tourism Attraction Development Grant Program; US Department of Agriculture's Rural Business Enterprise Grant Program; Illinois Department of Natural Resources' Open Spaces Lands Acquisition and Development Program; National Endowment for the Humanities Consultation, Planning, and Implementation Grants Programs; National Park Service National Heritage Area; National Scenic Byways Discretionary Grants Program, as well as other federal, state, and private sources.

The park will be developed in phases totaling $7,995,650 over a ten-year period. The projects developed during the first two years are estimated to cost $692,250. The projects developed during the next eight years are estimated to cost $7,303,400.

Confluence of Freedom Park represents a unique opportunity to create a national tourism attraction based on Civil War History at the equally unique Confluence of America's two great river systems - the Ohio and Mississippi. Here General Ulysses S. Grant came in 1861 to lead the great Western Campaign of the Civil War that restored the Union and ended slavery. Fort Defiance in Cairo, Illinois served as the staging area for troops fighting in the Western Campaign as well as the base for the fleet of inland river gunboats that helped control of the Ohio, Mississippi, Cumberland, and Tennessee Rivers for the Union army. This is the story that the Confluence of Freedom Part will tell.

The Confluence of Freedom Park Advisory Committee has met for nearly two years and adopted the following Mission Statement, Vision Statement, Goals, Objectives and Rationale. These provide the basis for introducing the project.

Mission Statement
Whereas the site located at the confluence of the Ohio and Mississippi rivers is rich in historical heritage and holds great geographical significance for our country, our mission is to create a master plan for use in developing and maintaining this site for the greatest economic and cultural benefit of the residents of this region.

Vision Statement
Our vision is to have a major National Park at the confluence of the Ohio and Mississippi rivers in Cairo, Illinois that is a national tourist destination and that promotes the unique features of the confluence of our nation's two largest rivers and the historical significance of Cairo as the launching point for the Western Campaign of the Civil War.

Goals
Our goals are to: (a) identify the major elements desired in the park; (b) develop a site plan of these elements in the park for use in future development and maintenance of the park; (c) develop a written plan for the park including the objectives outlined below; (d) develop a timetable and budget to develop these features; (e) secure funding for the development of selected items in the park; and (f) implement the park development plan over the time line established.

1. Review selected historic parks for content, traffic surveys, and local impact.
2. Encourage participation in the planning process by meeting with area politicians and local citizens and soliciting their views on the contents of the park.
3. Identify key elements of the park for future development and maintenance of current park infrastructure.
4. Create a site plan of the park.
5. Develop cost estimates for major components of the park including maintenance.
6. Create a scope of work and timetable for the park development.
7. Establish a financial plan and identify potential funding sources.
8. Develop a three-year development plan budget.
9. Develop an operational budget for ongoing operation and maintenance of the park.
10. Review the economic, environmental, and social impact of the park.
11. Develop a marketing strategy for marketing and promoting the park as a major tourist destination.

Rationale
Cairo has nationally unique geographic and historic resources. Cairo sits at the junction of our nation's two largest rivers, the Ohio and Mississippi. Moreover, the confluence made Cairo the location for Union General Ulysses S. Grant's command and the spear point for the Western Campaign, the central tactical operation of the Anaconda strategy for defeating the Confederacy and, ultimately, destroying slavery and restoring the Union. While Cairo was the focal point for the Western Campaign, which recreated America with what Lincoln called a "new birth of freedom" in the Gettysburg Address, there is no historic museum recognizing and detailing the Western Campaign or Cairo's central role in the Union Victory. There is only one place in the world where our nation's two largest rivers, the Ohio and Mississippi come together. There is a tremendous opportunity to create such an historic park and museum complex in Cairo at the Ohio-Mississippi river confluence. The Confluence of Freedom Park is a proposal for such a major national historic park in Cairo.

There is no Civil War park or museum dedicated to the heroic soldiers of Illinois, Indiana, Iowa, Kentucky, Michigan, Minnesota, Missouri, Ohio, and Wisconsin. The Museum of the Western Campaign is the first major effort to commemorate and celebrate the Western Campaign and its decisive role in the Civil War. This will tell the story of how the Western Campaign gained major victories, captured the Mississippi, split the Confederacy and finally captured Atlanta, while a military stalemate prevailed in the East. It will assert that the Western Campaign based in Cairo, Illinois was the decisive campaign of the Civil War.

The Kentucky Civil War Heritage Trail begins near Cairo, Illinois and winds over 400 miles along state and federal highways across Kentucky. The trail includes 51 sites where Civil War action took place. The addition of a major Civil War museum at the western end of this trail and the recreation of Fort Defiance in the park will help attract large civil war reenactment groups to the area. The park will create added points of interest for the visitors and also will provide linkages to other points of interest in Cairo.

The American Battlefield Protection Program lists forty-five battles as having a direct impact on the course of the Civil War. Eighteen were fought in the Western Campaign of the Civil War.

During the first phase, the museum will rely primarily on telling the story of the Western Campaign using 4' by 7' display panels. Significant civil war battles, campaigns, and occupations of the Western Campaign will be identified and selected highlights, photographs, drawings, and maps of these actions will be arranged to present a chronological history of the Western Campaign of the American civil war.

The museum will include highlights of twelve great battles, campaigns, or occupations that tell the story of the Western Campaign, also the naval history of the battles of Island No. 10, Memphis, and Vicksburg. In addition, it will include a model of the U.S.S. Cairo ironclad gunboat, a diorama of Ft. Defiance, maps of significant civil war battle areas, and short video segments. Approximately 1,080 square feet of the Toll House will be used for the museum and 770 square feet will used for administrative, gift shop and book store area. A 1,140 square foot outdoor deck/plaza and public bathrooms with 24-hour accessibility will be added.

In the second phase, additional land will be acquired and a new building will be constructed to house the Museum of the Western Campaign. The new museum will have three wings: 1) Great Battles; 2) Great Heroes; and 3) Great Inspirations and Innovations. Each wing will use storyboards, photos, quotes, and other facts to tell the story of the Civil War in general and the Western Campaign specifically.

The "Great Battles" wing of the Museum of the Western Campaign will give the overview of the Anaconda Campaign Strategy and the Western Campaign. It will include a large map overview of the Western Campaign or Western Theater (see Western Theater figure). It will highlight twelve great battles, campaigns or occupations that tell the story of the heroic struggle of the Western Campaign. While both the number and specific battles are subject to change the proposed list is given and annotated below. Collectively, these twelve "battles" tell the story of the strategy and tactics of the Western Campaign and why it was successful. The twelve "battles" proposed for the Great Battles section are as follows:

1) First Shots at Cairo and Occupation of Paducah
2) Belmont/Columbus
3) Fort Henry / Fort Donelson
4) Shiloh
5) New Madrid / Island No. 10 / Memphis
6) Fort Jackson / New Orleans
7) Stones River
8) The Vicksburg Campaign
9) Chickamauga / Chattanooga
10) The Atlanta Campaign
11) Murfreesboro
12) The Carolina Campaign.

The Great Heroes wing of the Museum of the Western Campaign will be a hall of great leaders and heroes of the Union struggle and emancipation. This wing will include photos, quotes and paintings of the great Civil War heroes. The emphasis will be on Civil War heroes of the West, especially Illinois heroes. Twelve heroes will be showcased. The heroes will not only include the various military heroes but also political, social and technology heroes that contributed to the Union victory in the Western Campaign. The twelve heroes to be highlighted include:

1) Abraham Lincoln
2) Ulysses S. Grant
3) John A. Logan
4) William Tecumseh Sherman
5) Harriet Tubman
6) Frederick Douglas
7) Ann Stokes, Mother Bickerdyke, and the "Red Rover" Nurses
8) Admiral A. H. Foote
9) James Eads
10) James McPherson
11) Admiral D. G. Farragut
12) Winfield Scott.

The "Great Heroes" wing of the Museum of the Western Campaign will parallel the Avenue of Heroes Statues row in the park. It will provide a detailed look at the heroes' contributions to the Civil War and Western Campaign through the use of storyboards, quotes, photographs, paintings, and artifacts.

The Great Heroes theme of the Confluence of Freedom Park will be reinforced by the Avenue of the Heroes Statues and by prominent representation in films to be shown in the museum auditorium. This will also be reinforced by liberal representation of offerings related to the heroes in the gift shop and Bookstore.

The Avenue of the Heroes area will initially include an equestrian statue of Ulysses S. Grant of "Heroic" size (one and one-half life size). Later we will add life-size statues of President Abraham Lincoln and General John A. Logan and three four-sided relief structures. One structure will include relief figures of Admiral Andrew Foote, James Eads, Admiral David Farragut and the U.S.S. Cairo Ironclad. The second four-sided relief structure will include relief figures of U.S.S. Red Rover Navy Nurses, Harriet Tubman, Frederic Douglas, and the emancipation proclamation. The third four-sided relief structure will include relief figures of General William Tecumseh Sherman, General James McPherson, General Winfield Scott, and a map of the Western Campaign.

We will start with Grant, the leader of the Western Campaign based in Cairo. We will later add: President Lincoln, who saved the Union and freed the slaves; and John A. Logan, the famous southern Illinois congressman who most record as the greatest "Political General" of the Civil War (who later became an Illinois U.S. Senator and ran for Vice-President in 1884). Later we will add a four-sided structure with relief figures of: Admiral Andrew Foote, the first naval commander of the Federal ironclad gunboat fleet based in Cairo; James Eads, who built the U.S.S. Cairo in Mounds City, Illinois; Admiral David Farragut, who said "Damn the torpedoes! Full speed ahead" while leading the Union fleet to capture New Orleans and Mobile Bay; and the U.S.S. Cairo Ironclad. The second four-sided structure will include relief figures of: U.S.S. Red Rover Nurses, the first US Navy nurses were African-American women serving alongside Catholic nuns from Sisters of the Holy Cross; Harriet Tubman, the underground railroad leader; Frederic Douglas, the soul and intellectual leader of the Abolitionist and Emancipation movement; and the emancipation proclamation. The third four-sided structure will include relief figures of: General William Tecumseh Sherman, who succeeded Grant in overall command in the West, captured Atlanta, and led the famous "march to the sea"; General James McPherson, who fought with Grant at Fort Henry, Fort Donelson, Shiloh, Vicksburg, and led the Army of Tennessee during the Atlanta campaign; General Winfield Scott, who conceived the "anaconda plan" to block the southern ports, split the Confederacy by controlling the Mississippi, and destroy the Confederate government by taking Richmond; and an overall map of the Western Campaign.

Fort Defiance was a simple earthen fortworks with cannons facing both rivers, the Ohio to the East and Mississippi to the West. It secured the Confluence and enabled Grant's Western Campaign to establish a base at Cairo and move successfully into the South.

The fort will serve as a confluence observation point and a venue for Civil War reenactment groups. Construction of the earthen fortworks will require moving approximately 25,300 cubic yards of fill dirt, including raising 90,000 square feet of the loop road area five feet to provide a wider base for construction and less flood damage to the fort. The fort will also include inside fort walls, powder magazines, and cannon replicas. A full cannon complement included six to eight men. Plans include adding bronze life-size action figures at one cannon showing the various stations of battle. The fort will be constructed first. The action figures will be added later.

The U.S.S. Cairo, U.S.S. Mound City and U.S.S. Cincinnati were constructed at Mound City, Illinois, just six miles upriver from Cairo. The U.S.S. Cairo was commissioned on January 16, 1862 and became the first U.S. warship sunk by a torpedo (mine) when it was sunk on December 12, 1862 in the Yazoo River.

We will recreate the ironclad and have it moored on the banks of the Ohio for use as a Civil War Naval Museum. The U.S.S. Cairo replica can also be repositioned at various major ports along the Mississippi, Ohio, Tennessee, and Cumberland rivers as a Civil War Naval Museum and roving ambassador for the Museum of the Western Campaign. Construction of the U.S.S. Cairo using a deck barge requires researching design specifications of the original gunboat and developing a new set of design plans and specifications to make the best use of a steel-hulled deck barge. The original hull lines need to be followed to the part of the boat visible below the water line. We also need to plan how to best use the interior space while working around the barge shell on the inside. The gunboat will be constructed using a steel hulled barge. A 4,500 square foot Civil War Naval Museum will be housed inside the U.S.S. Cairo gunboat. A flexible docking system may also be required, depending upon where the gunboat is based.

The Boatmen's Memorial, which honors those who have lost their lives on the water, provides an awe-inspiring view of the confluence of the Mississippi and Ohio rivers. A stage area will be developed using the first level of the Boatmen's Memorial, and a terraced path/ramp will be developed from the south end of the plaza down to the confluence. The stage will include a fabric tent-canopy system, appurtenances, and stage lighting rails for use during events.

The Boatmen's Memorial will also be upgraded by developing a larger plaza area around the memorial with amphitheater seating to the northwest for festival events and memorial plaques within the plaza.

A. Campground Upgrades
The park now includes thirty-one campsites. Several features need to be upgraded or added to encourage additional usage of the park. No toilet or shower facilities are in the park. A protected toilets/showers facility will be developed at the south end of the campground. A tent camping area will be added at the north end closer to the Ohio River within the wooded area. Picnic and cooking areas will be added. The electrical service masts are damaged each year as a result of the annual flooding in the park. The service masts will be upgraded and flood protection bollards will be added.

B. River-walk and bike trail
The park extends for over 4,000 feet from the confluence of the Mississippi and Ohio rivers to the Kentucky Bridge over the Ohio River at the north end of the park. A river-walk and bike trail will be developed from the confluence to the Ohio River bridge and around to the toll house. The river-walk will include periodic small overlooks and shaded seating areas along with historic information plaques at selected overlook areas.

C. Toll House Restaurant
After the Museum of the Western Campaign is relocated to the new building the Toll House will be converted to a restaurant.

D. Park Expansion
Park expansion will include increasing developable high ground south of the Toll House parking area and along the east side of the Missouri Bridge approach. Park size will be increased by purchasing or leasing the entire area between the Missouri and Kentucky bridges. A new access road will be developed down into and through the park.

A. The potential market attraction of the Confluence of Freedom Park in Cairo is great. With Cairo's central location to U.S. population and immediate Interstate access the park is in an excellent position to attract large numbers of visitors. This can be demonstrated by looking at population numbers within selected distances as well as comparative annual visitor numbers at other Civil War sites.

Population Market Potential:
Cairo is located in the very center of population, especially all the population east of the rocky mountains. Populations are shown below at distances of 250 miles (5 hours drive), 500 miles (10 hours drive), and 1,000 miles (20 hours drive). Moreover large cities including Chicago, St. Louis, Memphis and New Orleans are on the direct route of Interstate 57 and connecting Interstates. This highway connects families and tourist visitors between these major cities. The annual traffic count on Interstate 57 at the Cairo exit is 3,577,000. Population numbers for distances from Cairo are shown below.

B. Heritage tourism and Civil War tourism in particular play a large role in the marketing of tourist attractions in the United States. The Confluence of Freedom Park in Cairo, Illinois is centrally located and provides convenient access to the rich Civil War heritage areas of southern Illinois, northwestern Kentucky, and southeastern Missouri.

" Vicksburg - 950,000
" Gettysburg - 1,800,000
" Shiloh - 90,000
" Fredericksburg - 1,600,000
" Antietam - 265,000
" Harpers Ferry - 300,000

It is estimated that when the park is fully developed and marketed its annual visitor numbers should exceed Antietam and possibly approach the 500,000 level.

The first step in the development process is to determine how the park and related projects will be managed. The park and its projects can be managed by the City of Cairo, or the City of Cairo can enter into a management agreement with some outside group to develop and manage the park. Local citizen participation and government support is critical to the long term success of the park. To insure long term success, the management of the park must be insulated from local politics and local self-interests. The Cairo city administration, city council, chamber of commerce, and other concerned groups must resolve the park management structure before any progress can be made.

Development of the various features of the park depends on: local community and government support, availability of funds, government regulations, and potential return on investment. The development of many of the features in the park will be conducted in parallel with funding availability, government regulations and local support determining the actual development schedule.

It is important that the park project produce some visible results early in the park development. The two features offering the greatest potential tourism appeal for funds invested are the Museum of the Western Campaign and the Fort Defiance reconstruction. Therefore the first actions will focus on developing these two features for the park.

Toll House upgrade schedule
Phase I
The initial cost to use the Toll House is estimated to be $193,400. This is based upon remodeling 1,850 square feet of the building, replacing the rest rooms, adding a new 520 square foot adjacent restroom area, adding an 1,140 square foot deck and observation area on the rear of the building, adding a 500 square foot covered patio area between the building and the new restrooms, adding a new entranceway on the south side of the building, removing the west entranceway, and removing the abandoned cooler structure. This will allow 1,080 square feet of space for the Museum of the Western Campaign.

Phase II
After the museum is relocated, the Toll House may be converted for use as a restaurant at an estimated cost of $148,000.

Phase I
Initial museum development is estimated to cost $45,000. This is based upon $20,000 staff expenses for museum research and planning plus $20,000 for constructing display panels, dioramas and models. The initial cost will also include a $5,000 allowance for the gift shop and bookstore inventory.

Phase II
Phase II includes the construction of a new 10,000-square foot museum and interpretive center at a building cost of $1,400,000, plus $105,000 for 60 parking spaces, $120,000 for a new maintenance facility, $15,000 for an outdoor patio area, and $200,000 for additional museum displays. In additional to the building construction costs, building space must be found or created in the park. Acquiring twelve acres of land to the south of the toll house parking lot between highway 60 and the current western park boundary at an estimated cost of $48,000 and adding 313,500 cubic feet of fill at a cost of $1,410,750 will add $1,458,750 to the cost of the museum. The total cost for the museum is estimated to be $3,298,750

The development schedule will be outlined in two year increments over a ten-year period. The actual projects and timeframes in which they are developed will be determined by the community priorities and the availability of funds for the development of the projects.

1. The first project is to remodel and upgrade the existing Toll House. Since the initial museum
layout will be primarily based on using modular display panels we can begin development of the museum during the upgrade with little inconvenience or expense. This will allow development to begin on the Museum of the Western Campaign as soon as the museum area is remodeled. Parts of the Toll House can be used for administrative offices during the remodeling. Once the Toll House is remodeled the Museum of the Western Campaign can be developed. The planning and display panel development for the museum can be conducted in parallel with the remodeling of the Toll House. Once the Toll House is remodeled the museum display panels, displays and signs can be installed. After the initial remodeling is completed a gift shop and bookstore can be established. The museum will be a self-guided museum and the museum, gift shop, and bookstore will be open during the hours the administrative offices are open. The estimated cost for this project is $238,400

2. The second project is the development of the Avenue of the Heroes statue area. The first statue erected will be an equestrian statue of Ulysses S. Grant. Developing the base area for the Avenue of the Heroes will require adding approximately 16,700 cubic yards of fill. The estimated cost to erect the first statue and add the needed fill for the base area is $280,000. Other statues will follow later.

Before adding fill to the park we must obtain a permit from the U.S. Army Corps of Engineers. The City of Cairo may apply for a permit which is good for at least five years for ten dollars. The permit process takes approximately 90 to 150 days. Prior to applying for the permit a decision must be made regarding where the fill dirt will be obtained. Three alternatives for obtaining fill for the park may be considered. Fill may be obtained by dredging the Ohio River, by removing dirt from some area of the park, or by removing dirt from an area nearby with land owner permission.

3. The third project is to reconstruct Fort Defiance. Constructing the fort and developing the base area for the fort requires adding over 25,300 cubic yards of fill to the park. The estimated cost for adding the fill and reconstructing the fort is $153,850.

Developing the base area for the fort requires adding approximately 14,000 cubic yards of fill. Developing the base area for the Avenue of the Heroes will require adding approximately 16,700 cubic yards of fill. Constructing the fort will require adding approximately 11,300 cubic yards of fill. We will need to obtain over 42,000 cubic yards of fill, not counting an additional 76,000 cubic yards of fill required to raise the roadway and build the new museum structure. We are therefore looking for an area from which to potentially obtain over 118,000 cubic yards of fill.

4. The fourth project is planning the U.S.S. Cairo gunboat reconstruction. The estimated cost for this
project is $20,000.

1. The first project is developing a river-walk and bike trail from the Confluence to the Kentucky Bridge and over to the Museum. The estimated cost for this project is $80,200.

2. The second project is upgrading the campground area. This project includes: developing a protected toilet/shower facility; adding a tent camping area; adding picnic and cooking areas; and upgrading the electrical service masts. The estimated cost for this project $193,300.

3. The third project is adding six action figures to the fort. The estimated cost for this project is $90,000.

4. The fourth project is adding statues of Abraham Lincoln and John A. Logan in the Avenue of the Heroes area. The estimated cost for this project is $150,000.

1. The first project is recreating the U.S.S. Cairo ironclad gunboat and establishing the Civil War Naval Museum. The estimated cost is $1,387,000.
2. The second project is adding three four-sided relief structures to the Avenue of the Heroes area. The estimated cost for this project is $150,000.

1. The first project is acquiring and developing the land needed to construct the new museum building. This project is estimated to cost $1,458,750.

2. The second project is upgrading the Boatmen's Memorial structure and developing a Plaza/Festival stage area. The project is estimated to cost $711,400.

1. The first project is constructing the new Museum of the Western Campaign. The estimated cost for this project is $1,840,000.

2. The second project is converting the Toll House to a restaurant. The estimated cost for this project is $148,000.

3. The third project is to expand the park, raise the roadway in the park, and rebuild the park roadway. The estimated cost for this project is $1,094,750.

Current park operating expenses include: $20,000 for lawn care; $3,500 for electricity; $3,000 for toilet services; and $1,300 for water. Current park income includes $2,500 to $3,000 collected each year for camping fees. Additional camping fees are anticipated with the development of the park. Additional expenses are incurred by supporting special events. These costs are partially offset by revenue received from these special events. The city of Cairo is currently responsible for paying all park operating expenses. The city of Cairo will remain responsible for these expenses.

The following additional income and expenses are forecasted with the opening of the museum.

The museum will be open fifty hours per week for nine months and ten hours per week for three months during the year. In addition to the visitor center staff provided by the city of Cairo the museum staff will include one person at an annual cost of $20,800. Based on comparable museum information annual museum attendance is estimated to be 5,000 with visitor income estimated to be $15,000. Annual gift shop and bookstore sales are estimated to be $20,000 with a 40 percent gross margin providing a net income of $8,000. The total income from visitor fees and gift shop sales is forecasted to be $23,000.

When the new Museum of the Western Campaign and the U.S.S. Cairo ironclad gunboat and museum are completed the staff will be increased to four full-time people. Annual staff expenses are forecasted to be $85,000. Annual museum and gunboat attendance of 40,000 is forecasted with income of $200,000. Annual gift shop and bookstore sales are forecasted to be $50,000 with a 40 percent gross margin providing a net income of $20,000. At this time the museum/gunboat project is projected to provide a net income of over $135,000 and can assume responsibility for paying for all park expenses incurred by the city of Cairo.

* Combination of Federal, State and Private funds possibly including Federal National Park Service (NPS) designation and funding.

Next we review some of the potential funding sources available to help develop the Confluence of Freedom Park.

Illinois Department of Commerce and Economic Opportunity
Bureau of Tourism
Tourism Attraction Development Grant Program

Intent: The intent of the Tourism Attraction Development Grant Program (TAP) is to provide matching grants to assist in funding the development of projects that increase the economic impact of tourism throughout the State.

Funding: A TAP award can provide no more than 50% of the amount of actual expenditures for a single development project, not to exceed a maximum of $1,000,000. In-kind contributions cannot exceed 25% of the match requirement.

Eligible Projects and Activities include: Projects and activities eligible for funding include, but are not limited to, the following:
A. Capital Projects - land acquisition, construction, renovation or acquisition of buildings
B. Equipment - purchase and installation of machinery and equipment
D. Studies - feasibility, research, development, and marketing studies dedicated to improving and developing tourism specific attractions
E. Interpretive Programs - creation, implementation and staffing of interpretive programs located within historic/cultural sites.

US Department of Agriculture Rural Development
Rural Business Enterprise Grant program

Program Description: Through the Rural Business Enterprise Grant program Rural Development provides grants to public agencies, private non-profit corporations or Indian groups for financing and facilitating development of small and emerging private business enterprises. These grants can be made to public bodies and private non-profit corporations that serve rural areas. Applications will be scored and ranked for funding based on Rural Development established priorities related to population, economic conditions, experience, commitment of business or industry to the location, substantial commitment of non-Federal funds to the project, and existence of certain unusual conditions.

Type of Assistance: Grant funds provided to public agencies, private non-profit corporations or Indian groups can be used to provide needed infrastructure, to fund technical assistance needs and to establish or fund revolving loan programs.

Program: Grant funds may be used to finance and develop small and emerging private business enterprises in rural areas including, but not limited to, the following:
1. Acquisition and development of land, easements, and rights-of-way,
2. Construction, conversion, enlargement, repairs or modernization of buildings, plants, machinery, equipment, access streets/ roads, parking areas, utilities, and pollution control/abatement facilities,
3. Loans for start-up operating cost and working capital,
4. Technical assistance for proposed grantee projects,
5. Reasonable fees and charges for professional services necessary for the planning and development of the project including packaging. Services must be provided by individuals licensed in accordance with state accreditation associations,
6. Refinancing of debts exclusive of interest incurred by or on behalf of an association before an application for a grant when all of the following exist: (a) The debts were incurred for the facility or part thereof or service to be installed or improved with the grant, and (b) Arrangements cannot be made with the creditors to extend or modify the terms of the existing debt,
7. Training, when necessary, in connection with technical assistance.

Illinois Department of Natural Resources (DNR)
Open Space Lands Acquisition and Development (OSLAD) - state
Land and Water Conservation Fund (LWCF) - federal

The Illinois Department of Natural Resources (DNR) administers two grant-in-aid programs to assist eligible, local units of government acquire and/or develop public outdoor recreation areas. They are the State's Open Space Lands Acquisition and Development (OSLAD) grant program and the federal Land & Water Conservation Fund (LWCF) program. Both programs are very similar in nature and are administered basically as one program by the DNR. Applications submitted for funding consideration are automatically considered under both programs.

The Open Space Lands Acquisition and Development (OSLAD) Program is a state-financed grant program that provides funding assistance to local government agencies for acquisition and/or development of land for public parks and open space. The federal Land & Water Conservation Fund program (known as both LWCF and LAWCON) is a similar program with similar objectives. Both are managed in Illinois by the Department of Natural Resources with concurrent application due dates, equal grant maximums and similar general rules.

Projects vary from small neighborhood parks or tot lots to large community and county parks and nature areas. Under both programs, funding assistance up to 50% of approved project costs can be obtained. Grant awards up to $750,000 are available for acquisition projects, while development/renovation projects are limited to a $400,000 grant maximum.

Only those local government agencies having statutory authority to acquire and develop land for public park purposes are eligible to apply for and receive assistance under the OSLAD and LWCF grant programs.

Examples of eligible projects include: Acquisition of land for new park sites or park expansion, water frontage, nature study, and natural resource preservation.

Development/Renovation of:
" picnic and playground facilities;
" outdoor nature interpretive facilities;
" campgrounds and fishing piers;
" park roads and paths, parking, utilities and restrooms; and
" architectural/engineering (A/E) services necessary for proper design and construction of approved project components.
National Endowment for the Humanities

Consultation grants are designed to help organizations develop a new project. By using a Consultation grant, institutions can confer with a team of advisors to help identify key humanities themes and questions that will guide the early stages of a project's development.

Consultation grants can be used for:
" bringing in outside consultants.
" traveling to relevant collections or sites to learn from model projects and consult with advisors.
" identifying key advisors and other organizations that could collaborate on the project.
" covering reasonable costs associated with consultation activities (e.g., honoraria for consultants, long-distance telephone charges, initial audience evaluations, special research, etc).
" developing a preliminary plan for the format and design of a project.

Award Information
Awards of up to $10,000 are normally made for a period of 6-12 month. Cost sharing is not required.

Planning Grants are used to refine the content and interpretive approach of projects in order to prepare them for implementation. Applicants should have already identified the key humanities themes and scholarship relevant to their project and consulted with a team of scholarly and programming advisors.

Support is available for all activities connected with project planning, including:
" meetings with advisers;
" preliminary audience evaluation;
" travel to collections or to other resources;
" drafting of label and exhibition text;
" preliminary exhibition and/or website design; and
" general preparation of the associated programs and materials for dissemination.

Award Information
Awards of up to $40,000 are normally made for a period, on average, of 12 months. NEH funds cover no more than 60% of the costs associated with planning activities. Applicants should be prepared to assume some cost sharing (i.e., cash contributions made to the project by the applicant and third parties as well as third-party in-kind contributions, such as donated goods and services) toward the project.

Implementation Grants support the realization of interpretive exhibitions (both long-term and traveling), the interpretation of historic sites, associated interpretive project components (such as publications and public symposia), public programming, and websites. Applicants should have already identified the key humanities themes and scholarship relevant to their projects. Most of the planning and consultation with scholars and programming advisers already should have taken place.

Support is available for all typical activities connected with implementation, including:
" final consultation with scholars or other advisers;
" final exhibition design;
" exhibition fabrication;
" companion website development;
" crating and shipping;
" completion of interactive components;
" publication costs;
" publicity expenses;
" presentation and distribution of public programs and related materials; and
" audience evaluation.

Small traveling exhibitions
Additional support may be requested to create and tour smaller, more portable versions of a larger exhibition for use in smaller museums and non-traditional venues. Up to $150,000 may be requested (for a maximum total request of $500,000) to support one of the following:
" Panel exhibitions should travel to at least 15 venues across the country and provide substantive, visually appealing and interactive experiences for visitors. They do not have to include original artifacts. Poster exhibits are not eligible.
" Artifact-based exhibitions should travel to at least five venues across the country and feature a selection of original objects from the main exhibition. The exhibition can also incorporate audio-visual components.

Award Information
Awards for Implementation Grants may be up to $350,000 and are usually made for a period of 24 to 36 months. Applicants may also request an additional $150,000 for a small traveling exhibition component for a maximum total request of $500,000. NEH is able to contribute about 60% of the funding. In-kind contributions are allowed.
National Park Service
National Heritage Area

The National Heritage Area program will provide a significant source of federal grant funds within the next five years. A description of the National Heritage Area program may be found at http://www.cr.nps.gov/heritageareas/.

Legislation has been introduced to establish formal legislative criteria for a designation as a National Heritage Area. A copy of this legislation may be found at http://www.cr.nps.gov/heritageareas/REP/NHerPAdrftbll.pdf.

National Heritage Area designation typically includes federal matching funds of up to $1,000,000 per year for up to $10,000,000 over a ten to twelve year period.

The management entity, outlined in designation legislation, may be a State or local agency, a commission, or a private nonprofit corporation. The management entity is empowered to create a management plan for the heritage area, and is authorized to receive Federal funds on the area's behalf.

The management plan, required in the designation legislation, describes the ways the management entity and its partners can work together toward the fulfillment of their common vision. Short and long-term actions listed in a management plan might include developing and implementing an interpretation plan, assisting in the rehabilitation of a number of historic sites, working with partners to open regional visitors' centers, or creating a network of recreational trails. The area usually has three years following designation during which to develop a plan and receive approval by the Secretary of the Interior.

After a heritage area is designated by Congress, National Park Service staff are enlisted as partners with local community activists in planning and implementing heritage area activities. NPS enters into a compact or cooperative agreement with the local parties. The compact is a statement of assent to mutually shared goals, and also serves as the legal vehicle through which Federal funds can be passed to non-governmental management entities. The National Park Service can provide expertise in historic preservation, interpretation and natural resource conservation. National Park Service involvement is always advisory in nature; it neither makes nor carries out management decisions.

Program Description: Scenic byway funds help support projects to improve the quality and continuity of the visitors' experience, essential to attracting more visitors or enticing them to stay longer. The program includes several categories of eligible activities. These include state programs; corridor management plans; safety improvements; byway facilities; access to recreation; resource protection; interpretive information; and marketing.

Award Information: the Federal share of the cost of carrying out a project is 80 percent. The 20 percent matching funds may be State, local government, or private sector and third-party in-kind funds may be used.

The Delta Regional Authority (DRA) is a federal-state partnership serving a 240-county/parish area in an eight-state region. The DRA will help economically distressed communities to leverage other federal and state programs which are focused on basic infrastructure development and transportation improvements, business development, and job training services. The Authority may provide matching funds for other state and federal projects. The DRA will also partner with USDA Rural Development.

The Empowerment Zone designation provides seed money, an annual grant of $2 million a year for up to 10 years, to help the people of Alexander, Pulaski, and southern Johnson counties. One of SIDEZ's missions is promoting tourism in these three counties.