Hi Pamela!
I'm doing a similar thing as you, I think, creating a custom viewer for my colleagues of zoning information. I used the approach suggested above and created layer files, and then put them into the map and clicked "manage layers" to move it to the desired spot. It was confusing at first when moving the layers in the TOC didn't affect the drawing order!
Another thing that might be useful to you is multi-scale rendering, depending on what type of users you have. I contacted ESRI tech support and got this brilliant idea!
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Hi Sarah,
My name is Shelena Bergasse and I am contacting you from Esri Canada Technical support with regards to scale dependencies in ArcGIS Explorer.
I have found a workaround that might work for you. Please give this a try and let me know how it goes.
1) In ArcMap, add the layer in question.
2) Go to the layer properties and set a scale dependency. Right click on the later, select 'Properties'. On the 'General' tab, set a scale dependency.
3) Set the symbolgy that you would like.
4) Add the same layer again a repeat thes steps.
5) Now create a Group Layer. In the Table of Contents right click on 'Layers' and select 'New Group Layer'.
Then, in the Table of Contents, drag the shapefiles into the New Group Layer.
6) Then export this group layer as a layer file. Right click on the group layer and select ' Save as Layer F
7) Add this layer file into ArcGIS Explorer
Cheers,
Shelena Bergasse
Esri Canada Technical Support
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hope that's helpful for you!
Sarah