Create One Handbook for Multiple States/Territories
The software is designed to produce a policy manual for an organization operating in a single State or Territory/Possession such as Guam or Puerto Rico, etc.
The only way to make one for an organization operating in multiple states, territories, or possessions would be to first make one for [each] and as each is finished, save each one (in step 4) to RTF.
You can then open each finished handbook in Word. Cut sections from individual handbooks and paste them together into one and then publish from Word.