Why did she need the DOT’s permission to sell them to churches and place on churchs’ property?
I'm just guessing that most local governments have "set-back" rules that signs need to be a certain distance from roadways, intersections, fire hydrants, etc. as a matter of safety; so in order for the sign to be near enough to the road to be seen by passing cars, she had to negotiate with the DOT for where they would be placed.