Public folders can be administered and created using the 32-bit Exchange clients such as Exchange and Outlook, but also by using other tools such as Windows Explorer etc.
To create a Top-Level Public Folder via Outlook perform the following:
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Start the Outlook client
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Expand "Public Folders" and double click on "All Public Folders"
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From the File menu select New - Folder

Note: In Outlook 2003 the same process looks like this:

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In the dialog enter a name and click OK
Note: In Outlook 2003 the process looks like this:

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To create other non-top-level folders just select the folder that you wish to be the parent and select New - Folder from the File menu. You will then be able to name the sub-folder as with above.
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You can also drag any folder from your own Mailbox or from another top-level PF to the PF list.

To create a new Public Folder from within Windows Explorer do the following:
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On your Exchange server open Windows Explorer and go to your M:\ drive.
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Drill down to the Public Folder store.
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Right click it and choose New.

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Give it any name you want.
Note: To perform some client-side security settings you'll have to return to Outlook and change the settings from there.
Exchange 2003 note: Exchange Server 2003 does not expose drive M: by default. In order to access Alternate PF Trees via EXIFS in Exchange Server 2003 you'll need to re-create drive M: