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A GUIDE TO THE
OFFICE OF WATER
ACCOUNTABILITY SYSTEM
AND
REGIONAL EVALUATIONS
FY 1991
Office of Water
U.S. Environmental Protection Agency Washington,
D.C. 20460
U.S. Environmental Protection Agency
J?agi«n 5, Library (5PL-16)
230 S. Dearborn St/eet, Room 1670
Chicago, IL 60604
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TABLE OF CONTENTS
Page
I. INTRODUCTION 1
II. THE OFFICE OF WATER ACCOUNTABILITY SYSTEM
A. Appendix A: The Measures 2
B. Appendix B: The Definitions 4
III. THE OFFICE OF WATER EVALUATION SYSTEM
A. Prenegotiated Commitments and Quarterly Reports . . 5
B. Regional Initiatives 7
C. Regional Evaluations 7
D. Other Office of Water Information Collection
Activities .8
IV. TIMELINE FOR EVALUATION ACTIVITIES 10
APPENDIX A — Measures
Public Water System Supervision A-l
Underground Injection Control A-10
Ground-Water Protection A-17
Marine and Estuarine Protection A-23
Wetlands Protection A-30
Water Quality Standards, Planning & Assessment . . . A-36
Water Quality Enforcement & Permitting A^47
Municipal Pollution Control A-98
APPENDIX B: — Definitions
Public Water System Supervision B-l
Underground Injection Control B-7
Ground-Water Protection B-14
Marine and Estuarine Protection B-18
Wetlands Protection B-21
Water Quality Standards, Planning & Assessment . . . B-24
Water Quality Enforcement and Permitting B-35
Municipal Pollution Control B-61
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I. INTRODUCTION
In FY 1991, the Office of Water will continue to conduct
evaluations of Regional water programs. The purpose of these reviews
is to assess Regional success at achieving National program
objectives for the year, and to help ensure National consistency in
implementation of Federal laws and regulations.
This guide contains the accountability measures that the Office
of Water will use to monitor Regional performance in FY 1991. The
guide should be used in conjunction with the Agency's FY 1991
Operating Guidance, which sets forth the National objectives for
water programs.
_Page 1
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II. THE OFFICE OF WATER ACCOUNTABILITY SYSTEM
The Office of Water Accountability System (OWAS) consists of a
set of qualitative and quantitative measures that provide the basis
for evaluating Regional Office performance against National program
objectives. The measures in the system include all measures included
in the Agency's Strategic Targeted Activities for Results System
(STARS; formerly referred to as SPMS) as well as additional
qualitative and quantitative measures which are needed to evaluate
fully performance against the Office of Water's FY 1991 National
program objectives. In general, the measures from the STARS relate
to selected areas of the Agency's Priority List and are among the
highest priority program activities. They are not intended to
provide a comprehensive picture of every program area and are
supplemented by the additional measures contained in this guide.
The structure of the FY 1991 OWAS remains essentially the same as
that of the FY 1990 system. The following is a brief description of
the accountability system, which is presented fully in Appendices A
and B.
A. Appendix A; The Measures
Appendix A presents the measures which comprise the OWAS. It is
structured as a series of charts by the program areas which appear in
the Agency Operating Guidance for FY 1991. The charts contain the
following categories of information:
Activity Areas: These are the high priority activities that are
included in the Agency Operating Guidance for FY 1991 and which
Regions and States should undertake in order to carry out National
program objectives. The Office of Water does not expect the Regions
to address every area. Rather, each Region should identify its key
program areas, and should focus on those activities that are relevant
to its particular circumstances. At the time of the Regional
evaluations, however, the Region will be asked to identify the
activity areas that are not considered to be priorities and to
explain how the Region arrived at its decision.
_Page 2
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II. THE OFFICE OF WATER ACCOUNTABILITY SYSTEM
Reporting Measures; The reporting measures are designed to generate
the key data and information that the Office of Water needs to
evaluate Regional progress towards achieving National program
objectives. There are two kinds of reporting measures:
o Qualitative measures are the specific questions that Regions
are expected to address during the Office of Water Regional
evaluations. The measures relate primarily to program
accomplishments and effectiveness, and generally do not
involve prenegotiated commitments.
o Quantitative measures provide the kinds of information that
the Office of Water needs for program management and
reporting purposes and for responding to Congressional
inquiries. These measures include all measures included in
the STARS, as well as some that are unique to the OWAS. A
number of these measures involve prenegotiated commitments
with the Regions (see Section below).
In STARS/Commitment; This column refers to the quantitative measures
only. It designates (1) those measures that appear in the FY 1991
STARS and (2) those measures involving a prenegotiated commitment
between the Office of Water and the Regions. "Yes" as the first
entry in this column indicates that the measure also appears in
STARS; if not, the word "No" appears. A prenegotiated commitment may
exist for measures which appear either in the Agency's STARS or in
the OWAS only. "STARS" as the second entry in this column indicates
a prenegotiated commitment under STARS; "OWAS" indicates a
prenegotiated commitment under OW's accountability system; "No"
indicates that no commitment is involved, and the measure is solely
for reporting purposes.
_Page 3
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II. THE OFFICE OF WATER ACCOUNTABILITY SYSTEM
Reporting Frequency; This column indicates the planned reporting
schedule for quantitative measures and any data lags.
The measures in the accountability system will provide the Office
of Water with much of the information necessary to monitor Regional
performance in water programs. The accountability system is not
intended to provide all the information that the Office of Water
needs during the year (see page 8), nor to limit the kinds of
information that Regions may need for oversight of State water
programs. As part of its oversight function, the Region is expected
to gather the basic information to prepare its Regional self
evaluation and to participate effectively in the Office of Water
Regional evaluations. However, Regions may seek additional
information from States through program audits or other activities,
and may choose to evaluate State management of water program
activities that are not covered in the Agency Operating Guidance or
the OWAS.
B. Appendix B; The Definitions
Appendix B contains detailed, technical information that more
clearly defines some of the quantitative measures contained in
Appendix A. These definitions explain the manner in which the Region
is expected to report the required information to the Office of
Water. For some measures, they also establish specific target level
of performance that each Region is expected to achieve during the
quarter/fiscal year, and explain how the Office of Water plans to
evaluate performance in these areas.
_Page 4
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III. THE OFFICE OF WATER EVALUATION SYSTEM
The following is a brief description of the ways in which the
Office of Water plans to collect information and to evaluate Regional
performance.
A. Prenegotiated Commitments and Quarterly Reporting
Many quantitative measures in the accountability system require
prenegotiated commitments. The commitment setting process will be
carried out in conjunction with that of the STARS and will follow the
same schedule. In July and August of 1990, the Office of Water
programs negotiate with the Regions to set specific target levels of
activity for the quantitative measures in the accountability system.
The Regions and the Office of Water use the following process to
reach agreement on all prenegotiated commitments.
o Program offices will negotiate commitments based on the
quantitative measures in the FY 1991 accountability system;
the Assistant Administrator must personally approve any
requests for prenegotiated commitments beyond those included
in the final FY 1991 system.
o Program Office Directors will initiate the original data
requests which will be addressed to the Regional Water
Management Division Directors.
o Program office data requests will identify significant
program assumptions, reporting frequency, and reporting
mode; each data request should cross-reference the pertinent
measure in the FY 1991 OWAS.
o Program offices will negotiate commitments based on specific
target levels of performance that take workload and output
projections into account. Negotiations will start from zero
base, with Regions developing the initial commitment levels;
the program offices will analyze the Region's output
estimates to assure that they are consistent with
performance expectations, and will accept the Region's
estimates unless there is practical evidence or other valid
.Page 5
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III. THE OFFICE OF WATER EVALUATION SYSTEM
reason to suggest that an alternative output estimate is
more appropriate. Several measures include commitments from
States. In these instances, Regions will negotiate
commitments with their States to support national priorities
and performance expectations and submit State commitments to
the program offices.
o Once staff level negotiations are complete, the Assistant
Administrator will certify agreed upon commitments for those
measures included in the STARS to the Office of Management
Systems and Evaluation (OMSE). Regional Administrators will
also be asked to certify the STARS commitments to OMSE. The
Assistant Administrator will send the commitments for those
measures included only in the OWAS to the Water Management
Division Director for verification and request that the
Region confirm the commitments to the Assistant
Administrator through the Regional Administrator.
OMSE will provide specific instructions on the schedule to be
followed in submitting STARS commitments. Briefly, both the Regional
Administrators and the Office of Water will be required to submit
STARS commitments, and any disagreements between the Regions and the
Office of Water are to be discussed personally between the Assistant
Administrator and the Regional Administrator. Then any differences
that remain unresolved are to be mediated by OMSE or OECM and, if
necessary, ultimately resolved by the Deputy Administrator.
STARS quarterly reports are completed by the Office of Water on
the fifteenth day after a quarter's end. Copies of these reports are
available to the Regions through the computerized system maintained
by OMSE. To meet the reporting deadline, each program office works
with the Regions to obtain the requisite information, generally
within 10 days after the quarter's end. The program office will
establish pull dates for the information which will form the basis of
the report. These pull dates are sent to the Water Management
Division Directors and 404 Coordinators (Regions III, VI, and VII) on
an annual basis prior to the end of the first quarter, and any
changes are provided prior to the end of the quarter in which they
are effective.
.Page 6
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III. THE OFFICE OF WATER EVALUATION SYSTEM
B. Regional Initiatives
Each Region may propose to the Office of Water for discussion
environmental initiatives which the Region would like to carry out in
FY 1991. These initiatives should offer specific solutions or
approaches for achieving the environmental goals and results outlined
in the Office of Water Strategic Plan.
For each' initiative that anticipates an adjustment, by mutual
agreement, to the commitment for a STARS measure, the Region should
describe how such adjustment is expected to improve water quality,
and indicate that it lacks the flexibility to pursue the initiative
within its operating plan resource levels. We plan to accommodate
this new flexibility in our FY 1991 STARS commitment negotiation
process.
C. Regional Evaluations
In FY 1989 the Office of Water piloted a new approach to
conducting formal, coordinated Regional evaluations in the Regions.
In FY 1990 in conjunction with the Regions, a revised process will be
developed that meets all of the needs enumerated during the pilot
process. Guidance for FY 1990 and 1991 Regional evaluations will be
issued separately.
.Page 7
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III. THE OFFICE OF WATER EVALUATION SYSTEM
D. Other Office of Water Information Collection Activities
While the accountability system and the Regional evaluations will
provide the Office of Water with much of the critical information
necessary to oversee Regional water programs, these reviews are not
intended to provide all the data that program offices need to monitor
ongoing activities in the Regions and States and to respond to
special requests from the Congress, the Administrator or the
Assistant Administrator. Consequently, there will be a need for
program offices to collect data and information from the Regions
outside the formal accountability system. The Office of Water
remains committed to keeping these information requests to a minimum,
and to coordinate activities between the program offices to the
extent possible.
The following are the main, ongoing information collection
activities that the Office of Water anticipates during FY 1991:
o Budget; The Office of Water will ask the Regions to provide
the information necessary to prepare the annual budget
request. Regions will also participate in the workload
analysis that serves as the basis for distributing resources
among the Regions. Regions may also periodically be asked
to provide incidental information related to the budget
process.
o Data Retrieval; The Office of Water will retrieve
quantitative data from existing management information
systems, such as the Permits Compliance System (PCS), the
Grants Information Control System (GICS), and the Federal
Reporting Data System (FRDS).
_Page 8
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III. THE OFFICE OF WATER EVALUATION SYSTEM
o Quarterly Reporting; Regions will submit quarterly,
semiannual or annual reports to the Office of Water program
offices to monitor prenegotiated commitments and measures
without commitments where such data cannot be tracked
through National data retrieval systems (see above). The
Office of Water will supply the appropriate information for
the STARS to OMSE.
o Annual Work Programs/Strategies; The Office of Water will
review Regional documents that are submitted on a routine
basis, such as the section 106/205(j) work programs, the
State section 305(b) reports, and the annual plans and
evaluation results from section 205(g) delegation
agreements. The Office of Water will also review any
Regional and State strategies called for in the FY 1991
OWAS.
o Program Audits: The Office of Water will continue to
conduct selected program audits and case studies on an as
needed basis to track critical activities. Examples include
staff level audits of the construction grants and permits
and compliance programs. The program offices will plan and
negotiate these essential activities with the Regions, and
will conduct these activities jointly to the extent
possible.
o Self Evaluation Reports: Regions will submit Regional self
evaluations that summarize their progress-to-date as it
relates to the Office of Water's National program
objectives.
o State Mid-Year Evaluation Reports; Upon request, Regions
will submit a copy of the mid-year evaluation report for
each State. This report will include findings, follow-up
activities, and State comments on the report's findings.
o Regional Initiatives: Regional progress on the initiatives
and constraints will be reviewed annually..
The information produced by these activities will be used for
ongoing program management purposes, and may also be used to help
identify issues and concerns that will be discussed during the
Regional evaluations.
_Page 9
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APPENDIX A
QUALITATIVE AND QUANTITATIVE MEASURES
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U.S. Envir n-ru-nivtl Protect ion Agency
Engion 5, Library <{>rL-16)
230 S. Dearborn Street, Room 1670
Chicago, IL 60604
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