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TABLE OF CONTENTS
CHAPTER I.
FY 1978 End-of-Year Report
- Program Accomplishments
- Status of Positions
- Status of Funds
CHAPTER II
FY 1979/1980 Plans
- Program Highlight Statement
State Programs Review
Status of Delegations
- New Thrusts for FY 1979
- Graphics on Resource Changes Within Region V
- Positions
- Dollars
CHAPTER III.
Regional Planning and Budgeting System
Process Overview
Chart A/Planning and Budgeting
Calendar
- Chart B/Planning and Budgeting
Process: Division of Labor
System Issues
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CHAPTER I
This chapter includes a regional FY 1978 program accomplishment
report, which presents in a grid form, by major program area, EPA's
published goals and objectives, and the actual performance against
commitments achieved under each goal/objective. Several accomplish-
ments are also catalogued on a state-by-state basis.
Secondly, there is a one page chart which presents a personnel
staff history for FY 1978, and indicates the FY 1979 beginning point
for personnel ceiling, permanent full-time on board, vacancies and
other than permanent full-time on board.
Lastly, there is a four-part presentation of the status of
FY 1978 funds utilization, by major category within this Region.
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CHAPTER II
This chapter contains three different types of documents to
demonstrate the changes between FY 1978 and the FY 1979/1980
planning years. First is the transmittal memorandum for our
FY 1979/1980 zero base budget (ZBB) submissions; this memorandum
integrates agency and regional priorities with impacts of ranking
decisions on positions. The transmittal has been annotated to
reflect adjustments caused by the final agency-wide ranking for
FY 1979.
Second is a selective review of State programs, to show
two key elements in the States: What is new for FY 1979 and what
is the status of delegations, as of October 12, 1978.
Finally, there are several graphics to illustrate the changes
within Region V from FY 1978 to FY 1979.
In a Region as complex as Region V, no single set of comments
on our major programs is all-inclusive. However, assuming knowledge
of the base program for FY 1979, the information in this chapter
should highlight differences for FY 1979.
37
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TS:
UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
JUN 2 2 1978 REGIONV
SUBJECT- FY 1979 and FY 1980 Zero Base Budget
FROM: Valdas V. Adamkus
Acting Regional Administrator
TO: Douglas M. Costle
Administrator (A-100)
Region V has completed our FY 1979/1980 statement of priorities, ZBB
submissions, and ranking of decision levels. Attached to this memorandum
are a listing of our 1979/1980 priorities and ranking tables for FY 1979
and FY 1980. Under separate cover, the Program Analysis Division has been
provided our ZBB decision units. These documents have been developed in
conformance with the "Planning and Budgeting Guidance for FY 1979/1980,"
your "Policy Guidance for FY 1979/1980," and the series of ZBB manuals,
instructions, and memoranda. Our priorities, decision units, and rankings
strictly observe the. Agency's commitments to controlling and eliminating
health hazards, to ensuring effective enforcement, to helping State and
local governments assume as much as possible, and to assist management and
regulatory reform. This memorandum will clearly demonstrate those
commitments. I believe our rankings represent those commitments.
There are several topics addressed in this transmittal; they are a general
discussion of the ranking tables and priorities, program highlights and
issues, personnel and organisation impacts, and a description of our process.
Priorities and Ranking
Like the "EPA Policy Guidance: FY 1979/1980," Region V's Fiscal Year 1979/80
Priorities," (Exhibit 1), identifies those portions of our programs that must
be addressed if we are to protect the health of people, assure effective
enforcement, support the States, and integrate our programs. We have added
to those actions, identified in the national document, the following goals;
fr
1. Support to the Great Lakes Water Quality Agreement. Special
studies to determine the existence and remedies for toxic
substances in the lakes must be conducted. Remedies for health
impacting discharges must be planned and enforced. Also, the
coordinated efforts of State, Federal, and Canadian efforts to
preserve this resource must be accelerated.
2. Construction of environmentally compatible wastewater treatment
plants. Facility planning must eliminate public health problems
of direct risk (pathogens and toxics) and prevent degradation of
the environment.
3. Assurance that second round NPDES permits are issued to all
major and toxics dischargers.
38
3CO-5 tP£V. 3-751
-------
—2—
2 2 1378
4. Technical assistance to the States, so that the 1983 goals of the
Clean Water Act are met.
5. Conduct thorough and timely reviews of all Environmental Impact
Statements, which could have an adverse effect on public health or
welfare.
As can be seen on the attached FY 1979 and FY 1980 ranking tables, those
decision levels which directly contribute to meeting national and regional
priorities are being addressed by the Region, within our base or within a
reasonable range above the base.
f\^.^i^Region V cannot achieve the national and regional priority for compliance \nj ^
^0^*^.0 by violators of the Clean Air Act. As our decision units state, we now \c. £
J'«^'V' £1 have 33 percent of the national air enforcement case load. Many of these ? "
'T *1M vC^noncompliers are difficult cases and the 1979 SIP revisions will increase 5
\ f^ -'I fc^e number of violators. As a result, for FY 1979, we have ranked Level 2 3
, c^ *( within our base (a 10 percent growth) and ranked two higher levels within <* j]
*'*£,*,.-< the range of resources we should legitimately expect to receive. For f^
v $ FY 1980, we have moved Level 5 within the range we could reasonably expect. |rS <;
As discussed between Mr. Alexander and you, 21 positions are being budgeted 7s1 "
for the Great Lakes program in FY 1979. This represents a 35 percent cut to '• .
the Great Lakes program, and will not provide for full accomplishment of our
priorities in FY 1979. These 21 positions are 12 more than in the current
Agency budget request for 9. At this time, the House Appropriations Committee
has restored 14 positions to the Great Lakes program.
Another major difference with the Agency's budget can be seen where Region V I '.
has programmed a 15-position increase for Air Quality Management within our ( •
FY 1979 planning base of 679 positions. This increase is 62.5 percent of ! -
the targeted increase for the Regions. In this case, we are certain that i \
the FY 1979 budget has erred in not providing enough positions for Air j r
Quality Management to insure that SIP's are revised and promulgated, in order / :
to protect the public health and so that sanctions on community economic /'
growth are unnecessary.
Barbara Blum's May 2, 1978, memorandum, "Planning and Budgeting for Regional
MBE Development Projects" has resulted in resources for MBE being included
in Level 1 of our Municipal Wastewater Treatment Facility Construction
decision unit and Levels 1 and 2 of Administrative Services. Both these
decision units are covered in the FY 1978 position base, when applied to our
FY 1979 and FY 1980 rankings.
39
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-3-
Program Impacts
What follows is a media-by-media discussion of program impacts, a result of
our rankings:
Air
s *""* The basic thrusts in our FY 1979 and FY 1980 air media rankings are
Ti^ regulating health hazards, ensuring effective enforcement, and helping
State agencies to carry out existing environmental responsibility or to
assume new responsibilities.
In FY 1979, a major issue was to ensure that State and regional resources
were ranked early enough to provide SIP development and promulgation for
NAAQS by July 1, 1978. We determined that both State and regional
resources would need to be increased if health-related standards are to
exist and if sanctions are to be avoided. The State increase could come
from Level 4 funding of our air grants; the regional increase would be
made by reprogramming within our FY 1978 resource base. For PSD, our
rankings will obtain regulations from five of our six States. For New
Sources, the rankings will ensure adequate audits and an air quality
impact review of at least 95 percent of PSD and EIS preconstruction
applications.
While FY 1979 must give priority for NAAQS SIP promulgations before
increased enforcement actions in FY 1980, the new SIP promulgations
will result in a 100 percent increase in Class A sources out of
compliance. Thus, for FY 1980, stationary source enforcement resources
are increased in tandem with air quality management.
Ambient Air Quality Monitoring will be decreased by two positions,for
FY 1979. in favor of SIP development and promulgation. This is a
cut of two positions below the national resource range minimum of
100 percent. For FY 1980. two positions are added to assist in short-
term ozone and precursor data needed for urban population centers.
Mobile Source Enforcement has been dropped to the end_of_ our,jranking,,.
because there are too few resources to adequately cope with tampering,
too many for the unleaded program, and none for urban control plans.
^^ Water Quality
,2. For FY 1979, we have closely followed the Agency's budget in committee
;by cutting 25 positions, within our base from Water Quality Monitoring,
"Jf^ Great Lakes, Permit Issuance, Water Quality Management, and Waste
v" Treatment O&M Training. Within the water quality medium, only Clean
40
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-4-
JUN *
Lakes will have an increase of one position. The reductions will
preclude much needed toxics sampling and laboratory analyses from
occurring. Also, Federal O&M field monitoring will be absent, except
as part of compliance inspections.
Our Region has planned to achieve all other guidance priorities within
our ranked FY 1979 resources, including higher Municipal Wastewater
Treatment Facility Construction grant obligations than required in the
guidance Level 3. This was done by deferring some management improve-
ments for construction grants until Level 4.
State program development will be improved by delegation of Section 205
grants and programs to four_of oursix States.
I (U (V e
Lt, -T < 'wy — We also plan to delegate Federal facility permit authority and
&A,o __ Section 404 permit review authority to our States.
f-1 i <- n
For FY 1980, we have proposed an adequate, restored funding for the
Great Lakes program to do analyses needed to save the lakes and
strengthen our enforcement activities for hazardous toxic pollutants.
Actions under Permits Issuance and Water Quality Management are ranked
further down our FY 1980 table to allow for these increases.
Finally, we recommend that the Clean Lakes program be considered for
decentralization from Headquarters to the Regions.
Drinking Water
Region V has reprogrammed 14 positions within our base to accommodate
-fr r^1" - increases to the Drinking Water program for 1979 and 1980. Under
,{*:^ Public Water System Supervision, increased positions are needed above
^~ , Si the base level for the nonprimacy State of Indiana, 21 Indian
'^ reservations and 2 partial-primacy States. Five States in this Region
will be eligible for Groundwater Protection programs; our resources
reflect this. Enforcement will begin in FY 1979 and increase in
FY 1980.
Our priorities for the abatement and control portion of this program
x -p-^,, •$ are to ensure that the public drinking water is protected from
~--1^^''J, <, hazardous or toxic pollutants in Level 1, and to guarantee adequate
c,'^ program support and State overview in higher levels. In enforcement,
[°r' emergencies or health-related issues have highest priorities.
Our radiation and toxics programs have already been integrated into
the planning of our 1979 and 1980 drinking water programs.
41
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-5-
Solid Waste
Our hazardous waste program includes three notable features for
FY 1979: (1) to respond to all environmental emergencies, even if
other commitments are temporarily deferred; (2) to prepare State
, / agencies for implementing approved hazardous waste management programs;
r ^ -j and, (3) to prepare regional permitting, permit review, and enforcement
procedures. Four positions are added to our hazardous activities by
reprogramming within our FY 1978 base. Above the base, seven more
positions are added within the range of resources we might expect.
In FY 1979, Solid Waste Technical Assistance Panels will be increased
by one position within our FY 1978 base resources, and one position
within the probable range to provide State and local agencies with
information on correct disposal practices and with use of wastes for
energy or other recovery practices.
Also, for FY 1979, Solid Waste Management programs should be increased
by one position, in order to provide grants-in-aid and staff guidance to
State agencies. The States need help to inventory open dumps, within one
year of land disposal criteria promulgation, and to prepare a State plan
for solid waste management and disposal.
Funding Level 4 for local and rural solid waste management plans will
provide local and rural areas with the capability to plan for their
increments in the State plans, and to implement planned increments by
purchasing equipment or selecting sanitary landfills.
For FY 1980, Region V has ranked 10 more Solid Waste program positions
within our base, because the progress in FY 1979 will identify more
hazardous problems and increase the requirements for enforcement.
Pesticides, Radiation, and Noise
For Pesticides, we have cut five abatement and control positions
in FY 1979 and FY 1980, to reflect the centralization of the
Pesticides program. Enforcement positions have been reduced for
' FY 1979 and 1980 to reflect the development of State/EPA cooperative
enforcement agreements, although we have not found the States to be
ready for this program. We have included enough PesticTdes^Use
Management positions to provide for adequate health protection of
farm workers and the general public, and for development and approval
of 10 Indian certification programs.
Radiation in FY 1979 and FY 1980 extends beyond the guidance priorities
to integrate radiation program activities into drinking water and toxics
and to respond to emergencies, such as the satellite which fell through
the northern United States and Canadian atmosphere.
42
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-6-
JUN 2 2 1978
frv
.C' f
v
Our Noise program has been very successful with local governments. We
propose to continue our success by covering a current overceiling with
a permanent position.
Toxics
Region V has been providing substantial leadership and support to the
.national toxics program, such as for PCB's. We propose that toxic
concerns be integrated into all media within the Region, that toxic
sampling be done on the Great Lakes, that emergencies be promptly
responded to, and that we participate in information sharing with
Headquarters, the States, and local industries. For these purposes,
we request that at least three positions be added for FY 1979 and that
the regional program be fully funded in FY 1980.
Regional Management
Region V will be able to participate in management reforms and
regulation development within our base resources. Increased analytical
capability will require an added position above our base for FY 1979;
and, the combination of economic penalty assessments and increased
analytical capability will require two positions to be added above the
base in FY 1980.
Six regional R&D representatives have been reprogrammed to other
activiites within the Region, leaving one position for preparation of
annual resource needs, review of R&D activities, etc.
We are distressed that the FY 1979 Agency budget did not provide that
regional management positions keep pace with either base needs or new
analytical responsibilities. Our crosswalk demonstrates no tapping of
resources for management. OEM's analysis shows Region V to be
seriously understaffed (i.e., -9 from the critical mass). In FY 1980
we propose that this situation be corrected, as it must be. We have
provided for five positions to be added to Region V, within the
probable funding range.
Personnel and Organization Impacts
The one area of Region V most adversely affected by our FY 1979 and
FY 1980 rankings is the Surveillance and Analysis Division (SAD).
It is expected that SAD could lose as many as 25 positions, due to
shifts away from air and water monitoring. These cuts may have to
be absorbed by eliminating a district office, severely cutting back
staffing at the laboratory that you just opened, and from our regional
quality assurance activities. The staff will have to be transferred
to new programs or RIF'd.
43
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! ! I V,
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Air and Hazardous Materials Division (A&HMD) is expected to have a
50 percent growth, due to air program increases and to new initiatives
in Solid Wastes and Toxics. Staff in Pesticides will be reduced, as
called for by the Agency's FY 1979 budget. The A&HMD will require
additional space, probably on a new floor in our Regional Office; this
will require negotiations with GSA that have already begun, so we have
notified 0PM1 s Facilities Management Branch of this new space need.
^ ^ c ^ jj^r'The Enforcement Division's total resources will be unchanged, but some
^^v'frf ,J^('M "^ personnel must be shifted out from Pesticides and NPDES Permits, while
, »i £'V>^o Air Enforcement will increase.
fa PV^
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'^ u^& The Water Division will need to expand its space for the Drinking Water
Program, resulting in more moves of other regional personnel from our
central office to a satellite, 2 blocks away.
The staff offices and Management Division will experience some shifts,
but no substantiative changes. Management will have to plan for major
personnel changes and transfers, which will severely strain our
resources. Space adjustments, within our facilities, will require
negotiation; new space will need to be obtained in the central and
satellite offices, while one or more district offices will be closed.
Region V Planning Process
In order to assist Headquarters' preparation of a 2-year guidance, a
member of Region V's Planning staff was detailed to Program Evaluation
Division from November 1977 through March 1978. At the same time, our
Program Planning Chief joined a Program Analysis Division ZBB process
group to plan forms, procedures, and instructions.
In December 1977, we issued a schedule for regional FY 1979/1980
planning, which used the then national schedule, to set critical dates
for conducting our planning, for preparing State-specific guidances for
each grant program, and for conducting mid-year evaluations. Also,
determined, at that time, were the memberships for our media task forces
and an intermedia task force. The task forces were given the
responsibility for coordinating guidance reviews, for preparing State-
specific guidance documents, for developing criteria for State program
grant evaluations for coordinating media decision unit preparation and
ranking, and for preparing an intermedia ranking for the Regional
Administrator. A State planning schedule, which dovetailed with our
schedule, was also prepared and mailed.
We had not gotten very far into January when key dates began to be
missed in Headquarters. As an eventual result of date slippage, two
problems developed with our States. First, they unanimously opted
44
-------
-8-
II IS\; • . rn
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out of participation in our ZBB; and second, the States complained in
writing to us that their own planning was off-schedule, due to the lack
of guidance documents.
Because the final guidance failed to appear on time, we began writing
our ZBB packages using our own forms. Therefore, we became another
"pilot Region;" and we have, as of this date, gone through four FY 1979
ZBB write-ups and three for FY 1980. Despite the uncertainty of
national ZBB forms or guidance, we completed our ZBB process in late
April, including a ranking for FY 1979, which clearly showed
organizational impacts to the branch level.
When the national guidance eventually arrived, our managers made the
conversion from our ZBB formats to Headquarters, but with two major
complaints. First, a number of peculiar Project Program Accomplishments
(PPA's) were introduced; they frequently told less than our ZBB measures,
and were sometimes measuring the wrong activities. Also, the directive
on where to place "overhead" positions made no sense, when compared to
the cuts in the President's Budget.
At this time, the mounting frustrations, of months with changing
schedules, dates, submissions, and ranking procedures, prompted
George R. Alexander, Jr., to write William Drayton that Region V would
submit our own version of ZBB and would not submit draft State grant
ZBB documents, until we have State plans to work from.
Paul Elston came to Region V for a first-hand review of what was
occurring. As a result of his visit, many of our immediate concerns
with the process were resolved; and draft ZBB submissions were provided
to Headquarters.
Some features of our own ZBB that have been lost, though, are that the
actual impacts down to branch levels were obscured in the adjustments
made for Headquarters, and that the Division Directors and I have had
less opportunity to direct our program planning than in past years,
because we have had to respond to the ever-increasing and changing
demands of the national ZBB system.
Conclusion
So far, this has been a hectic and frustrating year for our program planning.
I believe several activities in program planning must be adjusted or corrected.
Still, this could be time well spent; only the next few months will prove that.
Region V is an exciting place to work within U.S. EPA. We normally carry at
least 20-25 percent of the sources for pollution, and from 25-35 percent of
45
-------
-9-
H p
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the enforcement cases to combat pollution. We must manage big grant programs
and major planning for pollution cleanup. I hope that the resources will be
provided to match our responsibilities.
Attachment
46
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AIR
There is an increase of $3 million in grant funds available for
Region V States.
ABATEMENT AND CONTROL
State Implementation Plans (SIP's) must be revised by July 1979 to
provide for attainment of primary ambient air quality standards—or,
no growth in stationary sources may occur.
With regard to controls for vehicle emissions, the States will be
required to implement vehicle inspection/maintenance (I/M) or other
transportation controls, when necessary to attain air quality
standards—a portion of the EPA air grant program increase is
intended to pay for pilot or start up I/M programs.
Other SIP revisions—e.g., for prevention of deterioration of air
quality, public notification, emission monitoring, etc.—are also
necessary to meet Clean Air Act deadlines.
ENFORCEMENT
In part, the increase in State resources has been obtained to keep
pace with enforcement for existing major source violators and for
major sources not in compliance by July 31, 1979; to inspect
stationary sources, especially for hazardous emissions; and, to
review the increasing number of permits for new sources. States
and the Region are expected to have allocated responsibilities for
major source violators between them.
49
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WATER QUALITY
New grant funding is available, based on State assumption of
construction grant activities.
ABATEMENT AND CONTROL
Major new thrusts are: (a) Use of construction grant funds to cover
the cost of delegation of the construction grants program, and, to
the extent these funds suffice, the NPDES permit, dredge and fill
and Section 208 water qualitymanagement program; and, (b) develop-
ment of State/Regional Administrator agreements which outline a
common strategy, individual and shared responsibilities, delegations,
program activities, and grant support for the Sections 106, 208 and
205 water grant programs.
While the Corps of Engineers will retain dredge and fill permitting
jurisdiction for traditionally navigable waters (e.g., interstate
or intrastate commerce), the States can assume dredge and fill
permitting responsibility for other rivers, streams, etc.
FY 1979 is the major year for approval of State water quality
management plans (Section 208) and designation of management
agencies to implement plans.
ENFORCEMENT
The basic water quality enforcement and permit programs already
delegated to all six States will continue, with the addition of
toxic and pretreatment requirements in permits and delegation of
Federal facility permitting. In FY 1979, there will be a dramatic
increase in the number of expiring major permits requiring
reissuance by the States. (45% of the non-municipal permits and
27% of the municipal permits.)
50
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DRINKING WATER
Abatement and Control
Complete the inventory and classification of public water systems
and pits, ponds, and lagoons.
In preparation for the establishment of a program, identify States
requiring underground injection control programs for the protection
of water supplies.
Three States have received primacy (Michigan, Minnesota and Wisconsin)
and two States (Illinois and Ohio) plan to apply in FY 1979. If
Indiana does not apply for primary by April of 1979 their $460,000
grant allocation will be included in the national redistribution of
grant funds.
51
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PESTICIDES AND TOXICS
(These grants are similar to contracts with the State agencies)
Pesticide Cooperative Enforcement Agreements
Four Region V States (Indiana, Michigan, Minnesota and Wisconsin) are expected
to conduct use inspections, establishment inspections, marketplace inspections,
and monitor dealers to support the regional enforcement program for Pesticides.
Pesticide Applicator Certification Grants
States must plan for performing certification of applicators. In FY 1980,
the grants will cease.
Toxics
Demonstration Grants are available from Headquarters for States to show how
they can alleviate severe toxic chemical problems on which EPA is unable or
unlikely to act.
Also, selected States will be eligible for cooperative enforcement grants to
perform compliance monitoring and enforcement for facilities subject to Toxics
regulations. Four Region V States (Indiana, Michigan, Minnesota and Wisconsin)
have existing PCB legislation. $100,000 was requested as an Overtarget in our
FY 1979 budget to fund grants to these States.
52
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SOLID WASTE
Hazardous Waste Management
State programs should be equivalent to the Federal program by
October 21, 1980; a grant program has been established to provide
all six States with funds for developing their programs. All
States are expected to request interim permit authority; they must
demonstrate a plan to do permitting, issue of manifests,
surveillance and analysis, and enforcement; they must respond to
hazardous waste emergencies.
State and Local Solid Waste Management
Funds are provided to the States and local agencies to develop
solid waste management plans; and to oversee site closings and
development. Also, States are expected to inventory municipal
solid waste open dumps beginning with "worst cases," and expected
to issue permits based on review of land disposal plans.
53
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CHAPTER III
This chapter presents a summary of regional involvement in the
Agency's planning and budgeting process as it evolved during
FY 1979/1980. It identifies the major problems we encountered in
implementing the national system and offers a suggested method for
dealing with seven regional issues via refinements to Region V's
system. Listed under the regional issues are specific questions
which must be addressed by the Region V management, if we are to
develop a more meaningful and efficient process for this coming
year.
63
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REGIONAL PLANNING AND BUDGETING SYSTEM
I. PROCESS OVERVIEW
A. Organization
The planning and budgeting process in Region V has been led by Bob
Springer, Chief, Planning and Evaluation Branch; he prepared a
planning and budgeting process design (Chart A is a summary) and
proposed several regional planning documents—e.g., regional
priorities. Two of his staff members were heavily involved: Janet
Mason provided analytic support for the process and Ken Wessel
performed quality control for data. Dick Pressler, Budget Analyst,
Financial Management Branch (FMB) assisted with the financial data.
The Region used the decision unit structure provided by Headquarters;
and, because we used the planning and budgeting process to plan
regional and state program accomplishments and resource distribution,
state and regional program managers were involved throughout the
process.
B. Process Steps
The major steps in the regional process were:
1. Review of Draft Guidance
2. Development of Priorities and Assumptions
3. Development of State Guidance/Evaluation
4. Preparation of Decision Units
5. Analysis of Decision Units
6. Allocation of Resources
7. Budget Preparation
8. Program Reviews and Evaluations
9. Reaction to Changes
64
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nd Conduc
10
Complete
Process
en
-------
Each of these steps is described below. The responsibilities of
managers in the process are illustrated on Chart B.
Step I/Review of Draft Guidance—Prior to the actual planning cycle
"kick off," a memorandum outlining the process, schedule of dates,
and the roles for managers and the media task forces was prepared for
the Regional Administrator (Attachment). On January 12, the Planning
and Evaluation Branch (PEB) conducted training on the new regional and
national planning and budgeting system for regional managers.
Appropriate program portions of the draft guidance were distributed to
all regional supervisors involved in each medium and sent to the states.
Media task force chairpersons called meetings of their task forces and
invited state participation in order to coalesce regional and state
operating and policy guidance comments into a unified regional position.
Region V became the "lead" region for many portions of the guidance; as
such, we had to collect the 10 Regions' comments for oral and written
presentation to Headquarter's program staff and the Office of Planning
and Management (0PM) .
Step 2/Development of Priorities and Assumptions—PEB collected regional
priorities recommended by the media task forces. These were merely
retyped and distributed to senior staff attending a management retreat,
with suggestions that the list was too long, too general, and perhaps
should focus on planned improvements for specific geographical or program
areas. It was determined that the list must be cut to a few, specific
planning goals in specific areas. Division Directors recommended changes
to the list. PEB edited, corrected, met with Division Directors, and
worked up a final draft, which was then approved.
66
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The Regional Administrator was asked to define special issues he
wanted analyzed in the planning and budgeting cycle. Because his
schedule was tight before his departure, he did not do so.
Step 3/Development of State Guidance/Evaluation—From the draft
national guidance, program managers were to develop state guidances
tailored for each program grant, i.e., water pollution control
(Section 106), air pollution control (Section 105), water supply,
hazardous waste management, and solid waste management. This guidance
package was to contain: funding policies, regional priorities,
national program guidance, program application requirements, applica-
tion procedures, output commitment guidance and forms. The solid
waste program did not prepare state-specific guidances; the rest did.
In order to improve regional evaluation reports of state agencies,
PEB performed an assessment of written reports and staff capabilities/
perceptions. The Regional Administrator chose, from several alternatives,
to have each media task force review past evaluation reports, establish
guidelines for preparation of new evaluations, and coordinate preparation
of evaluation reports; the results to be submitted to the Regional
Administrator.
The water quality and pesticides media adhered to this plan; water
supply is now completing the task. The air media began the process
properly; but, no reports were written, because they were "focusing on
new state roles." Solid waste did no evaluation work this fiscal year.
68
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Step 4/Preparation of Decision Units—Region V began an initial ZBB
cycle without the final guidance or final ZBB instructions, despite
warnings that the process was changing. This early start was because
some managers felt they knew ZBB well and changes would not be problems—
they were wrong.
When the final guidance and ZBB instructions arrived, it was necessary
to revise the budget base for planning each decision unit, change
resource range limits, add new performance measures, etc.—in other
words, to fit the national system, we redid the decision units now as
"draft." (At this point, the frustration level of program staff peaked
because the decision units were to be redone and Headquarters kept
changing rules.)
In both cycles, all managers involved in a decision unit participated
in the preparation of the narrative plan, budget figures and planned
accomplishments. A decision unit coordinator was appointed, normally
no lower in the organization than a Branch Chief. The decision unit
coordinator was responsible for preparing a decision unit in accordance
with the agency guidance.
Step 5/Analyze Decision Units—Completed decision units were provided
to PEB for review and comment; at the same time, the media task forces
received them for review and ranking.
PEB analyzed the decision units for organizational impact, accomplishment
of regional priorities at early levels, conformance with guidance and ZBB
instructions, financial data, identification of "population at risk" data,
etc. The comments, which were reasonably thorough in the short time
available, were given to the coordinators for correction prior to media ranking.
69
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The media task forces reviewed the accuracy of the decision unit
information. As a result, some changes were made; e.g., in dredge and
fill we had to plan for state assumption in level 1 and in air quality
monitoring, level 1 was cut by 2 positions. The task forces then ranked
all decision levels within a medium.
Step 6/Allocation of Resources—After ranking by media task forces and
correction for errors, PEB assembled a "strawman" intermedia ranking
of all decision levels for the intermedia task forces, chaired by the
Deputy Regional Administrator. Decision levels were prioritized based
on national and regional priorities, the President's budget, and need.
(Of great concern to some managers were changes made to the water
quality media ranking.)
The intermedia task force made some modest adjustments to the strawman
ranking (e.g., added one or two positions here or there); but it was
generally agreed to and adopted. Five of the changes made in the final
ranking caused decision units to be rewritten.
Now, Region V could and did send its draft decision units to Headquarters.
Based on Headquarters' staff reviews, some additional revisions within
the decision units were made; then, final decision units were prepared.
In Boston, the Regions used their FY 1979 ranking tables to distribute
FY 1979 resources; all regional FY 1980 decision levels were assembled
into consolidated decision units for subsequent Regional Administrator,
agency media, and national intermedia ranking.
70
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Step 7/Budget Preparation—The financial information shown on approved
FY 1979 decision levels was not used to distribute FY 1979 dollars,
because the Regions had exceeded the total available funds. Instead,
0PM used the personnel budgets included in ZBB, distributed a travel
ceiling ($1,021,900 for Region V), gave us our FY 1978 level for
contracts, etc., except that the Great Lakes Program had a low
contract target. PEB staff worked with the budget analyst in FMB to
redistribute the funds; curiously, no major regional need, identified
in the decision units, except for Great Lakes, was left out of our
final budget.
The budgets were given to the program managers for review and comment;
after adjustments'were made, they were sent to Headquarters. The
FY 1979 budget figures shown in this report, Chapter 2, reflect our
submission. In the next several months, 0PM will analyze and,
hopefully, approve the budget submissions.
Great Lakes funding will be restored, if Congressional action is
forwarded through to Region V.
Step 8/Program Reviews and Evaluations—The national system for reporting
accomplishments on our planned activities is now being reconstructed in
Headquarters' national program offices; and, the Planning and Evaluation
Division of 0PM will conduct periodic program reviews and evaluations.
Region V managers have indicated a need for a regional management
information system; PEB is now conducting a survey to identify regional
needs and reporting techniques for presentation to the Regional
Administrator and senior staff. The PEB evaluation activity has been
71
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restricted to elements within the Management Division; this will need
to change, in order to comply with agency directives.
Step 9/Reaction to Changes—The Regional Administrator and senior staff
have traditionally exercised their flexibility to revise budgets,
transfer positions, or grant overceiling positions during each fiscal
year in response to new problems or opportunities. This has already
begun for FY 1979.
II. SYSTEM ISSUES
We have identified several national and regional system issues needing
analysis and improvement. For the national system issues, we hosted a
meeting of the Regional Management Division Directors and planning
staff in Chicago, October 1-4, 1978. The issue papers and options from
that session will be presented at the Deputy Regional Administrator's
November meeting for follow-up with 0PM. Additionally, Bob Springer
spent a week working with Marion Mlay in 0PM to identify planning
problems associated with the agency guidance process.
Regarding regional system issues, there are many areas for reconsidera-
tion before we begin the cycle again. A list of the major categories
is provided below; a full description would take too much space now.
Following this summary is a suggested method for reestablishing our
process.
1. Regional Issues
A. Overall Process Design
bottom-up planning?
how to make the process responsive to Regional Administrator
initiatives?
72
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- how to include organizational analyses, project planning,
cross-cutting issues?
how to improve computer use?
B. Planning
- what is plan for regional programs over years?
- are program managers setting realistic goals, objectives,
etc?
- how are projects to be planned?
- are regional priorities effective?
C. Budgeting
how to tighten up and plan travel, contracts and equipment?
what are we spending $ for when it is freed-up from plans?
budgeting takes too long!
all money, not just EPA funds, must be budgeted!
D. ZBB Process
- should organizational rankings be added to media rankings
(i.e., Enforcement Division rank all Enforcement Division
work)?
is our method of ranking by media effective?
should states be involved?
should we allow national decision units to be planned in
smaller functional decision units?
E. ZBB Content
how can alternatives to present activities be unearthed?
- how to cut down data?
are managers being honest in low levels?
how do groundrules bias content?
how can PED expand workload factor knowledge?
can we add special activities for detailed pricing, e.g., years
on state programs overview?
73
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F. Regional Performance Tracking and Evaluation
- quo vadis?
G. Integration of State Planning
- how can the system work to ensure data needed for state
planning and evaluation is produced?
We recommend that PEB reanalyze the system and prepare a written report
of questions, findings and options. Then, the Regional Administrator and
senior staff or a task force of senior staff should review this report to
plan revisions to our system. The timing of the latter activity will be
influenced by the degree or pace of change to the national planning and
budgeting system.
74
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ATTACHMENT
UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
nr-rt „' A _ REGION V
DEC 30 1077
SUBJECT: FY 79 and FY 80 Planning
FROM: ' George R. Alexander,
Regional Administrator
TO.- Division and Office Directors
Media Task Force Members
As many of. you know, EPA has again revised its planning process.
This time, the changes are to increase Regional Office involvement
and to collect the budget preview and operating planning cycles
into one Guidance document. I support both these efforts.
However, I am concerned that some of the new procedures are
excessive—e.g., the preparation of object class ZBB budgets for
FY 79. Val and I have written Headquarters several times
concerning this new planning system—we will continue to press
for corrections to the system.
I have provided two enclosure:.—a FY 79/30 Planning Calendar and
the designation of membership for our media task forces. Task
force members should note that the new schedule requires you to
invite State participants'in your review of the draft guidance;
please make this a first order of business. If a State is unable
to provide a staff member on its travel budget, please consider a
grant supplement for this purpose.
In order to facilitate your participation in this new system,
Planning and Evaluation Branch will conduct a two hour training
session in Room 1434 on January 12 at 9:00 a.m. Division and
Office Directors, Deputy Division Directors, Branch and Deputy
Branch Chiefs, and Administrative Assistants are urged to attend.
One final note, there are undoubtedly some hectic days ahead in
this new system. I ask your full support. The Agency is already
expecting dividends from its pre-eminent ZBB position for its
FY 79 efforts. Let's not lose sight of the purpose here—it is
to plan for our environmental programs.
Enclosures
EPA FORM 1320-6 (REV. 3-76)
75
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MEDIA TASK FORCES
The activities of the media task forces'are spelled out on the FY 79/80
Planning Calendar; a brief summary of those activities is, as follows:
- review of FY 77 State evaluations, identify weaknesses and good
points; prepare guidance for writing FY 78 evaluations
- review draft National Guidance, provide written and oral comments
- coordinate development of state-specific guidance for FY 79/80
- Involve States in all of the above
Also, after each Division and Office has completed the preparation of its
FY 79/80 decision units on February 28, they are provided to a decision
unit work group of the media task force. The membership of this group is
primarily at Division or Office Director and Deputy Division Director
level, because negotiations for FY 79 resources are conducted here and
ranking of media needs for FY 79 and 80 will be done in the decision unit
work group..
(Members of the task forces or their Division Directors may nominate
additional or alternate membership by January 11, 1977; please write your
nominations to Thomas Yeates.)
76
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AIR
Media Chairperson - Robert Duprey (Air and Hazardous Materials Division)
Members - James McDonald (Enforcement Division)
- Chris Timm (Surveillance and Analysis Division)
• - Robert Springer (Management Division)
- Susan Walker (Office of Federal Activities)
- Jack Chicca (Air and Hazardous Materials Division)
- David Kee (Enforcement Division)
WATER
i
Media Chairperson - Charles Sutfin (Water Division)
Members - William Sanders (Water.Division)
- Dale Bryson (Enforcement Division)
- Don Wallgren (Surveillance and Analysis Division)
- Thomas Yeates (Management Division)
- Ronald Mustard (Office of Federal Activities)
- Charles Lewis (Civil Rights and Urban Affairs)
- Thomas Jackson (Water Division)
- Edith Tebo (Great Lakes National Program Office)
- Almo Manzardo (Enforcement Division)
WATER SUPPLY
Media Chairperson - William Sanders (Water Division)
Members - Joseph Harrison (Water Division)
- David Payne (Surveillance and Analysis Division)
- William Constantelos (Enforcement Division)
- Ivars.Antens (Management Division)
77
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-2-
PESTICIDES AND TOXICS
i
Media Chairperson - Robert Duprey (Air and Hazardous Materials Division)
Members - Karl Bremer (Air and Hazardous Materials Division)
- Mitchell Writch (Air and Hazardous Materials Division)
- Gail Ginsberg (Enforcement Division)
- Janet Mason (Management Division)
- Curtis Ross (Surveillance and Analysis Division)
AGENCY AND- REGIONAL MANAGEMENT
Media Chairperson - Valdas Adamkus (Office of the Regional Administrator)
Members - Frank Corrado (Office of Public and Intergovernmental
Affairs)
- Thomas Yeates (Management Division)
- Thomas Harrison (Office of Regional Council)
- Richard Dell (Office of Civil Rights and Urban Affairs)
- Carolyn Gates (Enforcement Division)
- Thomas Raschke (Water Division)
SOLID WASTE, RADIATION. NOISE •
Media Chairperson - Karl Klepitsch (Air and Hazardous Materials Division)
Members - Horst Witschonke (Air and Hazardous Materials Division)
- Carol Foglesong (Office of Federal Activities)
- James Wilson (Management Division)
- Dale Bryson (Enforcement Division)
78
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VL AGENCY -WIDE RANKING (June-August)
A. ftledia Task Group Rankings and Documentation (three weeks)
Media Task groups will be established for the Agency media rankings effort.
They will' be chaired by a Deputy Assistant Administrator from the
Abatement and Control Office (or the Office of Planning and Management,
when appropriate), with other Program Offices represented either by the
Deputy Assistant Administrator or their deputies. Two Deputy Regional
Administrators or their designees will act as Regional representatives and
the Office of Planning and Management will be represented.
Program Office and consolidated Regional.media rankings will be distributed
by the Office of Planning and Management to each Media Task Group for
consideration in the media ranking. The Media Task Groups will have
approximately three weeks to prepare FY79 and FY30 media rankings, a
report on the ranking rationale and organizational/program impact, and to
review this ranking with Program Offices and Regions. These rankings,
support documentation, and Program Office/Regional comments will be
submitte'd to the Office of Planning and Management, which will prepare a
Briefing Book for the Intermedia Task Group. This book will contain the
Media Task Group reports and an interpretive analysis of .each media
ranking.
B. Intermedia Task Group Rankings and Documentation (three weeks)
The Intermedia Task Group will consist of representatives from the Office
of Planning and Management, the Program Offices and Regions and will be
chaired by the Deputy Assistant Administrator of the Office of Resources
Management. The Intermedia Task Group will review the Office of Planning
and Management Briefing Book in preparation for the development of
Intermedia "strawperson" rankings for both FY79 and FY80. These
"strawperson" rankings will be prepared during the first week of July.
The Office of Planning and Management will then prepare a set of briefing
books for the Assistant Administrators and Regional Administrators,
containing Media Task Group documentation, the "strawperson" Intermedia
rankings, a ranking rationale, and a summary of the resource, program, and
organizational implications of the "strawperson" rankings. The staff will •
also prepare an analysis of any aspects of the Media and Intermedia Task
Group rankings on which there is not full agreement.
C. Agency Ranking Committee Review (one week)
The Agency Ranking Committee will consist of the Assistant Administrators
and two Regional Administrators and will be chaired by the Assistant
Administrator of the Office of Planning and Management.
84
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A series of briefing sessions that will cover the work of the Media and
Intermedia Task Groups will be conducted for the Committee.
*
During the third week of July the Committee will, using the "strawperson"
rankings as a starting point, prepare intermedia rankings. In order to reduce
the need for excessive Assistant Administrator/Regional Administrator
time, the number of Decision Unit levels will be consolidated as in. last
year's FY79 budget exercise.
D. Analysis of Intermedia Rankings (one week)
The Office of Planning and Management, in consultation with the Program
•Offices and Regions, will prepare an assessment of the programmatic,
organizational, and resource implications of the Committee's Intermedia
rankings.
F-. Final Committee Rankings (one week) -. • ---v:-r~ • .-!'-•.-....-.: -..r^i ....
The Committee will review the Office of Planning and Management's
assessment 'of the rankings and will make final ranking decisions on both the
FY79 operating plan and FY80 budget during the first week of August.
F. Administrator Review (two weeks)
A series of ranking review sessions will be held with the Administrator in
mid-August, covering each of the media individually and the Intermedia
rankings. The Administrator will make his preliminary decisions with regard
to the Intermedia rankings. - . ^.~~
*e>-
G. Appeals Process (one week)
During the last week in August, Assistant Administrators and Regional
Administrators will have an opportunity to present arguments for changes in
the Administrator's preliminary decisions. The Administrator will then make
final decisions.
H. Prodtiction of the Office of Management and Budget Submission
The Office of Planning and Management will have two weeks to translate
the Administrator's decisions unto the final ZBB submission and to cross walk
those decisions into the schedules required by the Office of Management and
Budget.
I. Office of Planning and Management Quality Assurance Review and Support
During the various ranking processes, the Office of Planning and
Management will be responsible for continuing quality assurance of all
documentation and analysis, follow-up on issues which are raised, and the
preparation of final briefing documents.
85
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-io-
VE. FINALIZE MBO COMMITTMENTS (six weeks)
Many of the output and impact measures identified in the ZB& decision unit
analysis are included in the MBO system and are tracked on a regular basis.
When this is the case, the ZBB FY79 estimates, which win be built on the
submission of State activity indicators (scheduled for June 1 submission) will
form the basis for the final MBO commitment. The process of finalizing
these commitments will reflect updates of State estimates, allocation of
carry over funds, supplemental budget approvals, Congressional add-ons, and
significant, unanticipated changes in workload.
86
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