United States
           Environmental Protection
           Agency
Rsgior V
230 ;.'• ih Dearborn
Chice  * * * r" I' if i, r, <•'
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                                    ^'. JJx^^-c/^v-*.:-' ^ *

-------
                        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

-------
    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

-------
                                            -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

-------
                              -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

-------
! ! I V,
 u
                                            —7—
                   ~* O »« ••-, "7 -v
                r-
               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^
'  I,1-   f>*
 '^ 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
    JUh „, --  .rj/0

     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
Ju

         -'Q7
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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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

-------
                                   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

-------
                                     -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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                                                                       -16-
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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                                                                    -14-
    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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