^1               TECHNICAL SUPPORT CENTERS
[•
                            DRAFT
                                  Michele Pla  1
                                  Program Evaluation Division.
                                  August 20, 1980
                                      DRAFT
                                  U.S. Environmental Protection Agency
                                  Library, Room 2-1-04 FM-211-A
                                  401 M Street, S.W.
                                  Washington, DC  20460

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                           SUMMARY
     a               '                   «          '
      •                                  *
     As delegation of the Construction Grants Program (CGP)

proceeds the States will be increasing their ataff size and

their ability to manage the program.  At the same time the

EPA Regional program staffs will be reduced and their emphasis
                           • *                     -~          •
will shift from project management, to oversight of state programs

     Even though the Agency is delegating the project management

functions of the CGP it still has concerns about specific

program elements and the quality of the wastewater facilities.
                                                           *
However, with the decrease in Regional program staff size and

the shift toward oversight, the Agency's*capability to affect

these specific program elements is decreasing.        *

     As delegation progresses, the states and grantees are

repeatedly requiring, outside knowledge to solve specific and

complex problems in the CGP.  States, grantees and architect/

engineering (A/E) firms have not consistently developed the

knowledge or experience to address many problems either for

lack of resources? or because they have been slow to react to

the demand.  Knowledge that is available has not. been applied
 »                                              i                _
nationally so that those who need that specific help can

obtain it-

     As EPA delegates the day-do-day project, management of

the Construction Grants Program, it is relieved of a large

quantity of repetitive, but necessary, work.  Many of these

tasks, such as review of proposed engineering contracts and

technical and administrative review of applications, are

extremely resource intensive.   As EPA is freed of these tasks

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                             -2-



it caa concentrate all of its efforts or» ^improving the quality


of the program and the facilities that are constructed.


Continuing direct management or duplicating State efforts,


such as reviewing proposed contacts and applications, will not


add value to the program.  EPA must approach the program


differently than it has in the past and bring  to it different
                                           *

and better skills than the states are providing or can provide.


     The Agency now has a unique opportunity to channel the


resources freed up through delegation into building specific


expertise that is normally unavailable to EPA, the States
                                        *

and grantees.  This expertise could be focused on two things?


studying and advancing knowledge in a specific area, and


applying that knowledge to specific problems.
                                                             %.

     In order to most effectively develop and apply the


expertise, it should bergathered in "centers of expertise."


A center would contain experts within subareas of a functional


area.  The experts would have varying backgrounds (i.e.,


academic, private sector, state, local, and federal  experience)


These experts would together, constitute a Technical Support


Center, (TSC).  These Technical Support Centers will become a


focal point, for- developing- basic national strategy concepts


that can be focused to particular circumstances.  The TSC


will also be the focal point, for technology transfer and


advancement.


     The TSCs will use their focused and concentrated nature


to advance the'program by:

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                                    -3-

             *,o  Acting as consultants to the  States on complex or
                 uncommon problems of importance
              o  Identifying and monitoring innovations or developments
                 of new knowledge and transfering information on tried
                 .and proven solutions.
              o  Identifying knowledge gaps and negotiating through
                                                  *
                 the Research Committees for specific research arid
                 development to support the program.
              o  Packaging materials and training Regional Office ^and
                 State staffs on new initiatives, or innovative
                . solutions to problems.
            The TSC cannot however, serve all  grantees and correct all
       problems*  The centers' work will be most effective if it is
       primarily aimed at the states.  The TSCs' main goal will be
       to help the states succeed as the direct managers of the CGP.
            There are three models for the TSCsr
              o  Single Center Headquarters Model - One national
                 center located in Headquarters under the direction
                 of DAA for Water Program Operations.
              o  Multiple Centers Dispersed Model — One national center
                 ,per functional area located in a Regional Office
i
;                 under the direction of the DAA for Water Program
i                        .
                 Operations.
              o  Regional Model - One or two experts per Region per
                 functional area under the direction of the Regional
                 Administrator.  A small staff in Headquarters to
                 oversee the TSCs.

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           ,                  .4-         t




                  TECHNICAL SUPPORT CENTERS
      •                                  «


The Problem?  A Change In Program Emphasis


     As delegation of the Construction Grants Program (CGP)


proceeds the States will be increasing their staff size and


their ability to manage the»program.  At the same time the


EPA Regional program staffs'will be reduced^and their emphasis


will shift from project management to oversight of state programs


     Even though the Agency is delegating the project management


functions of the CGP it is still concerned with the quality-


of sewage treatment facilities.


     This is especially critical now because the Agency's
      ' •                                               *"

past record of positively affecting the quality of facility


plans is dismal.  Since January 1979, quality review of


facility plans has been performed by a contractor.  Of the


128 plana reviewed in calendar year 1979, over 40 percent had


weakness and omissions.  The weakness of or omissions in the


facility plans included, but were not limited to:


       o  excessive reserve capacity which can lead to


          expensive inappropriate facilities;


       o  incomplete social economic and environmental


          impact: assessments, and


       o  incomplete financing, of the local share of


          capital costs and the O&M costs.1
  Dearth, K."Quality Assurance for Facility Planning",
  July 14, 1980.

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                              -5-
       •                                  *
      Prior to  delegation of the  CPG we had . developed  in  the
      »               •                   *
       •'                 .                *
 Regional  Office a technically competent  engineering staff.
 This  staff reviewed  Facility  Plans  and technical and  engineering
 specifications.   They occasionally  did on-site visits and if
 needed  they were experienced  and competent enough to  signifi-
                           ft •
 cantly  revise  facility plans  and plant specifications.
 However,  as project  managers  they have been'overburdened with
 administrative duties.  The result  has been that, the  staff
 has had little time  to apply  their  engineering knowledge to
 solving common and complex flaws in facility plans.   Instead
 the program staff in the Regions have to*resolve audits,
 ensure  that procurements and  negotiations with contractors
 are consistent with  federal regulations and: respond to public,
 Congressional  and internal Agency requests for time and
 information among other things.  Prior to delegation, and now,
 the Agency haa not concentrated these engineering or  technical
 resources  so as  to improve the quality of wastewater  treatment
 facilities.
     Additionally, we were unable to develop experienced,
 competent staff  for  some' areas of the program because of
 resource^ constraints or because we were unaware of the need.
 The financial  side of this grants program has been underde-
 veloped*.-   There  is considerable insurance work, bonding,
 record keeping and local finance work to be done within the
 program..   Since  in the past we have emphasized the environ-
mental and  engineering aspects of the program we have been

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                            -6-

       "                      "'            "*



unable to fully develop expertise in the area of municipal

      *                                  *

finance.  Areas such as energy efficiency, water conservation



and other new .initiatives have been similarly underdeveloped.



     As delegation progresses, the states and grantees have



repeatedly required outside knowledge to solve specific and



complex problems in the CGP%. * Many problems are encountered


in attempting to implement new intiatives such as water or


energy conservation.  Other problems are related to managing



the grant, such as financing the local share, maintaining



proper records, setting up an affordable and effective user"


charge system or locating a minority contractor*  Still other



problem are site-specific and technically oriented. In an area
                                                      *

that has a shallow water table that serves as a source of drinking


water what kind of effluent conveyance and sludge management



systems should be adopted?  Many States, grantees and



architect/engineering (A/E) firms have not consistently


developed the knowledge to address many problems because



of a lack of access to a broad range of experience.  EPA,


on the other hand, does have staff which have a broader range


of experience.  As the states accept delegation of the program


there is a threat of losing this staff to the states.  It is


imperative that we retain experience and knowledge within the



Agency.  Only if it is kept within EPA can it be disseminated



nationally so that those who need specific help can obtain it.



     The knowledge and experience required to address complex


problems and implement new initatives will not be rapidly



developed in the states.  The states are just beginning to

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                             **>'""         t



take over the large task of day-to-day project management
   ,  *•

Most of the States efforts will be directed towards this


day-to-day management.  There are several ways to increase


the level of knowledge and experience for the states, grantees


and A/E firms, so that they are able to solve complex problems
                           t *

and improve the quality of the program.  One alternative is


to fund separate state staffs of experienced and knowledgeable


personnel for each state.  This staff would represent an


addition to the project management staff funded by 205(g).
                •'                                 •          "•

Such an alternative would be an expensive duplication of


resources from state to state.  Nor would.this alternative


allow EPA to retain involvement in the improvement and-quality


of specific program elements.


     Another alternative which would allowing for continuing


EPA involvement would be to increase the Agency's resources


in research and development (R&D).  The E&D effort would


concentrate on solutions to complex problem and transfer all


new information and technologies to the A/E firms and states.


This solution does hot address the problems of managing a


grant.  Nor does the solution take into account the historic


and continuing gap between federal R&D efforts and private


industry application.


A Proposed Solution;  Develop Expertise Within EPA


     EPA is ultimately responsible for the success of the


C6P. In order to retain involvment in the development and


improvement of specific program elements, advance the program


and help the states solve- complex problems that would otherwise

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 v.±--i:^:-U;ff-g:^Vrv^^^^^                                       	•..; ••.-.-,•-.. •=****_:* :.•••...
                                -8-





«  result, in costly delays it is vital that* .the  Agency retain

*

  the knowledge and experience  it now has  and develop it into



  specific expertise.



       Expertise,developed in EPA would  allow the  Agency to



  contribute to, and affect the quality  of the  program and the



  facilities constructed.
                                             *


  Developing Expertise



       It is important to define how the Agency can  develop



  "expertise".  The first step is to bring together  a staff af



  talented people.  They could have some prior  experience in
                                           m


  the CGP, either as private engineer/consultants, or as local,



  state or federal employees; but simply renaming  an existing



  group of regional staff the experts will not  provide a credible



  expertise that is able to approach problems with the  states.



  We are specifically interested in experts.  They must be



  able to readily analyze problems, do research and  explain



  findings and resolutions to those with less time or detailed



  knowledge.



       The second step to developing expertise  is  to require



  that the staff of experts devote full  time to a  functional



  area.  This requirement will promise the development of a set



  of skills to complement those of the traditional Regional



  Officer, a generalist who must normally  divide his time



  among a number of distinct jobs.  The  experts  must not be



  involved in the day-to-day oversight of  the CGP~  Bather,



  they must focus on two things, studying  and advancing knowledge

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    in the^specific area and applying that knowledge to solve
    problems.  In addition, the duties of the expert must be
    structured so that time is available to raise the level of
    expertise.  Thia is accomplished through research; attending
    conferences,  seminars,  and symposiums; maintaining professional
    -                      •     •
    relationships, and, most importantly pursuing resolutions
    to particularly difficult problems in the functional area*
    in response to issues or problems raised by a State or RO.
    Implementing the Solutionr Technical Support Centers (TSC) *
      In order to most effectively develop and apply the expertise,
    it should be gathered in "centers of expertise."
    A center would contain experts within subareas of a functional
^^  area.   For example a center of municipal finance experts
     ay have some expertise in public finance and taxation and
    others with expertise in bond market and ratings.   The experts
    would  have varying backgrounds (i.e.,  academic,  private
    sector, state, local, federal) and experience.   These
    Technical Support: Centers will become a focal point for
    developing basic national stragegy concepts that can be
    focused to particular circumstances.  The TSC will also be
    the focal point: for technology (anything from I/A to
    financial management) transfer and advancement~   Technology
    transfer will be especially important  for resolving small
    community problems across Regions.   A TSC will be a vehicle
         •                         'i       '            •
    for transferring a tried and  proven solution from one community
      functional  Areas  - Designed  or  adapted to  a particular  need or
      activity.   Functional areas  include:   Municipal  finance, waste
      management, A/1,  I/I analysis,  SSES, or facility sizing.

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                             -10-       '




across the nation to another.
     4                               '   *
      • "                                 •

     The TSCs will have several responsibilities:



     o    They will act as consultanta to the States on complex



          or uncommon problems of great importance.



     o    They will identify and monitor innovations or the


                           %  •

          development of new knowledge and transfer information



          on tried and proven techniques.  .-



     o    They will identify knowledge gaps and negotiate

                                            /

          through the Research Committees for specific



          research and development to support the program.'



     o    They will package materials and train Regional



          Office and state staffs on new initiatives or



          innovative solutions to complex problems.



      The  TSCs will be able to aid the statea if they are



haying  problems in a specific functional area.  The TSC will



be  especially%useful if  consistent deficiencies in a state



program are discovered through an evaluation or audit.  They



can effectively get  the  state back on the  track with



training  and technology  transfer.



TSC Will  Work With the States



      The  TSC' cannot serve all  grantees, and correct all



problems.  The center's  work:, will be most  effective  if it is



primarily aimed  at the states.   The  TSCs,  mala goal will, be



 to help the states succeed as  the direct managers of the CGP.



 Suggested TSCst   Functional Areas  and Required Expertise



      The following functional  areas  are listed as potential



 TSCs.  These functional areas have repeatedly come up as

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                             -11-
problem areas in which the Agency, the States and A/E firms

have not consistently developed or applied knowledge.  It

may appear that the expertise listed below is not different

from what has always been available.  However, the TSC will

need experts who can apply specific knowledge and analytic
                           * *
capabilities that the general chemists or biologist do not
                                           »
have.  The TSCs will provide expertise that is not available

elsewhere.  Over time the functional areas and or the type

of expertise needed may shift or be refined.     .
                                                          •«
     It is vital that these experts be senior level people

who are oriented toward the development, growth and application

of their expertise*  The TSCs will not provide career tadders

for the experts.  The Centers- are envisoned as up and out  ^
                       *                                    j
organizations.  The expertise can be obtained through IPA —**    sp

programs with universities, and other government agencies,

through contracts and direct hiring.  Outstanding State

staff may serve as IPA's for  a specific center.

     o    Sludge Managment                                       *
                                                                ff
          —  Expertise in the management of material            ^
             generated by a facility                            .

             *  chemistry

             •  biology (aquatic)

          -  Expertise in the impact of substances.
             (effluent or pollutants) on streams and/
             or rivers.

             *  hydrologists

             *  aquatic biologists

             *  wildlife management experts

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                   -12-
                               »


Municipal finance
                               «
-•  Financial experts

   *  bond market, rating and insurance experts

   0  accountants

   *  economists
                 i - •
   *  public finance  (taxation) experts

-  User Charge/ICR experts

   *  economists

   *  public finance  experts-

   *  accountants

.-  Grant Management

   9  accountants                            «

Pretreatraent

•  Design and siting  expertise

   *  mechanical and  civil engineering

—  Physical Plant Operation

   *  electrical engineers

   0  chemists

   '  biologists

Water Conservation/Energy Efficiency

-  Design and Siting

   0  mechanical and  civil engineers

   '  hydrologists

—  Physical. Plant Operation

   *  chemists

   •' biologists

   *  electrical engineers

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                             -13-

     q    Alternative Treatment         ,
      »                                  «
          -  Design and Siting

             *  mechanical and civil engineers

             0  chemists

             0  biologists .
                           4  •
             0  hydrologists

             *  geologists

Other functional areas are:

     o    combined sewer overflow,
                                                           *
     o    environmental assessment, and

     o    inflow and infiltration/sewer system

          evaluation survey              ,     '       •

     Following are some examples of how experts in a TSC could

support the construction grants program after delegation»

     Design specificationst  There is a constant inflow of

new equipment and improvement of existing equipment for use

in POTW's.  This creates a need for the process design Engineer

to be kept aware of any advances in equipment performance.

Typically the process design Engineer accomplishes this thru

use of technical literature.   However, this is not sufficient

because it is usually manufacturers literature and provides

no true empirical reliability data.  Second, in situation

where a somewhat innovative approach ia desired in for instance

"Aeriation" equipment the design engineer may want to know

what (1) the latest advances are (2) what should the design

specs be (3) is there really only one manufacturer that can

meet section needs- therefore should a sole source design spec

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                             -14-

      .                       •            *




be written?  State personnel are no better equiped than EPA

      4                                  *


Regional Office staff to answer these questions.  However an



expert on process equipment could probably easily answer



these and a myrid of other questions posed by a grantees



design engineer or State review staff.  After a simple phone



call by a Regional staffer a'Service Center expert could be
                       . -    •


on hi» way and in a matter of a few days could be in to review



the problem, suggest ways of solving it and return to the



Center for the next problem*



     Energy Conservation:  Energy Conservation in a POTW is"



extremely important as a large part of the operating expense



is for electricity, fuel, oil or gas.  New technology in this



area is, constantly evolving.   It is extremely important to be



aware of the methods for energy reduction*  The typical design



engineer, State or: EPA reviewer can't keep up with the latest



information other than to be able to anticiapte when a particular



process seems to be very energy intensive.  If this happens



Technical Service Experts could be called in to review the



design and suggest changes to the directors or inceneration



process for example.



     Alternatives for Small: Communities:  New technology has



made available a great number of alternatives to conventional



POTWs.  Ebr on lot disposal this may include> dry toilets,



septic systems and for conventional sewer systems included are



vaccum or presurized sewers.   Experts in these systems are



needed to help head off major problems due to the many



system designs and types of equipment available and because

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                              -15-


 there^is  limited  emperical  experience  for  the  design  engineers,
       •                                      •                .
 grantees  and  States  to  draw upon.

     The  TSCs can provide seminars  and workshops  for  the  States

 and  Regional  liaisons.  Through  seminars and workshops the

 experts can instruct the officials  on  troubleshooting, utilizing
                            * *
 checklists to review plans  and specifications  and other newly
                                            »
 developed methods of meeting  certain objectives.

     In addition  to  solving specific problems  the TSCs will

 develop checklists and  criteria  that should be considered by

 A/E  firms in  preparing plans  and designs for specific facili-
                                         *
 ties.  Checklist  and criteria are one  means of advancing  the

 State of the  art  and ensuring that grantees, states and"A/E

 firms consider all available  options*

 Incentives to Use the TSCs

     The TSCs will offer the highest quality technical

 resources in the  Construction. Grants Program.  This service

will be essentially free to the  states.  The major incentive

the states have to use the TSC is that the grantees are

demanding specific aid and the States cannot meet the demand.
                                             ,'

However, practically speaking, the grantees may not always

be aware that: they need assistance, and the state may be

unfamilar with the grantees problems as well as the need for

assistance.  Even if the grantee perceives the need for

assistance it may not communicate this need to the state or

to a TSC.

     Clearly the states must be aware that the TSCs exist, what

c.he mission of the centers are and. that the services provided

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                             -16-

      '       •                            *



are free.  The States and grantees must be assured that EPA

      <                                 . *

will not be making their decisions for them, rather the TSCs


are offered to- speed up the construction of appropriate,



economical waste treatment facilities.



Models for the Technical Support Centers


     Below are three models'for organizing the TSCs; the
                           «

Single Center Headquarters Model, the Multiple Centers



Dispersed Model and the Regional Model.


     The Single Center Headquarters Model and the Multiple



Centers Dispersed Model are similar, both are designed



in three tiers and have similar duties. .                   ,



A.  Single Center Headquarters Model
                                                      9


     Under this model the TSC is one national center of



experts located at Headquarters.  The center would report .to



the DAA for Water Program Operations.



The National Center will:


     o    Arrange for applied research; to advance the- state of



          the art;


     o    Work with the Research Committee in ORD to identify



          technology or health effects research areas;


     o    Go-on—site to learn about specific innovations or



          experiments that are underway so that the methods,


          and outcomes? can be transferred to other-localities;



     o    Train regional program staff;


     o    Most importantly consult with Regional Program staff


          on specific problems related to the TSC functional



          area;

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                             -17-
                                         *

     o    Occasionally go on-site with State and Regional

          Program support staff to work with a grantee

          (such occasions would be chosen because they would

          be genuine learning opportunities for the TSC

          center expert (s)) .
                           » •
     o   . Serve as an information clearinghouse

     o    Review a series of grants to identify common

          problems or trends.

     o    Develop improved ways to deal with common
                                                           <•
          problems.

     The second tier of the model is the*Regional liaison.

The program staff in each Regional Office would have at

least one knowledgeable, person who would be the liaison

between the state/grantee and the TSC.   The Regional liaison

would not have the in-depth knowledge, training or expertise

of the TSC experts but he would be able to recognize problems

and to work with the TSC and states..  If a particular problem

required on-site visits the Regional liaison would normally

make the visit.  He would have regular training sessions

with the TSCs.

     The states are the third tier*  They are the clients of

the TSCs and: the Regional liaisons.  If a State require aid

or advice from a TSC it would contact, the Regional liaison.

PROS

     The major advantage of the Headquarters model ares

     o    All  the national experts would be centrally located

          with access to the policy and broader program expertise

          in Headquarters.

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                             -18-


     9^   The TSC experts  would be able* ^to consult with each

          other should they need to;

     o    By locating the one national TSC in Washington it

          will have immediate access to the DAA and to the

          other EPA program officers.
                           » «
This may not always prove to be advantageous.  The TSC experts
                                           •                •
may be diverted from their mission to serve on committees or

lend their expertise to non-CGP work.

CONS

     o    One national TSC, located in Washington, for all the
                   * •                     •             •
          national, experts would result in. the TSC experts

          being removed from program implementation*  This

          real and psychological separation between Headquarters

          and the program in the- field could be detrimental

          to the success of the TSC.  The Headquarters

          policy perspective could conflict with the

          necessarily more practical problem solving

          orientation of the TSCs, whose purpose would be to

          find specific ways to help.or "steer" communities

          to at better evaluation of their options.

     o    The states* who are the clients of the TSC, may

          perceive the centers as* enforcers or watchdogs if

          they are located in headquarters.  If the states.

          think of the centers as watchdogs their ability

          to serve the states will be greatly hampered.

     o    By creating one centrally located TSC at Headquarters

          we lose the ability to locate the expertise of the

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                             -19-


          center with problems that are -geographically
      *             ,                     *
          concentrated.  For example, we would lose the

          opportunity to locate a TSC concerned with water

          conservation in Denver to serve Western States

          which have severe water supply problems.
                           t *

B.  Multiple Centers Dispersed Model
                                           «
     This model consists of multiple separate national centers

of experts.  It is also developed in three tiers.

     For each functional area there will be one national

center that is located away from Headquarters, perhaps
                                        •
in a  Regional Office.  Each TSC will be staffed with six to

ten experts.  This number of experts is necessary to coVer

the range of subareas in functional area and to serve the

entire country in a timely manner.  The1 centers will report

to the Deputy Assistant Administrator for Water Program

Operations.  The TSC experts will have the same duties as

the experts in the Headquarter model*  This is the first

tier of the model.

     The second (regional liasion) and third tier (state

role) of this model are the same as the Single Center Head-

quarters Model.

PROS

     The advantages of locating the TSCs in the Regional Offices

under the direction of the DAA are as follows:

     o    Each TSC would have responsibility for a separate

          functional area. The specific expertise would

          not be scattered throughout the country, rather

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                             -20-
      1                       -           •


          it would be concentrated  and directed.
     4 .                                 *
      *                       -..»..
     o    Locating the  TSC  in the Regional  Offices would


          allow for  interaction  and cross fertilization with


          the  Regional  program staff. The centers will be


          closer to  first hand acquaintance with the  incidence


     o    The  dispersion of TSCs among the  Regional Offices*


          or away from  Headquarters, allows »them to be matched


          with problems that are Regionally or geographically


          concentrated.


     o    The  TSC can use  the regions as "labs" for develop-


          ing  and testing  solutions before  they are applied


          nationally.


     o    Locating  the  TSCs away from Headquarters will


          establish a presence of national  experts that.


          merge policy, theory and practical application in


          the Regions.


     o    Allows for more frequent state interaction than


          the Headquarters Model.


CONS

     o    The TSC under the dispersed model are not centrally


          located within close proximity to the DAA.


          Management and reporting problems may occur.


     o    Locating the centers in separate Regional Offices


          under the direction of the DAA may cause tension


          between the RA and DAA.


     o    If there are not  ten TSCs, each  specializing in a


          separate, functional area, some Regional Offices

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                             -21-
      ,      -                 -            *


          may not have a TSC. The result may be that TSCs
      4                                  *
      •     -                             •
          become a political football in negotiations between

          RAs and the DAA concerning the location of the centers.

     One way to avoid tension between the DAA and the RA is to

make the TSCs- a regional resource under the direction  of the RA
                           t  *
However, if the TSCs become.a regional resource they would lose

their national focus, and perhaps not effec€ively serve as national

centers of expertise.

     C.   Regional Centers Model

     The regional TSC model consists of one or two experts, per

region per functional area.  These experts are regional resources

and are under the direction of the R.A.  In Headquarter* there

would be a small staff to oversee the TSC.

PRO '

     The advantages of this model ares

     o    There would be an expert for each functional area

          in each region.

     o    The expert could concentrate on the specific environ-

          mental, social, political and economic realities of

          the region.

     o    The TSC would be under the direction of the R.A.,

          thus assuring that there would be no tension between

          the R.A- and the DAA.

CONS                                                              .

     o    The Regional TSC model does not fit the concept of a

          center of expertise that:

          - allows for information collection and transfer.

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                      -22-

                                  f.


    - advances the state of the art,

                                 c
*    - maintains contact with the research components of


     Agency, and                          •            -


    - is up-to-date onthe current theory and research


     in the academic and industrial community.


    The Regional TSC proposal would require much more


    personnel and would not be delivering a better or


    comparable product.


    It is unrealistic to expect that one or two people


    can be experts on every aspect of sludge management or


    know all about bonding, public,finances, and economics.


    It is not likely that one or two'persons would contain
                                                *

    the proper mix of theoretical and practical knowledge


    required' to create a TSC.


    The Regional centers do not have an economy of scale


    which would allow every Regional TSC to collect nationr-


    wide information from all over  the country on the


    different methods of solving a particular problem;


    this would be a massive duplication of effort and


    mi sue of resources.  The point of having one national


    center per. functional area is to not duplicate effort


    or misuse resources, rather to  concentrate them


    and direct, them: in. the most effective ways.


o   As regional resources the centers will lose the national


    focus.

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                               -23-
      The  major goal of the TSC is tq entire that  the most



 efficient,  economical and. appropriate treatment facilities



 are  designed and constructed.  In order to meet this goal the


 TSCs will develop and concentrate expertise that  is unavailable



 elsewhere.   The expertise w;Lll be used to advance the



 Construction Grants Program! and to help the states solve
                                              *


 complex problems.
'.-i.'-*e-r.:'~v
.'-": *}%•

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    MULTIPLE- CENTERS
    DISPERSED MODEL
        (MICRO)
   DAA
  WATER
PROGRAMS
OPERATION
 R.L.=
-Regional Liaison
         (MACRO)
                                     DAA FOR
                                  WATER PROGRAMS
                                   OPERATIONS

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                                        EEMJOJOARTERS MODEL

^P'
. •

i
i
• MUNICIPAL
; . CONSTRUCTION
i DIVISION


•
DAA FOR

*

WaiER PROGRAMS
-"

OPERATIONS

* *
f
i
k
i* .1 i >r

*


•



' ' 1 ' •-• •
•1
, . FACILITIES
REQUIREMENTS
DIVISION
w



[

•
*



!







1 -3
" ^
i • -t
i /"^""^
OIL & SPEC. 1 /NAT'L
MATERIAL | 1 TSC
CONTROL V^ ^
DIVISION j ^^^
i
• . ^ .

'-. I 1 """'
L.  .  R.L.    R.L.
R.L.
R.L.   "   R.L.
R.L.
R.L.
R.
   KL= Regional Liaison

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td

M

n
M

o

25
2

§
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tr1

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                           Appendix
              Example of How a TSC Would Address
                     A Particular Problem
     A small community in a rural state has a seriously
failing septic system.  The community is located next to a
Class I stream.  Sport fishing, especially trout, has made
the stream an important recreational and wildlife resource.
                                                        «
The B*/f*mc failings have become so serious that the community
                   4        '     •                      •
has decided to build a sewage treatment.plant»  The outfall
will be 'in the trout stream.                        "
     The small community has never had to work with an A/E
firm before on such a large, costly, federally-financed
project.  The community is too small for housing grants, and
the highway grants are handled by the county or state.  This
is the"community's first.experience with financing, and
directing the planning, design and construction of a publicly
owned facility.  The project is so overwhelming for the
community Aldermen, that they are totally dependent on the
A/E firm.
     As the A/E firm puts together the facility plan and
during the first phases of the design the community operates
on a pay-as-you-go basis.  It isn't until, well into the design
on the facility (Step 2)  that the Board of Aldermen finally
realize the tremendous financial and technical burden they
are imposing on themselves.   They halt the project immediately,

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   '       .                   -2-





  '•  The community seeks out technical aid and advice from



the state. . The community and the state decide that the best



course of action is to redesign the plant to reduce costs.



It becomes clear to the state that some expertise in municipal



finance is needed in order to help the community finance even



a redesigned, less costly.facility.  The community has always
                                        »


operated on a pay-as-you-go basis it has no experience with



municipal bonding or financing.  (The state environmental



program does not have the level of expertise in municipal



finance or the time to offer the community.)         »
                                     * •


   -  The Regional Office program staff-have little experience

                                                   •

in AWT.  However, there is a TSC for AWT.   The Regional



Office program staff calls the TSC, and outlines the problem
                      *

for the TSC experts.  The TSC experts request that specific



information be. sent to them (via telex).  This includes infor-



mation about the community/, the size of the sewage problem,



the environmental state of the stream,  and other data necessary



to develop a resolution to the problem. ,



     Concurrently, the Regional program staff get in touch



with the TSC tha,t specializes in municipal financing.  The



Regional program staff agree with the state that the community



will heed some expert aid and advice on municipal bonding,



and financial management*



     The- two TSC must work together because not only does



the community need a treatment facility that will protect the



Class I trout stream, it must be able to finance the construction



and pay for the operation of the facility.

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                             -3-
  '        .        .      •            *
     The TSCa approach their specific problem in a similar
fashion,  if there are any similar problems in another part
of the country they search out the problem and resolution to
see if it is applicable.  They are aware of the literature,
the theory and the current research that is being done that
relates to AWT and municipal finance.  The experts are able
to select the relevant information, analyze the data they •
receive and produce option(s).
     When the AWT experts come up with an option(s), they
inform the municipal finance TSC so that the possible, options
for financing the facility can be examined.  The TS£a keep in.
close contact with the Regional 'liaison who communicates
regularly with the state and grantee.           *
     When an option that is acceptable to all parties is:
decided onr two things occur.  The TSC expert, meet with a
state representative, the A/E firm representing the grantee,
the grantee and the regional liaison.  The TSC experts on AWT
present a skelt'on design and explain to the A/E firm how the
design should be finished according to the communities special
circumstances.
     The TSC experts on municipal finance will do some video
                      *
tape training: with the grantee and state-on how to finance
the facility.  The training need not be extensive.  In fact
the TSC experts need only to explain how the financing should
be carried out and then recommend a private firm which will
do all the work for the community.

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                              -4-

  • •              .                    *
     When the  facility design is completed and a municipal

financing program is designed by an investment firm the TSC

experts may review them for  the state and grantee, if so

requested.  All the comments will go to the state.

     The TSC will keep in*contact with the regional liaison

to make sure that the  project's implementation is smooth.

There will not be any  need for the TSCs experts to make any

on-site visits.  The particular problem will become part of

the experience and information that the TSC.can transfer and

apply elsewhere in the  country.
               Protection Agency


401 M Street   .v^
                Library Ro°m

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