A QUALITATIVE EVALUATION OF THE
EPA INTERNAL COMMUNICATION SYSTEM
Final Report
Prepared for:
Office of Human Resources Management
U.S. Environmental Protection Agency
Washington, D.C.
EPA Contract Number: 68-W1-0019
Delivery Order 11
Prepared by:
Westat, Inc
1650 Research Boulevard
Rockville, Maryland 20850
March 24,1992
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ACKNOWLEDGEMENTS
Westat would like to acknowledge the many individuals who contributed to this study.
Grace Sutherland, Office of Human Resources Management (OHRM) was the Delivery Order
Project Officer She provided technical direction throughout the study and moderated the focus
groups held in Corvallis, Oregon and Boston, Massachusetts. Kenneth F. Dawsey, Director of the
Office of Human Resources Management, provided important management support to the study
by encouraging EPA staff to participate in the focus groups. Thorne Chambers, Director of the
Employee Participation and Communication Division, OHRM, and Edna Rodriguez, OHRM, also
played important roles in this study by facilitating the Internal Communications Workgroup and
providing input throughout the project.
Westat would like to thank the other EPA staff who assisted in this study. They are: Rob
Senty, EPA Headquarters; Laurel Seneca, Region 1; Linda Adams, Region 8; Mike Manor,
Region 10; Tom Murphy, Corvallis Environmental Research Laboratory; and Randy Brady and
Mary Ann Smith, Research Triangle Park. We also wish to thank Mel Kollander of the EPA
Headquarters, Statistical Policy Branch, who served as the Alternate Delivery Order Project
Officer.
Special thanks to all of the EPA employees who participated in the focus groups and
provided us with the data which are presented in this report.
Several members of the Westat staff contributed to this study. They are: Stephen Dietz,
Corporate Officer; Shelley Perry, Focus Group Moderator; Michael Vendetti, Study Coordinator;
David Lowe, Programmer; Forest Meader and Melinda Katz, Focus Group Recruiters; and,
Danuta Bassett, Task Manager.
The author of this report and principal investigator for the study is Arthur L. Korotkin,
Ph.D.
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TABLE OF CONTENTS
Section Page
EXECUTIVE SUMMARY iii
I INTRODUCTION 1
H APPROACH 3
m RESULTS 5
A. Agency and Communication Climate 5
1. Motivation for Working at EPA 5
2. Keeping Informed About Agency Business and Where
EPA is Heading 5
3. Keeping Informed About Human Resources Issues 7
4. EPA's Internal Communication System 8
B. Types and Sources of Information 9
1. Manager'il Guidance 9
2. Information About EPA Mission and Initiatives 10
3. Technical and Procedural Information 10
4. Human Resources Management Information 11
5. EPA Organizational Information 11
6. Information on External Issues 12
C. Channels of Communication 13
D. Information Needs and Satisfaction with Current System 15
E. Assessment of Specific Initiatives 17
1. Strategic Directions Document 17
2. Newsletter 17
F. Problems and Solutions 17
IV CONCLUSIONS AND RECOMMENDATIONS 21
Appendices
A STRATEGIC DIRECTION FOR THE U.S. EPA
B OUTLINE OF PROPOSED EPA EMPLOYEE NEWSLETTER
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EXECUTIVE SUMMARY INTERNAL COMMUNICATION EVALUATION
EXECUTIVE SUMMARY
Between December 3, 1991 and January 16, 1992, Westat evaluated the Environmental
Protection Agency's (EPA) Internal Communication System at the request of the Office of Human
Resources Management. The goal of the study was to assess the opinions and attitudes of
employees concerning internal communications. Specific objectives sought to identify any existing
problems and, based on the findings, make recommendations to EPA on how to make
improvements.
Using qualitative methods to collect information, Westat conducted a total of ten focus
groups at EPA Headquarters, Research Triangle Park ORD laboratories, the Denver Region 8
Office, and the Seattle Region 10 Office. Following the same discussion guide and protocols, EPA
staff conducted four additional focus groups on internal communications at the Boston Region 1
Office and the Corvallis Environmental Research Laboratory.
The series of focus groups produced a rich set of data for analysis. There are striking
differences in the perceived needs for information which appear to be dependent on many factors,
including: location, nature of the work, level of position, and tenure at EPA. However, several
themes emerged which displayed a high level of consensus. These include the following:
1. There are communication problems. There is general agreement among the
respondents that problems exist within EPA's Internal Communication System. The
specific problems and their severity vary with geographic location and the level and
nature of the individual's position within EPA. For example, a high priority for the
professional/technical staff is better access to professional and technical information.
The administrative/support staff would like improvements in the timeliness and
quality of administrative information. The motivation for both is to be able to do
their jobs more efficiently.
2. There is no formal Internal Communication System. The Internal Communication
"System" is not a true system. A system is commonly defined as an integrated
combination of people, technology and procedures designed for a particular purpose.
In contrast, EPA has a collection of channels used for communicating information,
but not in an organized or coherent manner. There is a lack of consistency from site-
to-site, office-to-office, and among individuals about what services and equipment are
available and accessible.
3. Some people are overloaded with information they do not need. To some extent, a
paradox exists within the Internal Communication System. While there was a general
feeling that there was insufficient information of certain types, there is at the same
time a feeling that there is actually too much information in the system. Much of this
information in the system can be described as "noise." Noise is information that is
either not useful, unwanted, or redundant. It makes getting to the information that is
wanted and needed more difficult and time consuming. Many people don't have the
time or patience to sort through all of the information coming to them simultaneously
through the various channels. They feel that there ought to be some filters or
constraints on what gets sent to them. Many would like a system that would offer
them the opportunity to browse and select what they want to receive, see, or ignore.
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EXECUTIVE SUMMARY INTERNAL COMMUNICATION EVALUATION
4. There are some parts missing from the system. Participants feel that there are some
important parts missing from the system. Suggestions such as better communication
linkages between locations, a technical newsletter, a directory or guide book to EPA
people and activities, and an EPA Hotline were all mentioned as items which could
help everyone do their jobs more effectively.
5. Information on mission, goals and directions is lacking. In general, employees at all
levels felt that the worst communication problems dealt with the mission, goals,
direction, and current status oi EPA. There is a sense that they need to know where
EPA is now, and where it is heading, in order to understand their own role in the
organization, and the nature of their contributions. In addition, there was a need to
know the status of various environmental initiatives, and EPA's official position on
such initiatives so that staff can adequately and accurately represent EPA to the
public. EPA employees perceived themselves, and are perceived by others in the
community, as representatives of the agency. They felt they need better and more
current information about agency activities and better access to information about
activities outside of their own work. With quality information, they could do their job
better and better serve the public when inquiries are made.
6. OHRM communications receives mixed reviews. The communication of human
resources management and personnel information, although needing improvement,
*vas generally per.^ived as better than other parts of the communication system.
However, the quality of the services provided varied among the different locations. In
general, participants felt that critical information about benefits and other important
personnel matters were received in a timely manner. There were strong positive
feelings about sensitive human resources information being mailed directly to the
privacy of their homes. The strongest negative criticism focused on the failure to
disseminate career-related information such as job vacancy and training
announcements in a timely manner. Many respondents stated that by the time the
information was received it was often too late to apply for an open position or sign up
for training that could lead to advancement.
7. Managers are viewed as an important information channel. Employees view
managers as having a critical role in the organizational communication process. They
are responsible for passing information up to higher level management and down to
those who report to them. They need to keep their staffs informed on a regular basis
about what is happening in the agency and their unit. In addition, managers need to
supply feedback to the staff regarding what happens to their work once it gets passed
up the line. Staff meetings offer an excellent vehicle for such information exchange as
long as opportunities exist for both giving and receiving information. Communication
should be a two-way process.
8. Not everyone's information needs are the same. The need for information is not the
same for everyone in EPA, and may vary with job level, nature of the work, and
location. For example, there are differences between the needs of those on the
professional/technical staff and those on the administrative/support staff. Both
wanted the same quality and timeliness with regard to Human Resources information.
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EXECUTIVE SUMMARY INTERNAL COMMUNICATION EVALUATION
However, to perform their respective jobs, the professional/technical staff wanted
more high quality technical information, while the administrative/support staff
desired current and accurate information on administrative policies and procedures.
Both groups also wanted more information about EPA, including its current plans,
status, and objectives. The professional/technical staff felt they need this information
to better understand their role in the agency. The administrative/support staff also
would like this information, but in a form they could readily understand, without
technical jargon and acronyms. They saw this knowledge as critical to their role as the
"front-line communicators to the public."
9. Geography influences communication effectiveness. As is typical of many large
geographically dispersed organizations, many respondents in the Regions and
laboratories outside of the Washington, D.C. area, felt isolated from both EPA
Headquarters and each other. Differences in time zones, delays in receiving and
transmitting information at locations outside of Washington, D.C., Regional
differences in being able to respond to Headquarter's requests (e.g., the need to
interact with state officials), and delays in receiving or lack of feedback, all put strains
on the communication process. Although some of these problems cannot be
eliminated, they can be reduced by simply recognizing that they exist. Effective
communication across the many agency sites can be enhanced by making full use of
the technology available (e.g., fax machines, computer networks, teleconferencing, and
video conferencing). There also is a need to develop and reinforce the perception
that there is one intergrated EPA.
10. Informal channels are seen as the most reliable. While there was no single issue on
which there was total unanimity, there was very strong agreement among most of the
participants that if you really need information that is reliable and unbiased, the best
way to get it is through the informal channels. Whether it is the latest information on
promotions or awards, what is happening at your site or Agency-wide, or, for the
professional/technical staff, exchanging technical information, people talk to their
network of friends, acquaintances, co-workers, the people with whom they eat lunch
or drive to work, or other people referred to them by their existing network - the
grapevine! They communicate in-person, by telephone, by E-Mail and by fax. There
apears to be a high level of satisfaction with information received over the informal
channels, and a general acceptance that most of what they receive is accurate.
11. Problems in communication negatively impacts on morale. The most critical
consequence of the problems with internal communications is the impact on morale.
Feeling uninformed about the direction of the agency and current initiatives, lacking
necessary information about your job and career, and needing more or better
information to be more effective at your work appear to be causes of frustration
among many focus group participants. This, in turn, can have a strong negative
impact on morale. In general, EPA employees want an improved Internal
Communication System so that they can do a better job and feel better about
themselves, the work they do, and EPA.
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EXECUTIVE SUMMARY INTERNAL COMMUNICATION EVALUATION
Limitations and Caveats
As with any research effort, there are limitations and constraints which the reader should
recognize. This report draws conclusions about EPA's entire organization based on 14 focus
groups conducted at Headquarters, two laboratory sites, and three Regional offices. The sample
used for the study was a non-probability sample (four focus groups held at Headquarters and 10 in
the field). However, despite the lack of a large random sample of respondents, there were
frequent recurring themes, perceptions, and comments found in the focus groups that tend to
support the study's main findings.
In interpreting the findings presented in this report, it must be emphasized that the study
reported here is a qualitative analysis. The findings are based on data gathered from a small
sample of EPA employees and should be interpreted with care. The results should be viewed as
suggestive as opposed to definitive. Data obtained from focus groups is exploratory and is
commonly used to identify possible issues that are worthy of further research. Indeed, this report
recommends further study. There are problems with EPA's Internal Communication System.
Some of them are identified fairly clearly by the focus group data, while others are merely
suggested. It is suggested that the next step in studying this problem should be a quantitative
analysis utilizing a survey of a representative sample of EPA employees at all locations. The
results of such a survey could provide the data necessary for developing a comprehensive action
program to improve communication at EPA.
Organization of the Report
The specific findings of the focus group study are presented in the following sections of the
report. The Introduction presents an overview of the EPA Internal Communication System and
the rationale for conducting a qualitative analysis of the System. The Approach section describes
the methods and procedures used for data collection and a description of the sample of EPA
employees who participated in the study. The Results section consists of an analysis and
integration of the findings from the focus groups. The Results are organized by the main areas of
interest and are generally consistent with topic areas of the Focus Group Guide. The Conclusion
and Recommendations section presents conclusions drawn from the data and a set of
recommendations based on these conclusions.
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I. INTRODUCTION INTERNAL COMMUNICATION EVALUATION
I. INTRODUCTION
There has been continuing interest over the last several years, in improving the effectiveness
of internal communications within EPA. The term, internal communications refers to how EPA
communicates information to employees agency-wide, particularly information on agency business
and personnel matters. Internal communications encompasses the kinds of information employees
receive and how they receive it. The qualitative analysis of the Internal Communication System at
EPA presented in this report is part of a longer term effort by EPA to study, analyze, and improve
EPA's internal communications.
The EPA Human Resources Council has been concerned with the effectiveness and
efficiency of internal communications for some time. In March 1990, the Council established a
subcommittee on Internal Communications. The committee was given two major objectives:
(1) Recommend ways in which EPA's top management can better communicate with the
staff regarding the strategic directions, progress, and status of the agency.
(2) Provide insight and recommendations on the "best practices" which should be adopted
by EPA as a whole or by individual EPA organizations, to improve internal
communications.
The Subcommittee completed two major tasks. First, the members conducted a study of ten
large private and public organizations including such leading firms as AT&T, IBM, and Xerox.
The goals were to identify the best practices and common themes which might be useful to EPA.
Key individuals were interviewed at each organization. A report on this activity, which
summarized the interviews, was published July 11, 1990. The interviews were analyzed and a
second report was submitted January 16, 1991 entitled, "Problem Identification and
Recommendations." This report presented a series of suggestions for improving communications
based on the analysis of the best practices interviews.
The second task was the development of an Internal Communications Questionnaire which
contained suggestions selected from the material in the January 1991 report. The questionnaire
was distributed to members of the Human Resources Council. Respondents were asked to rate
the effectiveness of various suggested communications activities. There were two lists, one for
activities of the Deputy Administrator, and the other for agency-wide implementation.
Approximately 50 responses were received. A report on the findings was published June 11,1991.
In February 1991, based on the interest of the EPA Deputy Administrator to examine the
issue of internal communications, an Internal Communications Workgroup was established by the
Office of Administration and Resources Management, and the Office of Communications and
Public Affairs. The Workgroup's members came from across the Agency. The Workgroup was
charged with building on the work of the Human Resources Council, identifying existing problems
with the Internal Communication System, and making recommendations to the Administrator and
the Deputy Administrator on how to improve the system. The Workgroup recommended the
focus group study described in this report.
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I. INTRODUCTION INTERNAL COMMUNICATION EVALUATION
In September 1991, the Office of Human Resources Management, acting on behalf of the
Workgroup, asked Westat to conduct a qualitative analysis of the EPA Internal Communication
System. The specific purpose of the study was to assess the opinions of employees throughout the
agency regarding the overall communication climate, amount and types of information received,
sources of information, timeliness of information, effect of the communication process on work,
perceived communication problem areas and their reactions to a proposed Agency-wide
newsletter.
The Internal Communications Workgroup, working with the Office of Human Resources
Management, will use this report to develop recommendations for the Administrator and Deputy
Administrator.
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. APPROACH INTERNAL COMMUNICATION EVALUATION
II. APPROACH
Based on the Internal Communications Work Group's recommendations to do a focus
group study, Westat was asked to conduct a qualitative evaluation of EPA Internal
Communications. The plan was to conduct a series of focus groups with non-supervisory staff from
EPA Headquarters, the Regional offices, and the laboratories. Prior to the start of data collection,
Westat and EPA worked together to structure a research plan and a Focus Group Guide. The
plan outlined the goals and objectives of the study and the general approach. It also specified the
number and location of the focus groups to be conducted and the schedule for accomplishing the
research.
The Focus Group Guide developed for this study was an important part of this evaluation.
It provided guidance to the focus group moderators about topics to be discussed and general time
considerations for each of the discussion topics. Although focus group discussions were to be open
and spontaneous, the guide was designed to provide enough structure so the moderator could keep
the discussions focused on the issues to be explored. It also provided sufficient structure to collect
comparable data from different sites regardless of who was moderating the group. The guide
formed the basis for the data analysis since it listed the topics and issues of interest.
Westat staff conducted a total of ten focus groups between December 3, 1991 and January
16, 1992 involving 86 EPA employees at four different sites (Headquarters, Washington, DC;
Region 8, Denver, CO; Region 10, Seattle, WA, and the in Research Triangle Park, NC
laboratories ). EPA staff conducted four additional focus groups, involving 34 employees at two
sites (Region 1, Boston, MA; and the Laboratory, in Corvallis, OR). Half of the 14 Focus Groups
were conducted with members of the non-supervisory professional/technical staff, and the other
half with members of the administrative/support staff. The sample for this study was statistically
non-random. Westat purposefully recruited participants that represented the tenure and
demographic characteristics of all employees in the two categories, as well as the different EPA
organizations and geographic locations. The participants also were selected to represent the
diversity of the EPA staff. Variables considered in the selection of participants were gender, race,
ethnicity, job level and age. Approximately 8 to 10 employees participated in each focus group.
The discussions with EPA staff at all sites appeared to be open and frank.
In interpreting the findings of this report, the limitations of the size and representativeness
of the participant sample must be noted. In addition, it must be emphasized that the purpose of a
qualitative analysis using focus groups is to get a sense of the issues and problems. The results are
not statistical and should not be generalized to the population from which the sample was drawn.
Focus groups are an excellent and useful technique for gathering a wealth of first-hand data for
assessing, quickly and efficiently, the general nature of perceptions, opinions, concerns and
experiences relating to a given topic - in this case, the EPA Internal Communication System.
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777. RESULTS INTERNAL COMMUNICATION EVALUATION
III. RESULTS
This section provides a discussion of the focus group participants and their reactions to the
topics in the Focus Group Guide. It also presents a selection of actual quotations that illustrate
the sense of the group consensus. Further analysis appears in Section 4, Conclusions and
Recommendations.
A. Agency and Communication Climate
1. Motivation for Working at EPA
^
The respondents held a wide range of positions at EPA and had varied lengths of tenure.
They possessed a variety of reasons for working at EPA, as opposed to other Federal Agencies or
the private sector. Reasons given ranged from "there was an opening when I was looking for a job"
to "I think what EPA does is important." Obviously, EPA is an attractive place to work for those
having degrees in, or related to, the environmental sciences. The agency also has attracted people
who have a personal commitment to preserving the environment. Many respondents prefer EPA
to other government agencies because of the professional growth and career opportunities offered.
In the Regions and the laboratories, holding a Federal job was viewed as highly desirable because
of its relative stability, pay, anH benefits. While those who have held government jobs for some
time felt tha* many of the advantages have eroded, they still felt that Federal jobs are desirable
when compared to other employment opportunities in their local area.
2. Keeping Informed About Agency Business and Where EPA is Heading
Very few of the respondents thought they received direct information on EPA's general
direction and goals. Most felt they knew about activities that were happening in their own specific
area but not about agency-wide activities. The general view expressed was that most of what they
knew about EPA's business and the direction of the agency was learned from newspapers,
magazines and journals, television, and radio. Other respondents felt that while
there were some written attempts to communicate EPA's direction and accomplishments, they
were either too lengthy and technical or too general to be informative. Some expressed the need
for information that was concise, less technical, and free of jargon and unfamiliar acronyms.
Another group felt that what was needed was a communication style that was candid and "told it
like it is."
The following includes several typical comments made by respondents:
• "If you want to find out something, you can, but it's not right outside your door. It takes
effort."
• "We don't get much in the way of internal information as to where we are heading ...
[like] a synopsis form or an abbreviated form that you can take in."
• "Sometimes they tell us what we want to know, not necessarily what we need to know."
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HI. RESULTS INTERNAL COMMUNICATION EVALUATION
• "You have to get out and learn this through networking and find out what you want to
know because you know it's not going to be communicated down [to you]."
• "We need something in-house that is brought to the level you can understand. Most of
what is put out [Le., published] is too technical"
The view was also expressed that there are wide differences between what management
knows and what was being communicated to the staff. This appeared to be a general problem
across sites and across jobs. It was felt that some individuals, because of their positions, hear more
about EPA's business, mission, and current direction. Employees felt that managers should be
responsible for communicating information about what is happening in the Agency and their unit.
They also need to make communication a two-way process by providing feedback to staff on work
submitted and encouraging inputs and questions.
• "If you 're not at the top, it doesn 't always get filtered down. You may get bits and pieces
after hearing or stumbling across something."
• 7 don't think they [management] include their employees in making them feel a part of
the program."
• 7 am not sure we communicate program-to-program well, and I don't know what the
priorities of the other programs are. The top managers know, but I don't think it's
communicated down to us."
• "Managers have all the information, but they weed out what they think you need to know
without asking you what you want to know. You end up finding out what's going on in
your own area rather than the whole agency. Some news effects everyone, tracking
procurements, and budgets, but it doesn't help when it onfy goes to the Senior Managers."
There was a general notion that knowing about agency business and where the agency is
heading was important. Most of the staff felt that it is important for everyone to know what the
agency's goals are, so that each person can see the importance of their individual contributions in
achieving the agency's objectives. This was true for all levels of people who participated in the
focus groups.
• "It stimulates your mind to what you've been doing all this time."
• "Wanting to know and trying to understand what's going on and how it all fits together -1
think that's very important to the secretaries as well as the managers."
• "One office took the secretarial staff to a composting site and water treatment site, which
helped employees learn about the agency. This kind of involvement in not universal
within the agency. Rather, it depends totally on the office where you work."
• "It (that kind of involvement) really makes you feel apart of what the agency is doing."
• 7 would like to know more, but it isn 't necessary for what I do."
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///. RESULTS INTERNAL COMMUNICATION EVALUATION
3. Keeping Informed About Human Resource Issues
Reactions to the dissemination of Human Resources information was mixed but generally
favorable as compared to other parts of the Internal Communication System. Observations were
made that some areas of responsibility are currently being handled much better than others. The
availability of Human Resources information seemed to vary greatly among offices. The channels
used to disseminate Human Resources information also varied greatly. Some people found
Human Resources information posted on the bulletin boards and others received it through
memoranda, often from administrative officers. LANs, E-Mail, briefings, staff meetings, bulletins,
and special publications were used as channels for disseminating Human Resources information.
The satisfaction with this type of information was often related to the perceived "support
and help" received from the Human Resources staff involved. A significant difference in the
effectiveness of disseminating Human Resources information across organizations was whether
someone was designated to act as a Human Resources liaison. Those organizations with Human
Resources liaisons seemed to receive information in a more regular and timely manner. Positive
feedback was received at sites where a Human Resources Service Center was established to serve
as the single point of contact. At another site a LAN was used as the main communication channel
for Human Resources information. Positive feedback also was received on the mailing of
important Human Resources information on pay and benefits directly to the individual's home.
Knowing where to go, who to see, or where to look was the key to getting important Human
Resources information.
There was a general perception that the Human Resources communications link performed
poorly in disseminating information about vacant positions and training opportunities. Whatever
the reasons, the information is not getting out to the people who need it. Job and training
announcements did not always filter down to the division level, or lower levels of the organization,
either in a timely fashion or at all. As a result, some employees felt that Human Resources staff
exert a great deal of "control" over who receives promotions and developmental opportunities.
There is considerable resentment in this area because the timely receipt of this type of information
is viewed as critical to career opportunities and growth.
The following quotes reflect the range of comments on Human Resources communications.
• "The informal grapevine supplies useful information on career matters. Course listings are
sent around but by the time they are received they are filled, or courses are cancelled. This
is perceived as a severe impediment to career growth and is very demoralizing."
• "Things are posted...the information is very good."
• "We get nothing."
• 7 get all my personnel information through the grapevine."
• "The retirement seminars have been excellent."
• "The administrative officer makes sure the information filters down. The information
comes from the program office to division offices. Copies are then made and sent to
Branch Chiefs and Division Directors."
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. RESULTS INTERNAL COMMUNICATION EVALUATION
• "The tone of the Human Resources Office has changed over time. They sometimes are
helpful but other times they have a tone of not wanting to help you. They are not as good
as they could be in helping people. We're all sensitive to these kinds of issues and they are
not supportive right now."
• "I think if you need to know anything you have to actively seek information informally
thorough other people. If you ask them [Human Resources] a direct question, they
answer the question narrowly. There are a lot of programs to help with career growth, but
they are short on deadlines and timeframes, and if you can't do the paperwork to get
accepted, you lose out."
• "Job notices are no longer generally available. You need to go to the personnel office to
find out things. But that may be the way it should be. If you are interested in a job, now
you need to go look for the job announcement. The job shouldn't have to come looking
for you,"
4. EPA's Internal Communication System
The discussions about EPA's Internal Communication System indicated that the staff took a
very broad view about what was included. Many know what the parts are but didn't tend to think
of it as a "system" until the question was posed. The respondents discussed or mentioned virtually
every aspect of the "system" including people, technology, communication channels, and
information sources. They included in the system communication activities that ranged from
formal management briefings to "gossip." Shown below is a sample of the typical comments made
about the nature of the Internal Communication System which illustrates the wide range of
information in the system. A more detailed discussion of the types and sources of information in
the system, and the channels used, is found in the following two sections.
• 'It includes everything, formal and informal communication aspects, including our
newsletter.'
• 'It includes everybody, programs, from Headquarters to Region, from the Administrator to
staff, how information gets out to people. It's how information gets out, from individual
gossip through the strategic planning process."
• There are a number of systems- the memo system, the staff meeting system, task forces,
E-mail, and the gossip system."
• "EPA's Internal Communication System means in-house communication, vertically as
well as laterally."
• "Flyers on a day care center were visible. Benefits and savings plan information mailed to
the home was also very appreciated. Some other information, specifically about shutting
down the building, or furloughs, is also mailed to the home."
• "Among employees working together but in separate locations, fax machines are often
used to communicate with one another."
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I. RESULTS INTERNAL COMMUNICATION EVALUATION
The EPA system sometimes announces information, for example, about meetings for
employees."
"Bulletin boards and newsletters are used for information internal to EPA."
B. Types and Sources of Information
The Internal Communication System carries a wide variety of information. The focus group
discussions suggest that there are six basic types of information disseminated to the staff of EPA.
1. Managerial Guidance
Included in this category is information concerning management and supervisory direction
and guidance. The sources for this information range in levels from the Administrator to those
providing first-line supervision. The information ranges from agency policies and procedures from
upper management to daily on-the-job guidance communicated through interaction with
immediate supervisors. Participants said the most effective source of this type of information is
the individual's manager or supe-visor.
The preferred way of receiving this information is the staff meeting. As stated previously,
the use of staff meetings vary in frequency, format, content, and who is invited. The preferences
stated in the focus groups are for regular (weekly or monthly) meetings, open to all who wish to
attend, content limited to important job-related information, and a format that allows for two-way
communication (i.e. both from and to the manager/supervisor).
The following are some typical comments on managerial guidance:
• We have a staff meeting every two weeks with the branch chief. In addition to getting the
latest information, each person briefs the others on what he is doing."
• "We have not had a staff meeting in 6 or 8 years."
• "They used to send around the meeting minutes from the Division Staff meeting, but don't
do that now."
• "Information to help employees do their job better comes from conversation with co-
workers and supervisors."
• "Among the most useful information are updates from AA's on changes in procedures
and policies."
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RESULTS INTERNAL COMMUNICATION EVALUATION
2. Information About EPA Mission and Initiatives
This category includes information about EPA, what it is doing, and what it plans to do. It
also covers the agency's goals, objectives, initiatives and accomplishments. Comments from the
focus groups indicate that the transfer of this type of information is the least successful. Most of
the participants seemed dissatisfied with the amount and quality of the information about EPA
they receive. Many respondents felt they learned more about their own agency from outside
sources (e.g., radio, television, and newspapers) than through EPA's own channels. For most
respondents, information on EPA's mission and initiatives is seen as vital to doing their job
effectively, knowing how they fit into the overall agency programs, and representing the agency to
the public and to their non-EPA colleagues.
There is a difference between the needs and desires of the professional/technical staff and
the administrative/support staff with regard to this type of information. Both want honest and
straight-forward information - "even if some of it is bad news." However, the professional/technical
staff want detail, while the administrative/support staff would like to have the information in
language they can easily understand (i.e., non-technical and no acronyms) so that they can
communicate it to the public in response to inquiries.
• The best information about the mission has been a video with the Administrator at an
all-hands meeting. There is also 'Inside EPA' and 'The EPA Journal'"
• "Often outside organizations give you better information that does the EPA."
3. Technical and Procedural Information
This category covers technical (e.g., scientific and program) and administrative information
needed by staff to perform their jobs. The major sources of technical information are books and
journals, technical reports, and contacts with colleagues (e.g., in-person, by mail, telephone,
conference calls). The administrative information is usually in written form and comes from
manuals, memoranda, and other reference materials on policies and procedures. Both the
professional/technical and the administrative/support staffs felt that this type of information was
the most critical because they could not adequately perform their jobs without such information.
Below are typical comments concerning the ways some respondents obtain the information
they need:
• "Information to help employees do their job better comes from conversation with co-
workers and supervisors."
• "Among the most useful information are updates from AA's on changes in procedures
and policies."
• "Technical information is the most useful"
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m "Also important are national conferences in my area of work and getting to talk with
people from other Regions. You get good information, you take notes and when you come
back from the conference you discuss it with others. Travel restrictions are very limiting.
You can't attend national meetings if you are below branch chiefs or division level"
• "/ want more technical manuals and procedures for use on my job. These used to be
available, but now I have to buy them myself."
4. Human Resources Management Information
This category covers all information related to personnel matters. This includes hiring,
transfers, promotions, and training, as well as information on salary and benefits. It also includes
information on such activities as child care, wellness programs, and other programs developed by,
or coordinated through, the Office of Human Resources Management. As discussed earlier,
reaction to the effectiveness with which Human Resources information was perceived was mixed.
In general there seems to be satisfaction with the dissemination of basic payroll and benefits
information. However, perceptions were negative about how career information, such as job
openings, promotion possibilities, and training opportunities are communicated. This is one area
where the informal channels seem to be used to obtain the desired information. As seen below,
opinions and suggestions concerning Human Resources information dissemination varied:
• "We receive course stings and other type of educational offerings."
• "We don't receive information on health plans and saving plans, job announcements.
They are important."
• "For Human Resources information, I would find someone you can trust who has been
around a while and knows the system."
• "Sometimes you onfy have a week to respond to information on development programs
and you have to pull together a lot of information. They onfy come out once a year. It
would be nice to have a yearly calendar for the application process for developmental
programs."
• "/ would like to see more information that is down to earth without government jargon.
I'd really like to get better information on retirement and the credit union. It now seems
you aren't allowed to go to the retirement planning seminars unless you have five or less
years left to work yet the planning you have to do will take 7 to 10 years."
5. EPA Organizational Information
This category covers information on what other groups and individuals are doing within
EPA. This information is required so that employees feel a part of the organization. The need for
this type of information was expressed in terms of facilitating both internal coordination and
responding to public information requests. The sources of data are organizational charts,
telephone directories, and other descriptive information about the various functional groups at
EPA. This area was also identified by participants as one that needs "fixing." Listed below are
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respondent opinions and suggestions for better sources of information on EPA activities and "who
in EPA is doing what."
• "'The EPA Journal' is useful because it is used to get the names of Regional top managers
for addressing memos."
• "Another useful tool is a research program guide that publishes what various programs are
responsible for within an organization."
• "We need anything that provides a functional statement about each branch and program
that describes what they do."
• "Information that we need more of is an 'Issues Directory'presenting what each area is
responsible for."
• "We need more information on other EPA programs."
• "A directory of contacts in other departments is needed so calls can be referred."
6. Information on External Issues
This category includes information on issues external to EPA that relate to, or affect, EPA
in general, or specific duties employees perform including Congressional activities, Presidential
initiatives, relevant litigation, environmental programs in other countries, EPA related activities at
other Government agencies. It also encompasses anything happening outside of EPA that may be
of relevance or interest to EPA staff. While this type of information does not appear to be as high
a priority as the other types, it should be considered in the overall plan to improve the agency's
Internal Communication System. It can be useful information, and, as evidenced below, is not
currently available to staff in an organized and consistent manner.
• "About external issues? There is 'Inside EPA,' and the 'EPA Journal' There are also
news clips that go down to the branch level, but it doesn't get sent lower."
• "External issues? Headquarter's faxes relevant news releases down to the Regions. It may
or may not get posted."
• "We receive 'The EPA Journal,' news clippings from External Affairs Office, and articles
in the local newspaper."
• "We get 'The EPA Journal' and also get news clips."
• "We get news clips...as secretaries, it crosses our desks."
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HI. RESULTS INTERNAL COMMUNICATION EVALUATION
C. Channels of Communication
One key characteristic of the EPA Internal Communication System that became apparent
during the focus groups was that many of the communication channels were not available to all
employees. Accessibility to some of the channels, particularly the high technology channels varies
with the site, organization, and individual. Another characteristic was the lack of an organized
system of channels. All of the channels available are used for transmitting every type of
information. With the exception of technical journals, there are no channels that are limited to a
specific type of information.
EPA's total Internal Communication System utilizes the following range of channels:
Mail (including mail delivered to homes);
Telephone (including long distance, FTS, and conference calls);
Written memoranda, flyers, and other forms of written office communications;
Status Reports (biweekly, monthly, or quarterly);
Newsletters;
Journals and other regular publications;
Special publications;
Posters;
Public address system;
Meetings (including video-conferencing);
Closed Circuit Television (CCTV);
News clips;
Personal Computers;
Local Area Networks (LANs);
Electronic Mail (E-Mail);
Voice Mail;
Facsimile (fax) Machines;
Managers or Supervisors; and
Informal channels.
Obviously, EPA's communication channels range from the low-tech bulletin boards and
posters to the high-tech LANS, and video-conferencing. The mail, telephones, and memoranda
are standard channels for virtually everyone; but once past those standard channels, diversity of
availability, access and usefulness become factors. Respondents indicated that written
information, such as memoranda, reports, newsletters, journals, and special publications, are
either not distributed or accessible to all who want them, or in some cases distributed to those who
do not want or need them.
Even low-tech channels need to be properly maintained to remain effective. Bulletin boards
serve to post information, but not everyone knows where they were. Many contain messages and
memos that are months old. Bulletin boards can be useful, but they must be kept up-to date.
When you move to the more high-tech channels, not all of these channels exist at each site
or building. Where they do exist, not everyone has use or direct access to all of the channels. A
good example of the uneven access to some communication channels is the fact that not everyone
has a computer. Not everyone who has a computer has access to an LAN or E-mail. Not everyone
who has access to an LAN or E-Mail has been trained or given materials that allows them to use
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. RESULTS INTERNAL COMMUNICATION EVALUATION
these channels. Similarly with fax machines, it was stated that "there was only one fax in the whole
building, and I'm not sure where it is." Where a LAN does exist, and people have been trained to
use it, many of the staff find it a very effective and useful communication channel. Indeed, there
was a need expressed by many for more computer equipment and training.
The use of staff meetings and local newsletters also vary among organizations and sites.
While staff meetings were perceived to be important, again there is no consistency with regard to
frequency or who is invited. Frequency varies from weekly to never. Some managers invite
clerical and administrative staff to attend, while in other offices, they are not invited. Local office
newsletters are available in many offices. In the offices where they do exist, they seem to be an
effective way to disseminate information in areas such as current projects, human resources
information, announcements, and current happenings in the office.
The last item on the list, informal channels, may well be the most important. When asked
how they obtained a particularly important piece of information, most of the respondents indicated
they would turn to their network of colleagues, friends, and acquaintances. Currently, the informal
channels appear to be the one reliable communication channel that all have access to, and know
how to use.
Below are selected comments the focus group participants concerning the channels of
communication they use and don't use:
• "Conference calls with Headquarters and other Regions, memos between these groups,
and monthly staff meetings with other divisions."
• "For career information I look at our newsletter. There is a booklet with a training
calendar that I use for information on developmental programs."
• "Guidance and staff meeting notes, since I travel a lot, we know what's coming down the
pike that's important. Direct guidance is helpful Some supervisors are so much better
than others in doing this."
• "Video-conferencing faculties in one Region are good, but I can't communicate with other
locations because they don't have facilities."
• "The LAN system is not available to all employees."
• "We don't use E-mail because we want personal interaction."
• "E-Mail is used between offices, between Headquarters and the field, and among all
locations. However, not everyone has E-mail"
• "Some E-Mail, some people are on a LAN. They just changed the E-Mail system so now
no one can use it. The system is so complicated that no one knows how to use it.
Training lags by months or years behind the implementation of the system."
• "Fax machines are helpful Information from Headquarters can go through to the states
quickfy."
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m "The phone and fax are used to communicate across Regions. Many people in the group
don't like the current E-Mail system."
m "There were a number of people who travel a lot. They have trouble keeping up and rety
on memos and meeting notes. Can't even call in on an 800 number to find out what is
going on. Can't realty get any information this way."
• "The major ways to get information about what's going on in EPA include LAN, 'The
EPA Journal,' 'Government Executive,' 'Federal Weekly Digest,' and 'Inside EPA.'"
m "Informal channels are used a great deal Procedures change and you are not notified
formally. You only find out informally. Follow-through to communicate formally is not
done well People make individual changes to procedures, so consistency is lost."
D. Information Needs and Satisfaction with Current System
The focus group participants viewed the Internal Communication System, as a "system" only
in the broadest sense. They did not see the different types of information and varied channels as
truly comprising an integrated and coherent system. Although there are individual preferences,
overall, EPA staff tend to use rmst of the channels at their disposal; however, there seemed to be
a general preterence for staff meetings and electronic channels. Beyond these general preferences,
satisfaction with various communication channels varied because of individual access to channels,
individual job duties, and personal preferences. For example, although some people expressed a
dislike for computers, others feel that the LAN and computer bulletin boards have solved their
communications problems. There was also a strong perception that some parts of the system are
missing. The most frequently mentioned missing parts are a guide book or directory of activities
and personnel within EPA, and a "hotline" to get rapid responses to both internal and public
inquiries.
As a group, the professional/technical staff appear to be more dissatisfied with the current
Internal Communication System and are more demanding in their requirements. They feel that to
perform at their optimum level, they require more technical information, and information about
EPA activities. A theme repeated throughout the focus groups was a need to know how they, as
individuals fit into the overall functioning and direction of EPA. The administrative/support staff
felt that to adequately perform their jobs, there was a need for more accurate and current
information on administrative policies and procedures. They also expressed a need for
information on EPA business. Some stated that it would be "nice to have" but not necessary to
their jobs, while other felt strongly that such information was critical to their "front-line" role in
dealing with the public. They desired more general EPA business information without technical
jargon and confusing acronyms.
Another area of dissatisfaction expressed by many respondents was a feeling that
communication channels tend to be "one way." Many respondents perceive that there is no
channel to communicate up to management, nor is there any adequate feedback on what has
happened, or is happening to, the work that has been submitted. This issue was raised in the
context of both staff meetings and work requirements. Individuals would like the opportunity to
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HI. RESULTS INTERNAL COMMUNICATION EVALUATION
give feedback to and ask questions of management at staff meetings. They also would like to
receive feedback on products that are requested by and submitted to management. While this
issue was a general one raised at the focus groups, it was perceived as more severe in the off-site
Regions and laboratories, where employees said they frequently submit products and comments to
Headquarters and do not receive feedback.
There are other, more general, differences between Headquarters and the field. The
geographic dispersion of EPA creates organizational difficulties and the communication system
reflects this impact. It is perceived that there is a great deal of time lost in transmitting and
receiving information across the EPA sites. The physical distances, and in some cases time zone
differences, added to communication problems. Some of the staff at these off-site facilities felt
that these communication difficulties sometimes led to unreasonable deadlines. This in turn
contributed to a "we versus they" feeling between the field and EPA Headquarters. While the
distance and differing time zones do present difficulties, they are hardly insurmountable obstacles.
While there was a general complaint that there was too much paper being distributed, a
large segment of the staff still seemed to rely heavily on and preferred written memos. The
archival nature of paper, and the "need" to create and retain files contributed greatly to a
preference for paper. There were some Regional differences on this issue. While cutting down on
the use and "waste" of paper was a common theme for all of the focus groups, those living in the
northwest and west (Washington, Oregon and Colorado) were much more vocal about "saving the
trees." This, of course, reflects the fact that trees and conservation are sensitive issues in the
northwestern and western states. Many of these employees viewed greater use of electronic
communication channels as a way to bridge both sound environmental and improved
communication practices.
Below are sample comments respondents made concerning the prevalence of the paper-
based informative channel:
• "There is too much paper flowing through the system."
• "We receive a lot of memos and paper. A lot of people resent the amount of paper."
• "A lot of the information coming in shouldn't be sent out to each and every individual. I
throw out most of what comes in. For instance, this is so-and-so month. It would be
better to post one copy of these kinds of things on a bulletin board."
• "Why send thousands of pieces of paper out to everybody when they just get thrown away?
Use a little bit more common sense on the information that does flow out."
• "There is too much inappropriate and unnecessary information."
• "Some people have three months accumulation of things in their in-box."
• "What ever happened to the 'buck slip?' Instead of everybody getting a sheet of paper, you
just put the names of the people who should see it. Then there is only one piece of paper
to throw away."
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UI. RESULTS INTERNAL COMMUNICATION EVALUATION
E. Assessment of Specific Initiatives
1. Strategic Direction Document
The reaction was mixed, but tended to be more negative than positive. Very few people
remembered ever seeing the document. Most respondents saw it as too general and vague, and
better suited for public dissemination than for distribution to EPA staff. Others, especially the
administrative/support staff, felt it did provide some overall insight into EPA's mission and goals.
In general, it was felt that although it might be useful to communicate what EPA does to the
public, EPA staff would still have to seek out specific information from other sources to
understand where the agency is heading and to answer specific questions from the public. Many
felt that Strategic Direction was just "more general information" and something they did not need
to receive. Some would like something more straight-forward, detailed, and meaningful. Indeed,
the document was criticized as being so general it was meaningless.
2. Newsletter
Here again the response was mixed, but more positive than negative. Many reported they
had their own local area newsletter and found it "very informative" or having "a lot of information
all in one stop." The respondents were positively disposed toward an EPA-wide Newsletter.
However, employees said it would have to be interesting and provide useful information to ajl
employees, f^ome comments were made that the Regions are so different that it would not be
useful and that Regional information would be more appropriate. However, it was felt that the
information on Congress would be interesting, and the Headquarters information would be useful.
One of the most often expressed reservations was that if it was published, the newsletter should be
"independent," an "unbiased source of news," and not a "propaganda tool."
F. Problems and Suggested Solutions
The problems and suggested solutions presented below were all selected taken from the
focus group tapes. They represent the feelings, perceptions and ideas of the participants in the
focus groups.
1. There is an information overload in the paper system.
Solutions:
• Control the volume of information being disseminated in the internal mail
system (e.g. memos, flyers, etc.). There needs to be a review and screening of
what gets disseminated and to whom.
• Set up a reading file of memos that do not have to be seen by everyone. Put it
in a central location so that people can come and browse through it, if and when
they want to, and have the time
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HI. RESULTS INTERNAL COMMUNICATION EVALUATION
• Set up a bulletin board on the LAN. Put much of the information that now gets
disseminated by paper on the bulletin board in some organized way, with types
of information indexed. The advantages are numerous. You scan it when you
have time. You look at only what is of interest or relevance. Hard copies can
be made only of things that you need or want to keep.
2. There is a need to know what other people in EPA are doing that might be related to
your own work.
Solutions:
• Publish a quarterly newsletter of research and projects in progress.
• Set up a technical abstract/report file on the LAN.
• Establish a Computer Bulletin Board which can be accessed by people at
Headquarters the Regions the and laboratories.
3. There is a need for information about what each EPA component does. The
information is needed to improve internal communication and collaboration, as well
as to direct external inquiries to the proper place.
Solution:
• Publish a directory that describes each part of the agency and what it does. It
should contain an organizational chart, complete with the names, job titles, and
responsibilities of key EPA staff.
4. There is a need for a better exchange of information between staff and management.
At present there is a one-way flow of information from the staff to management.
Solutions:
• Senior management needs to emphasize the importance of internal
communication and create an organizational climate that fosters two-way
communication.
• A channel needs to be established to give feedback to staff as to what is being
done with their inputs. It can be accomplished via staff meetings, memos, or
taped or in person briefings by the Administrator or Deputy Administrator.
• Improve two-way communication by encouraging input from staff.
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HI. RESULTS INTERNAL COMMUNICATION EVALUATION
5. There is a need to access the current status and EPA "official position" on various
environmental issues. Many EPA employees are active in their communities and are
looked upon as environmental experts because of their employment.
Solutions:
• Establish a "Hot-Line" where requests for this type of information can be
quickly and accurately handled.
• Develop an in-house vehicle for disseminating news updates about EPA.
• Circulate staff meeting minutes and senior staff updates.
6. There is no uniformity regarding staff meetings. These meetings are viewed as
important and an important source of management and EPA relevant information.
Solution:
• It is suggested that some general rules should be established regarding
frequency and who is invited.
7. There is an EPA Agency-wide orientation program. Some of the respondents
indicated that too much information is "dumped on them" all at once, and that the
orientation procedure could be significantly improved. Participants also noted that
each office is different and there needs to be a more formal process to introduce new
people into their offices.
Solutions:
• Improve the Agency Orientation Program by reducing the amount or
streamlining the presentation of information disseminated at the orientation.
• Develop Office Orientation Programs which follow and build on the EPA
prientation program.
8. Although computers, LANs, and E-Mail are becoming more widely available, the staff
is not able to fully utilize these new technologies because of the complexity of these
systems, lack of equipment, and inadequate training.
Solutions:
• Provide access of these systems to all employees who want and need them.
• Make the systems more "user friendly." Provide training to all employees going
on-line with these systems.
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lU. RESULTS INTERNAL COMMUNICATION EVALUATION
9. A great deal of Human Resources information on education and training
opportunities arrives too late to do anything about
Solution:
• Publish an annual calendar that describes Human Resources programs and the
application process so staff knows what is coming and has time to prepare.
10. There are perceptions that EPA is not really one organization - that there is
Headquarters and then everyone else. To some extent the current state of the
Internal Communication System has contributed to this perception.
Solutions:
• Develop communication procedures to encourage the perception of an
integrated EPA. The planned EPA newsletter is one step in this direction.
• A suggestion made by focus group participants was to increase the visibility and
accessibility of EPA senior management at the Regions and laboratories. High-
profile visits and "All-Hand" staff meetings, with an opportunity for questions
were suggested.
• Improve Headquarter's sensitivity to Regions and laboratories with regard to
transmittal time, deadlines, and feedback on work submitted.
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IV. CONCLUSIONS & RECOMMENDATIONS INTERNAL COMMUNICATION EVALUATION
IV. CONCLUSIONS AND RECOMMENDATIONS
In reviewing the data from all of the focus groups, several consistent and important themes
have emerged.
There is general agreement among the respondents that a problem exists with the Internal
Communication System. However, the specific difficulties encountered and the severity of the
problem varies with the geographic location, and the level and nature of the individual's position
within EPA. For example, a high priority for the professional/technical staff is better access to
technical information. The administrative/support staff would Wee improvements in the timeliness
and quality of administrative information. The motivation for both is having the opportunity to do
their jobs more effectively.
The Internal Communication "System" is not really a system. A system is commonly defined
as an integrated combination of people, technology and procedures designed for a particular
purpose. The EPA Internal Communication System currently does not fit that description; rather,
it is a collection of individuals, information, and channels used for communicating information, but
not in an organized or coherent manner. There is a lack of consistency from site-to-site, Office-to-
Office, and among individuals as to what services and equipment are available and accessible.
Currently, any part of the system can be used to transmit any type of information. This results in
no one knowing how and when a particular piece of information will be sent to them. To truly
systematize the Internal Commur-'cation System would require, not only imposing consistency, but
also some level of standardization. This would translate into establishing the appropriate
communications channel for certain types of information. It also means the development and
dissemination of a set of rules and procedures regarding the use of the system. For example,
employees cannot use E-Mail unless they are trained. Focus group participants expressed a
general desire for consistency and compatibility, both between components of the system, and
between the system and the users.
To some extent a paradox exists within the Internal Communication System. Although there
was a general perception that there was not enough information, there was also a feeling that there
was too much information in the system. Much of the information in the system can be described
as "noise." Noise is information that is not useful, is unwanted, or redundant. The presence of
noise makes obtaining useful information more difficult and time consuming. Respondents noted
that they did not have the time or patience to sort through all of the information coming at them
through the various channels. They felt there should be some filters or constraints on what gets
sent to them. Many respondents would like a system that would offer them the opportunity to
browse and select what they want to receive, see, or ignore. Much of the information overload
appears to originate from a paper-based system of memos, flyers, and other written messages. To
alleviate some of the problem, suggestions made by the focus group participants should probably
be considered. From the low-tech side, bringing back the buck slip, reading file, and increase the
use of bulletin boards. High-tech solutions include getting everything on computer, LAN, and
electronic bulletin boards. The reduction of paper flow was viewed by many as consistent with
EPA's mission of protecting the environment.
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iy. CONCLUSIONS & RECOMMENDATIONS INTERNAL COMMUNICATION EVALUATION
In general, employees at all levels felt that the weakest communication message involved the
mission, goals, direction, and current status of EPA. There is a sense that they need to know
where EPA is now, and where it is heading, in order to understand their own role in the
organization, and the nature of their contributions. In addition, there is a need to know the status
of various environmental initiatives and EPA's official position on such initiatives, so that staff can
adequately and accurately represent EPA to the public EPA employees perceive themselves, and
are perceived by others in the community, as representatives of the agency. They feel they need
better and more current information about Agency activities, and better access to information
about activities outside of their own work. Such information would enable them to do their job
better and to better serve the public when inquiries are made. To enhance improved
understanding of EPA's mission, goals and status, it has been suggested that the Administrator and
Deputy Administrator hold "All-Hands" staff meetings, both at Headquarters and at the Regions
and laboratories. The staff wants to be kept abreast of EPA internal and external activities and
have an opportunity to ask questions. This important issue needs to be dealt with since it does
have a strong impact on morale and motivation.
The communication of Human Resources Management and personnel information, while
needing much improvement, is generally perceived as better than other components of the Internal
Communication System. There was a perception that critical information about benefits and other
important personnel matters were received in a timely manner. Positive feedback was particularly
strong for the practice of mailing sensitive personnel information directly to the employees' homes.
The strongest negative criticism focused on the timely dissemination of career-related information,
such as job vacancies and training announcements. By the time information was received, it was
often too late to apply for an open position or sign up for training that could lead to advancement.
Advance planning was deemed particularly important with regard to Human Resources
Management information. Training schedules should be issued well in advance of the classes to
ensure adequate lead time for enrollment. An annual calendar, highlighting job opportunities,
with periodic updates, was suggested.
Managers play a critical role in the internal communication process. They are responsible
for passing information both up to higher level management and down to those who report to him
or her. Managers need to keep their staff regularly informed about agency activities and their
particular unit. In addition, managers need to supply feedback to the staff regarding what happens
to the work they do once it leaves their desk and goes up the line. Staff meetings offer an excellent
vehicle for such information exchange. Here again, there is tremendous variability with regard to
frequency (from biweekly to never) and who is invited to attend (from senior staff only to
everyone). There are also differences in whether staff meeting notes get disseminated and to
whom. There is a strong perception that the meetings ought to provide all attendees a chance to
be heard, as well as ask questions. There is a need for regularly scheduled staff meetings with a
more open format. The feeling was generalized to management communications as a whole.
Communications should be an interactive, two-way process in which information is exhanged
rather than a series of one-way channels.
Everyone's information needs are not the same. It varies with job level, nature of the work,
and location. For example, there are differences between the needs of those on the
professional/technical staff and those on the administrative/support staff. Both want the same
quality and timeliness with regard to Human Resources information. However, to perform their
respective duties, professional/technical staff want more high quality technical information, while
the administrative/support staff desire current and accurate information on administrative policies
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IV. CONCLUSIONS & RECOMMENDATIONS INTERNAL COMMUNICATION EVALUATION
and procedures. Both groups also want more information about EPA, including its current plans,
status, and objectives. The professional/technical staff feel they need this information to better
understand their role in the agency. The administrative/support staff also would like this
information, but in a form they can readily understand, without technical jargon and acronyms.
They see this knowledge as critical to their role as the "front-line communicators to the public."
Techniques need to be developed to supply this information to the different audiences.
The geographic separation of EPA's faculties is a definite impediment to effective internal
communication. There were strong indications that the further away from EPA Headquarters the
field office is, the more isolated employees feel from the mainstream of activities. To illustrate,
EPA staff from other buildings in the Washington, D.C. area referred to Waterside Mall as the
Headquarters. Just being a few miles away resulted in not being in the mainstream of activities!
This perception is, of course, not unique to EPA. In any organization that is geographically
dispersed, there are usually feelings of this nature. Differences in time zones, delays in receiving
and transmitting information, the inability to reach someone at a distant location by telephone,
and Regional differences in being able to respond to requirements (e.g. the need to interact with
state officials), all put strains on the communication process. Although some of these problems
cannot be eliminated, they can be reduced by recognizing that the problems exist. Communication
across the many agency sites can certainly be helped by making full use of fax machines, computer
networks, teleconferencing, and video conferencing. Staff at the Regions and laboratories feel
isolated from Headquarters and each other. A concerted effort should be made to reinforce the
perception of one integrated EPA, and to create opportunities for employees to feel they are part
of the same organization. This should be a major priority when considering improvements to the
EPA Internal Communication System.
One of the most universally discussed and desired information resources, either missing or
not known or available to staff, is a directory of what each and every group in EPA does. There
was an almost unanimous desire to have a guide book to EPA. It would go beyond the telephone
directory and an organization chart by providing brief and understandable descriptions of what
each EPA unit does. It would list the names of the people in the unit, and their job or functional
title. It was felt that such a reference book would be invaluable for internal coordination, and to
help to direct outside inquiries to the proper people. Another related issue discussed frequently,
was the need for another resource, perhaps a hotline, for finding out in whom or where
responsibility lies for certain programs. The hotline would also allow for inquiries as to current
"official positions" which the Agency has taken on various environmental issues. Such information
is needed by some staff in their work, and is also valuable when interacting with the public in your
own community. Many people outside of the Agency expect an EPA employee to know these
things. An efficient way to get the desired information, such as a hotline, would be highly useful.
Newsletters, particularly local newsletters, were felt to be very desirable. They offer an
opportunity to get a great deal of information, of certain types, boiled down and presented both
coherently and regularly. Many participants expressed a need for a technical newsletter. One
suggestion is a quarterly listing of research in progress and projects underway. It would contain
the name and location of the person responsible. Such a newsletter was viewed as having great
potential for facilitating cross-group interaction and collaboration. Responding to the possibility
of an EPA-wide newsletter, the reaction was mixed, but more positive than negative. Many
reported that they had their own local newsletter and found it "very informative" - "a lot of
information all in one stop". This made them positively disposed toward an EPA-wide Newsletter.
The reaction was generally favorable, provided it is interesting and useful. One of the most often
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JV. CONCLUSIONS & RECOMMENDATIONS INTERNAL COMMUNICATION EVALUATION
expressed reservations was that if it was to be published, that it be "independent", and be an
"unbiased" source of news.
Problems with the formal Internal Communication System appear to have resulted on a
greater reliance on informal channels. While there was no single issue on which there was total
unanimity, there was very strong agreement among most of the participants that if you really need
information that is reliable and unbiased, the best way to get it is through the informal channels.
Whether it is the latest information on promotions or awards, what is happening at your site or
Agency-wide, or, for the professional/technical staff, exchanging technical information, people talk
to their network of friends, acquaintances, co-workers, the people with whom they eat lunch or
drive to work, or other people referred to them by their existing network - the grapevine! They
communicate in-person, by telephone, by E-Mail, and by Fax. There appears to be a high level of
satisfaction with information received over the informal channels, and a general acceptance that
most of what they receive is accurate. Informal channels will always be there no matter how
efficient the Internal Communication System. The goal is to minimize the staff use and
dependence on it as the most effective communication channel. The best way to accomplish this is
through the strengthening of the formal channels, and the development of trust by staff that they
are the most effective, efficient, and reliable ways to send and receive information.
The most critical consequence of internal communication problems is the impact on morale.
Feeling uninformed about the direction of the agency, lacking needed information about your job
and career, and needing more or better information to be more effective at your work, leads to
frustration. This in turn can have a strong negative impact on morale. In general, EPA employees
want a better Internal Communication System so that they can do a better job, and feel better
about themselves, the work they do, and EPA.
In interpreting the findings presented in this report, it must be emphasized that the study
reported here is a qualitative analysis. The findings are based on data gathered from a small
sample of EPA employees and should be interpreted with care. The results should be viewed as
suggestive as opposed to definitive. A common use for focus groups is to use the data as
exploratory to identify possible issues that are worthy of future research. That is a
recommendation of this study. There are problems with EPA's Internal Communication System.
Some of them are identified clearly by the focus group data and others are suggested. It is
recommended that the next step in studying this problem should be a quantitative analysis
utilizing a survey of a representative sample of EPA employees at all locations. The results of such
a survey, which would build on the focus group results, could provide the data necessary for
developing a comprehensive action program to improve internal communications at EPA.
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Appendix A
STRATEGIC DIRECTION FOR THE U.S. EPA
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Effectively carrying out our programs and policies.
We are committed to:
— Meeting Federal statutory obligations while retaining sufficient
flexibility to address priority risks in different parts of the country;
— Maintaining a vigorous and credible enforcement program, with
emphasis on multi-media and criminal violations;
— Promoting cross-media and interstate initiatives, such as
multi-media permitting and enforcement;
— Enabling state and local governments, as partners, to implement
and enforce environmental programs;
— Conveying clear, accurate, and timely information to the public, and
incorporating information from the public in EPA activities; and
— Involving other government agencies, public interest groups, the
regulated community, and the general public in achieving national
and global environmental goals.
Improving the global environment.
We are committed to:
— Maintaining and strengthening U.S. leadership to protect and
improve the global commons;
— Working with other government agencies and nations, the private
sector, and public interest groups to identify and solve
transboundary pollution problems;
— Ensuring that environmental concerns are integrated into U.S.
foreign policy, including trade, economic development, and other
policies; and
— Providing technical assistance, new technology, and scientific
expertise to other nations.
April 1991
Strategic Direction
for the
U.S. Environmental Protection Agency
"EPA...
Preserving Our
Future Today"
Printed On Recycled Paper
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MISSION
The people who work at the Environmental Protection Agency are
dedicated to improving and preserving the quality of the
environment, both national and global. We work to protect human
health and the productivity of natural resources on which all human
activity depends. Highly skilled and culturally diverse, we are
committed to using quality management processes that encourage
teamwork and promote innovative and effective solutions to
environmental problems. In particular, we are committed to
ensuring that:
g Federal environmental laws are Implemented and
enforced effectively.
m U.S. policy, both foreign and domestic, fosters the
integration of economic development and environmental
protection so that economic growth can be sustained
over the long term.
• Public and private decisions affecting energy,
transportation, agriculture, industry, international trade,
and natural resources fully Integrate considerations of
environmental quality.
• National efforts to reduce environmental risk are based
on the best available scientific Information
communicated clearly to the public.
• Everyone In our society recognizes the value of
preventing pollution before it Is created.
• People have the Information and Incentives they need to
make environmentally responsible choices In their daily
lives.
Schools and community institutions promote
environmental stewardship as a national ethic.
GOALS AND OBJECTIVES
EPA's unique role in protecting the environment includes:
Providing leadership In the nation's environmental science,
research, and assessment efforts.
We are committed to:
— Gathering and analyzing the data needed to evaluate environmental
risks and trends, measure environmental results, and inform the
choices of institutions and individuals throughout society;
— Promoting and supporting innovative technological solutions to
environmental problems;
Encouraging and conducting research that
understanding of health and ecological risks;
improves our
Providing objective, reliable, and understandable information that
helps build trust in EPA's judgment and actions; and
Sharing research 'indings and innovative technologies with other
nations.
Making sound regulatory and program decisions.
We are committed to:
— implementing current environmental laws effectively, and helping to
improve those laws as they are reauthorized in the future;
— Evaluating health and ecological risks, and targeting our
environmental protection resources at the problems and the
geographical areas posing the greatest risks;
— Promoting public and private actions that prevent pollution at the
source before it becomes a problom;
— Protecting the environment as a whole by developing programs that
control the movement of pollutants across environmental media;
— Devising innovative, integrated solutions to environmental problems,
especially when they are concentrated in specific geographic areas
or industries;
— Improving the economic analyses that promote efficiency and
cost-effectiveness in our decisions;
— Applying market mechanisms and economic incentives when they
are appropriate and effective; and
— Working with other government agencies to ensure they consider
the environmental implications of their actions.
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Appendix B
OUTLINE OF PROPOSED EPA EMPLOYEE NEWSLETTER
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PROPOSED EPA EMPLOYEE NEWSLETTER
The all-employee newsletter will be a four-to-eight page, monthly publication
focusing on communicating the Agency's direction, progress, current initiatives and
Human Resources issues (including employee success stories and other matters of
general interest). This will be a good tool for recognizing the contributions of employees
and keeping mem informed about Agency programs.
The articles will be short and with a balance of information between
Headquarters, Regions and Labs. There will be regular sections in the Newsletter such
as:
• HEADS UP - News briefs from around the Nation and the Globe.
• ON THE HILL - What is going on in the Congress regarding the Agency.
• INFO/MART - Recent publications, testimony, and policy Statements of
interest to EPA employees.
• LETTERS TO THE EDITOR
(NOTE: The newsletter will be produced by the Office of Communications and Public
Affairs. The 1st edition is scheduled for February 1992.)
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