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V -"*•*-"
I UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
WASHINGTON D.C. 2W«0
March 11, 1992
1PA.SAB-RSAC-92- 017
Mareh 12, 19§2
Honorable William IL ReiUy
Administrator
U.S. Environmental Protection Agency
401 M St. S.W.
Washington, D.C. 20460
Subject; Review of FY 1993 Research and Development Budget Request
Dear Mr. Reilly:
The Budget Review Subcommittee of the EPA SAB'a Research Strategies
Advisory Committee met on February 12, 1992, to review the 1993 President's Budget
Request for Research and Development activities within the Agency. As you know, this
annual review was instituted several years ago to provide the Agency and Congress
with insights on tile scientific quality and responsiveness of Agency research proposals
to national needs. This year, the Subcommittee attempted to provide a more critical
look at specific activities outlined in the submission. To achieve this goal,
representatives were selected .from each of SAB's standing committees. These
individuals provided a broad spectrum of scientific expertise (ranging from the physical
and biological to the social sciences and from applied to fundamental activities) from
which to draw the conclusions found in this report.
For FY 1993, the overall ORD budget Is increased by $28.3M. While the
Subcommittee applauds any increase in funding for high priority issues, we are
extremely concerned about the level of effort which is actually afforded for the 1993
program. Our report points out a ten year decline in buying power which is impacting
every program in ORD, By comparing the media, program resources (in constant
dollars) for 1980 with 1993 totals, the overall research and development budget has
been reduced by nearly $6.5M (or 1%) over the past 13 years. Although several
programs (such as multimedia and Superfund) have been significantly increased, many
of the on-going media efforts continue to be weakened by inflation and, increasingly, by
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earmarking of resources for project-specific activities. Over the last ten years, the
buying power of QJID dollars devoted to several critical issues has dramatically
decreased: e.g., drinking water research support has decreased by $9.5M (in constant
dollars) since 1980 — similarly, pesticides research support has declined by over
$3.0M, toxic substances research by over S14.0M and water quality research by an
astounding $47,OM!
In, addition to the general inadequacy of funding for research activities in FY
19&3, the Subcommittee is extremely concerned about the continued deficit in
infrastructure support. Aging physical facilities and equipment continue to need
upgrading and replacement while increased workload has far surpassed laboratory
managers' abilities to provide adequate space and improvements in instrumentation.
As you know, the number of identifiable environmental issues requiring research
attention has markedly increased. Unfortunately, it seems that OED la expected to
address more concerns each year with fewer resources (both dollars and FTEs). If such
inadequacies in research funding continue, they will result in a debilitated research
program and much greater risk in environmental decision-making due to scientific
uncertainty. It is clear, therefore, that infrastructure, coupled with a lack of salaries
and expenses monies to fund even ORD's on-board employee!, must be addressed
immediately.
Several members of the Subcommittee also raised issues regarding potential
improvements to the process." Members felt that, despite the large amount of
documentation that was provided for review, there were problems with the quality and
timeliness of the submissions. We first note our frustration at the last-minute delivery
of review materials. Although we acknowledge the fact that the annual submissions
are often changing until their actual delivery to Congress, materials must somehow be
provided to the SAB in a more timely and informative fashion. Many of this year's
briefings contained varying amounts of detail and the formats were often inconsistent
with budget submission materials and were somewhat unfocused. Frankly, this year's
presentations and background materials made it difficult to grasp the significance of
the material, particularly for-the new Subcommittee members. Consequently, to
improve the process, we recommend the following:
1) Changes which are subsequent to the OMB passback and appeal
should be addressed in errata sheets,
2) OED should determine breakouts of its budget by office prior to the
SAB briefing and provide this discipline-oriented information in
hard-copy and cite the relevant changes in the annual briefing to
the SAB (whether the presentations are given by medium or are
done in the new issue structure, this information is imperative as
the Congress requires review at this level).
3) The levels of information provided for parallel aspects of the budget
should be made more consistent.
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Further,jro_recpmmeiid that SAB staff meet with ORD management to develop
a new approacEtb our annual review, including ways to obtain necessary materials in
a more timely fashion and to develop a new format for both written and oral
information.
The Subcommittee thanks you for the opportunity to again participate in this
review and looks forward to your response.
Dr. John Neuhold, Chairman
Budget Review Subcommittee
search Strategies Advisory Committee
NOTE:
In order to accomodate Congressional requests, the contents of this report have
been reviewed and approved, by the Budget Review Subcommittee, but have not been
reviewed or approved by the Executive Committee of the Science Advisory Board.
Enclosure
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U.S. ENVIRONMENTAL PROTECTION AGENCY
NOTICE
This report has been written as a part of the activities of the Science Advisory Board,
a public advisory group providing extramural scientific information and advice to the
Administrator and other officials of the Environmental Protection Agency. The Board is
structured to provide balanced, expert assessment of scientific matters related to problems
facing the Agency. This report has not been reviewed for approval by the Agency and,
hence, the contents of this report do not necessarily represent the views and policies of the
Environmental Protection AgencyTnor of other agencies in the Executive Branch of the
Federal government, nor does mention of trade names or commercial products constitute
a recommendation for use.
NOTE:
In order to accomodate Congressional requests, the contents of this report have
been reviewed and approved by the Budget Review Subcommittee, but have not been
reviewed or approved by the Executive Committee of the Science Advisory Board.
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ABSTRACT
On February 12, 1992, the Budget Beview Subcommittee of the Research
Strategies Advisory Committee (ESAC) reviewed the FY 1993 President's Budget
Request for Research and Development activities within EPA, The Subcommittee
included representatives from each of the Science Advisory Board's standing
Committees and focused on the budgetary impacts on both existing and future research
endeavtrrs.
The Subcommittee concluded that insufficient S&E funds and FTEs pose a
serious threap to the continued viability of the IPA research program. Such
inadequacies result in three major weaknesses which threaten the core capabilities of
the Agency's research efforts:
1) reliance on on-site contracts for continued research effort rather
than mere support services,
2) attrition of federal career scientists with a subsequent loss of
historical perspective and invaluable experience with the Agency.
This situation is compounded by inability to hire due to inadequate
Personnel Compensation and Benefits (PC&B) funds, and lack of
funds for adequate training and professional development.
3) increasing obsolescence/inadequacies of equipment and facilities
capabilities.
Although the Subcommittee commented that ORD hai made tremendous strides in
environmental research and has the potential to become the premier environmental
research facility, each of the above deficiencies continue to erode such capabilities.
Consequently, Administration and the Congress are urged to provide an infusion of
resources to abate the decline of EPA'a scientific capability.
Key Wards; budget, research and development, FY 1993, resources,
scientific capability, core research
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^*- BUDGET R1VIEW SUBCOMMITTEE
RESEARCH STRATEGIES ADVISORY COMMITTEE
SCIENCE ADVISORY BOARD
CHAIRMAN
Dr. John Neuhold,
MEMBERS AND CONSULTANTS
Dr. Stanley Auerbach, Oak Ridge National Laboratory
Mr. Richard Con way, Union Carbide Corporation
Dr. Paul Deisler, Retired, Shell Oil
Dr. Allen Kneese, Resources for the Future
Dr* Morton Lippmann, New York University
Dr, Verne Ray, * Pfizer Chemical
Dr. Martha Radike, University of Cincinnati
Dr. George Wolff, General Motors Research Laboratories
SCIENCE ADVISORY BOARD STAFff
Mr. Randall Bond, Designated Federal Official, Research Strategies Advisory
Committee, Science Advisory Board, U.S. Environmental Protection
Agency
Ms. Janice Jones, Staff Secretary, Research Strategies Advisory
Committee, Science Advisory Board, U.S. Environmental Protection
Agency
Dr* Donald G. Barnes, Director, Science Advisory Board, U.S. Environmental
Protection Agency
iii
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TABLE OF CONTENTS
1. EXECUTIVE SUMMARY , ,.„.. , i
2. INTRODUCTION ..„ .,.. 3
2,1 General Issues ..,.,„„„... .... , 3
2.1.1 Budget Trends ...„,„.......„ „....,.. , 4
2.2.2 Research Planning ,» ,............,.,.,.. 5
2.2.3 Infrastructure ......... „., 6
2.2.4 Intramural Research
^Extramural Contracts ,„,..... ?
3. RESEARCH AEEA ISSUES §
3.1 Air Research .. ..„„...„.... 9
3.2 Radiation Research ........ 11
3.3 Water Quality Research .... .„ 12
3.4 Drinking Water Research...... ..,......„•. ............. 13
3.5 Toxic Substances Research ......... 13
3.6 Pesticides Research ....................... . 14
3.7 Hazardous Waste Research 15
3.8 Superfund Research .„.......,.....,....„..,. 15
3.9 Multimedia Research. ,. 16
4. CONCLUSIONS 18
IV
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1, EXECUTIVE SUMMARY
The SAB'8 annual review of the EPA Research and Development President's
Budget Request was held in Alexandria, Virginia, on February 12, 1993, At that
session, the Budget Review Subcommittee of the Research Strategies Advisory
Committee examined the 1993 proposals, focusing on 1) the content (science) of the
proposed activities, 2) the viability of such current and and future ORD efforts given
the budget request, 3) the relationships and impacts of the proposals on past, current,
and filture environmental research efforts and 4) trends in research and development
activities in the Agency.
In comparing ORD funding trends, the Subcommittee noted that research and
development support has decreased by $6.5M in constant 1980 dollars over the past
three years. Similarly, the number of Full Time Equivalent employees (FTEs) has
dropped from 2,352 FTEs in 1980 to 1,95? FTEs in 1993. CLEARLY, SUCH
INADEQUACIES IN RESEARCH FUNDING WILL RESULT IN A DEBILITATED
RESEARCH PROGRAM LEADING TO GREATER RISK DUE TO LESS INFORMED
ENVIRONMENTAL DECISION.
In addition to inadequate support for staff, the Subcommittee was troubled to
learn that THE PHYSICAL FACILITIES AND EQUIPMENT WHICH ABE
NECESSARY FOR AN EFFECTIVI RESEARCH PROGRAM ABE REACHING
OBSOLESCINCE AT AN ALARMINGLY INCREASING RAT1» WITH LITTLE
REPLACEMENT FUNDING AVAILABLE. In our 1090 report we indicated that
approximately $80 million worth of equipment (replacement value) was seven years of
age or older. Funds were made available to the Agency in the 1991 budget for
upgrading purposes; however, at the current rate of of obsolescence and minimal
influx of replacement resources, it wiU take ORD thirty years (assuming no increases
in costs for such purchases) to obtain acceptable instrumentation.
The Subcommittee also wishes to state its concern for increased activity,
visibility and accountability for social sciences research. In the 1993 proposals,
virtually no activities are highlighted in this critical area, and the SAB again strongly
recommends that aocioeconomic research become an integral part of the Agency's
research activity if pollution prevention is truly to be the cornerstone of EPA's long-
term risk reduction vision. SOCIOECONOMIC RESEARCH IS NEEDED TO
SUPPORT DEVELOPMENT OF RISK REDUCTION TOOLS OTHER THAN
COMMAND-AND-CONTROL, AND THAT CANNOT BE DONE EFFECTIVELY
WHEN DIVORCED FROM OTHER ENVIRONMENTAL RESEARCH ACTIVITY.
The Subcommittee has also included a number of media-specific observations and
recommendations within the review document. Finally, the Subcommittee has an
overarching concern that affects the overall research and development effort: the
continued overuse of on-site contract support. Inadequate S&E funds and FTEs noted
above continually force OBD laboratories to obtain services from contractors who can
provide on-site support with R & D funds. These services may range from care and
maintenance contracts to establishment of entire research sections in various
disciplinary areas. Such practices result in numerous inefficiencies which exacerbate
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growing resource deficits. CONSEQUENTLY, THE COMMITTEE RECOMMENDS
THAT RELIANCE ON QN-SITE CONTRACTUAL SEEVICES BE DECREASED —
ESPECIALLYWfHE MANAGEMENT AND ANALYSIS AREAS — AND THAT
GREATER EMPHASIS BE PLACED ON SECURING ADDITIONAL COMPETENT
SCIENTISTS ON THE FEDERAL WORK FORCE.
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2. INTEODUCTION
2,1 General Issues
The annual review of the Office of Research and Development's (ORD)
President's Budget Request was held on February 12, 1992 in Alexandria, Virginia.
The meeting was conducted by the Budget Review Subcommittee of the Science
Advisory. Board's (SAB's) Research Strategies Advisory Committee (RSAC), The
Subcommittee, which was composed of representatives from each of SAB's standing
committees, provided a broad spectrum of scientific expertise (ranging from the
physical and biological to the social sciences and from applied to fundamental
activities) from which to draw the Conclusions found in this report.
Although nearly IS years of involvement In such annual B&D reviews has
provided significant historical perspective, the dynamic nature of the SAB membership
has also provided new and innovative input from newly appointed members.
Consequently, the background materials and presentations from senior R&D managers
were carefully scrutinized to determine not only the dollars necessary to conduct
research, but also to examine available personnel, equipment, facilities and contractual
services which are essential to such tasks. In attempting to address each of these
critical components of the R&D programs, the review attempts to: 1) determine the
content (science) of the proposed activities, 2) comment on the viability of such current
and and future ORD efforts given the budget request, 3) examine the relationships and
impacts of the proposals on past, current, and future environmental research efforts
and 4) provide insights on the trends
in research and development
activities in the Agency.
ORD Bvyinf Ptvtr
The proposed FY 1993 budget for
research and development activities
reflects an increase of $28.8 million or
§% over FY 1992. However, when
comparing the dollar's buying power
today with 1980, the research and
development support has been
reduced by $8 JM, or 1%, (Figure 1).
Similarly, the number of Full Time
Equivalent employees (FTEs) has
dropped from 2,352 FTEs. in 1980 to 1,95? FTEs in 1993 or a reduction of 17% of the
actual workforce (Figure 2). To compound this situation, continued inadequacies in
salaries and expenses funding will force ORD to lapse 3% of its authorised FTEs, thus
resulting in an available workforce nearly 20% smaller than that in FY 1980.
Hg.1
2,1.1* Budget Trend*
During the 1980-1992 period, the number of identifiable environmental issues
requiring research attention has multiplied in spite of (and in some cases resulting
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FTE History
FV1SII
FY ISIS
Fta.2
from) considerable advances that have
been made in -amiability to identify more
subtle problems. For example, although
our nation has made significant
advances in controlling point source
pollution affecting surface waters and
certain air pollutants, non-point source
problems, remain unsolved. We are
aware that stratospheric ozone depletion
and global warming are issues of
paramount importance, that pollutant
intrusions into groundwater (and "
subsequent mitigation) continue to pose
major technical problems, and that solid
and hazardous waste disposal is causing economic and social stress. Such issues are
only a few examples of the steadily increasing number of issues requiring investigation.
Nevertheless, ORD IS EXPECTED TO ADDRESS MORE CONCERNS EACH YEAR
WITH FEWER RESOURCES (BOTH DOLLARS AND FTEs), AN UNR1NEWED
SCIENTIFIC STAFF AND INADEQUATELY FUNDED FACILITIES AND
EQUIPMENT,
Although the resources provided to ORD have increased over the past 10 years,
the increases have not begun to reverse the damage from the reductions incurred in the
early 1980s, At the same time, the Agency has been unable to approach the goal of
doubling the ORD budget as recommended by the SAB in its 1988 "Future Risk" report
(see "Future Risk: Research Strategies for the 1990s", EPA SAB, SAB-EC-88-040.
1988). CONTINUED INADEQUACIES IN RESEARCH FUNDING WILL RESULT
IN A DEBILITATED RESEARCH PROGRAM RESULTING IN MUCH GREATER
RISK IN ENVIRONMENTAL DECISION MAKING DUE TO SCIENTIFIC
UNCERTAINTY.
2.1.2, Research Planning
Research planning was unfocused and reactive during the first years of the
Agency's existence. At the recommendation of the National Academy of Sciences/
National Research Council report (see "Research and Development in the
Environmental Protection Agency". NAS/NRC. 1977.), ORD implemented a committee-
oriented research planning process organized along EPA program-office media
structure. While this system was an improvement over prior years, the committee
deliberations were often too parochial. Since each program office which participated
was essentially constrained by medium, (air, water etc.) or to a broad legislative
mandate (toxic substances, pesticides), intermedia issues were often overlooked,
deemed of low importance, or, in light of dwindling resources, considered to be the
province of other committees. In recent years, more attention has appropriately been
focused on intermedia issues.
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With tiL|j||gase of the SAB report ^Reducing Risk" (See "Reducing Bisk: Setting
Priorities and Strategies for Environmental Protection." SPA SAB->EC*9Q~Q21, 1990),
it became apparent that an issue oriented approach to research planning was essential
if risk was to be effectively assessed and reduced. Since the concept of risk involves
human values, human and ecological health and welfare (economic and social), risk
reduction in the environment encompasses each.
While the Subcommittee recognizes ORD's philosophical agreement with the
importance of social sciences research in environmental protection programs, lapses in
action are occurring and must be corrected. In spite of strong recommendations by the
SAB, the ORlD budget request contains virtually nothing in the social sciences research
area. While ORD contends that the Office of Policy Planning and Evaluation (OPPE)
and program offices "unofficially" support research in this area, lack of central research
coordination and oversight makes it impossible to identify such high priority activities,
resulting in an unacceptable situation. This conclusion is supported by recent efforts
of the National Research Council (NRG) Committee on Environmental Research to
identify the level of environmentally-related social science research efforts. This group,
too, has been unsuccessful in identifying such federally funded activities.
Consequently, the SAB recommends that EPA devise a way of making socioeconomic
research an integral part of the Agency's research activity — which is critical if
pollution prevention is, indeed, to be the cornerstone of EPA's long-term risk reduction
vision. IT SHOULD ALSO BE RECOGNIZED THAT SOCIOECONOMIC RESEARCH
IS NEEDED TO SUPPORT DEVELOPMENT OP RISK SEDUCTION TOOLS OTHEK
THAN COMMAND-AND-CONTROL, AND THAT IT CANNOT BE DONE
EFFECTIVELY WHEN DIVORCED PROM OTHER ENVIRONMENTAL RESEARCH
ACTIVITY.
In addition to the specific comments offered above, THE COMMITTEE WISHES
TO OFFICIALLY ENDORSE THE TERMINATION OF THOSE CONGRESSIONALLY
MANDATED PROJECTS THAT HAVE BEEN ASSIGNED TO THE AGENCY WITH
RESTORATION OP THE FUNDS TO OTHER CRITICALLY IMPORTANT ORD
PROJECTS. The committee-is concerned, as is a major segment of the national
scientific community, about the increasing incidence of congressionaliy mandated
projects not subject to peer review . Such earmarking! represent a major threat to the
long established approach to research support which has resulted in the Agency's
outstanding record in science. Such practices also interfere with the basic premise
upon which an issue-based planning system is founded by risking the placement of
colloquial issues at a higher priority than prime environmental issues.
2.1,3* Infrastructure
THE PHYSICAL FACILITIES AND EQUIPMENT WHICH ABE NECESSARY
FOR AN EFFECTIVE RESEARCH PROGRAM ARE AGING AND CONTINUE TO
NEED UPGRADING. The Subcommittee has addressed this issue in past years, and
Congressional responses have been favorable. However, increased efforts in several
on-going programs, coupled with new and unanticipated endeavors (not to mention the
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rapid advances in instrumentation and other technologies) have surpassed laboratory
managers' ahiliijeSLto provide adequate analytical space and upgraded equipment.
Technological advances in the analytical area have placed much of ORD laboratories'
equipment on the verge of obsolescence. In our 1990 report we indicated that
approximately $80 million worth of equipment (replacement value) was seven years of
age or older. Funds were made available to the Agency in the 1991 budget for
upgrading purposes; however, at the current rate of of obsolescence and minimal
influx of. replacement resources, it will take ORD thirty years (assuming no increases
in costs for such purchases) to obtain acceptable instrumentation. Such inadequacies
must be resolved and NEW MONIES FOR FACILITIES AND EQUIPMENT MUST BE
MADE AVAILABLE IP OBD IS TO FUNCTION AS A CEEDIBLE RESEARCH
INSTITUTION.
Finally, the Subcommittee is pleased to see that the Agency is participating in
the Nation's high performance supercomputing effort. The concept of parallel
processing offers great potential for advances in environmental science and
engineering, and we endorse the plans of the Agency to focus the initial effort in one
Laboratory. Given a relatively modest budget, efforts would progress more rapidly by
focusing a single team in one facility, rather than smaller multiple efforts which would
be thinly divided among a number of laboratories.
24.4. Intramural Research and Extramural Contracts
A successful research organization must employ a cadre of scientists at all
stages of their development. The educational/experience levels of the investigators
should range from entry level Ph,D. novitiates to senior level scientists who can serve
as mentors. Such a continuum of experience — from the new and innovative ideas of
the new generation to the discipline and wisdom of the senior scientist — is essential to
provide the steady flow of talent necessary to resolve problems posed by an ever-
changing environmental scenario. Nevertheless, FTE and S&E constraints continue to
be a major impediment in supporting the influx of such essential talent, thereby
diminishing the Agency's ability to establish an adequate R&D effort. Consequently,
inadequate funding haa resulted in a reliance on on-aite contractors which transcends
mere support, services and now seriously threaten the scientific excellence of the
organization. Unrealistic ceilings placed on S&E funds cannot support the airy adj.
inadequate number of FTEs which are authorized for R&D activities each year. Such
inadequacies subsequently force ORD laboratories to obtain services from contractors
who can provide on-site support with R&D funds. These services may range from care
and maintenance contracts to establishment of entire research sections in various
disciplinary areas. These "management tools'* inevitably result in numerous
inefficiencies which exacerbate the growing resource deficits. In obtaining such
services, overhead is duplicated and direct communications which would be inherent
with in-house support is compromised, thereby reducing the return on the investment
in both dollars and lost time of principal investigators/contract managers. In effect, a
"shadow bureaucracy" is created. More importantly, continuity and historical
knowledge and perspective are lost — resulting in detrimental long-term consequences
to the viability of the R&D effort. The Subcommittee is therefore greatly concerned
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Wttftf «t*
€
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of the federal scientists in a direct line relationship, CONSEQUENTLY, THE
COMMITTElLiEJCOMMENDS THAT RELIANCE ON QN-SITE CONTRACTUAL
SERVICES BE DECREASED — ESPECIALLY IN THE MANAGEMENT AND
ANALYSIS AREAS — AND THAT GREATER EMPHASIS BE PLACED ON
SECURING ADDITIONAL COMPETENT SCIENTISTS ON THE FEDERAL WORK
FORCE. TO ACHIEVE THIS GOAL, WE AGAIN STRONGLY RECOMMEND THAT
S&E FUNDS AND FTEs BE DRAMATICALLY INCREASED IN ORDER TO
REVERSE WHAT APPEARS TO BE AN INEXORABLE TREND TOWARD THE
EXTINCTION OF EPA's RESEARCH CAPABILITY, IT IS ALSO RECOMMENDED
THAT LABORATORY DIRECTORS BE REQUIRED TO USE A PEER REVIEW
PROCESS IN ALLOCATING EXTRAMURAL FUNDS SO THAT OUTSTANDING
SCIENTISTS "OR GROUPS OF SCIENTISTS ARE SELECTED TO WORK ON
AUTHORIZED RESEARCH PROJECTS.
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3.0 RESEARCH ARIA ISSUES
The following comments are organized in the media specific format in which
ORD is organized. The Subcommittee has made an effort to present the historical
funding perspective of the ORD program between 1980 and 1993 (Graphic illustrations
are provided for 1992 vs. 1993 and, where appropriate, for comparisons of 1980 and
1993 totals using 1980 constant dollars) and has provided comments on perceived
weaknesses and strengths:
>MH-FY82v». FY83
w
3,1* Air Research
The air research submission
reflects an increase of 5.4 FTEs and
$10 JM, for a total of 496,4 FTEs and
S136.4M (Figures 4 & 5). Since 1980,
this represents a significant influx of
resources, with the majority of the
annual increases occurring due to 1}
the enactment of the Clean Air Act
Amendments, 2) the emergence of
global climate change issues and 3}
the inclusion of acid deposition
resources with the air medium
(moved from its own separate
million are requested for acid deposition
$25.7 million are requested for Global
category.) Of the total, 30.9 FTEs and $12.5
research (down $0,8 million), 38,9 FTEs and
Climate issues (up $2.4 million), and
426.6 FTEs and $98,1 million (up $8,1
million) is requested for air quality
research.
In general, the Subcommittee
agrees with the distribution of the
funds among the various programs
within the air research area. Still, we
are concerned about whether the
overall program can provide adequate
support to fulfill all of the
requirements of the Clean Ait Act
Amendments. Additionally, concerns
about three cross-cutting issues were
raised as follows:
Models:
The Subcommittee is concerned with the proposed air modeling efforts and their
ultimate implementation. Resources earmarked for improving ozone formation models
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are inadequate and the marginal improvements proposed for these models are not
likely to.lead t^yJifjionstrably more realistic air quality scenarios. If progress is to be
made within the timeframe necessary to establish effective ozone precursor control
programs, resources for thin effort must be increased and the program priorities be
restructured. The recent NAS report "Rethinking the Ozone Problem in Urban and
Regional Air Pollution* amply demonstrates that NOE plays a critical role in
photochemical smog formation in certain areas and that role can only be quantified by
using a -state of the art, urban scale grid model. However, because VOC emissions
inventories are poorly defined, and none of the currently used models have been
adequately validated, much work needs to be doae to obtain realistic results from the
models,
EFFORTS MUST BE MADE TO PROVIDE THE BEST INPUTS TO THE
REGIONAL OXIDANT MODEL (ROM) AND URBAN AIR SHED MODEL (UAM),
THEIR TESTING, AND THEIR PROPER VALIDATION. The poor condition of the
Volatile Organic Compound (VOC) emission inventories and the lack of proper
measurements to establish initial and boundary conditions are causes for great
concern. This is especially true in any given geographical area where there is
insufficient information to determine whether NOx reductions will have a benefit or
"disbenefit* on. ozone air quality. This can only be determined by properly applying the
Urban Airshed Model (UAM) to each geographical area where NOf reductions are being
considered. If this decision is made utilizing anything less than the best available
science, additional VOC reductions may be necessary to compensate for a mistake.
Although the Southern Oaddant Study (SOS) presents a unique opportunity to
perform validation studies, such efforts should not be focused exclusively on SOS,
Different parts of the country will require different solutions, and the observed high
ozone levels demonstrate that needs in the Northeast are much greater than in the
South. Consequently, the solution to this problem will be considerably more expensive
than EPA has recognised. Therefore, EPA's MODEL VALIDATION EFFORTS
SHOULD BE INCREASED, WITH A LARGE PORTION CONCENTRATING ON
PROBLEMS IN THE NORTHEAST.
Epidemiology:
The increase in air pollution epidemiology in the 1993 ORD budget is strongly
endorsed by the SAB. The Board has long encouraged ORD to establish a viable
epidemiology research effort to complement its relatively greater efforts in clinical
studies and animal toxicology. The chronic effect* of Q, represent one of the most
critical areas where knowledge IB needed, and easily lends itself to epidemic logical
study. Consequently, the Subcommittee again strongly supports air epidemiology
research with an emphasis on the chronic health effects of ozone. WE ALSO
ENCOURAGE ORD TO CONTINUE TO BUILD ITS PROGRAM IN EPIDEMIOLOGY.
HOWEVER, WE FEEL COMPELLED TO NOTE THAT THE LONG UNFILLED
POSITIONS IN THE HERL OF DIRECTOR OF THE HUMAN STUDIES DIVISION
AND CHIEF OF THE EPIDEMIOLOGY BBANCH WILL PROVE TO BE AN
IMPORTANT AND SEVERELY LIMITING FACTOR IN ENSURING APPROPRIATE
AND NEEDED GROWTH IN THIS AREA OF HEALTH EFFECTS RESEAECH.
10
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Emissions:
It is likely that the highway vehicle portion of the VOC inventory is
underestimated by a factor of 2 to 3 in EFA's MOBILE 4 vehicle emissions model and
that biogenies are uncertain to at least a factor of 3. Also, concerns have been raised
that the explicit treatment of isoprene chemistry in the photochemical models
overestimates the production of ozone. Since it Is imperative that such uncertainties be
reduced, these issues must be examined in a timely manner in order to preclude
issuance of additional State Implementation Plans (SIPS) which are both unrealistic
and ineffective. Consequently, THI SUBCOMMITTEE RECOMMENDS THAT HIGH
PRIORITY BE ASSIGNED TO IMPROVING ANTHROPOGENIC AND BIOGINIC
VOC EMISSION INVENTORIES.
Alternative fuels efforts are also concerned with emissions and are part
of an ongoing research program that will last many years as fuel formulations continue
to change. It is therefore recommended that EPA consider some cooperative research
efforts with fuel users, manufacturers and their associations. This type of
arrangement, with full quality oversight by EPA, could provide leverage which frees
PTEs for other high priority EPA programs.
Indoor Ain
The indoor air research program emphasizes those indoor pollutants that cause
neurotonic, irritant and other non-cancer health effects, with particular focus on
organic vapors, their combinations and bioaerosols. Other indoor pollutants with
potentially significant health effects are therefore judged to be of lower research
priority. Such substances include environmental tobacco smoke (especially its
respiratory effects in children), asbestos and its fibrous substitutes, and combustion
effluents from non-vented sources. It was agreed that bioaerosols and organic vapors
warrant more research. However, concerns were raised whether productive clinical
research on individual organic vapors would be feasible and whether the areas of
emphasis selected were the most critical in terms of reducing risks of indoor air
pollutant exposures. Consequently, it is clear that the levels of funding are quite
limiting and that they will not permit
adequate investigation of more than
one or two pollutant classes.
3.2. Radiation Research
OKD requests 23.4 FTEs and $4.9
million, (an increase of $2.2 million)
for off-site radiation monitoring, and
research on indoor radon exposure and
electromagnetic radiation (Figures 6 &
7).
M R**
ft v».
tS
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The Subcommittee is pleased that the
Agency is proposing increased efforts to
address the complex issues associated with
electromagnetic radiation. However, we
must reiterate the concerns voiced by the
SAB's Radiation Advisory Committee over
the past several yearg. Specifically, the
Committee wishes to point out that the
computer models used to assess the
exposure of individuals to radionuclides in
various media are no longer state of the art
and do not take into account new knowledge
and concepts which have emerged during
the ten years following the development of
the original models . Finally, the Subcommittee is concerned that no 1993 activities
have been proposed to relate short term to long term tests for indoor radon
measurement and exposure determination. This is a continued area of high priority
which should be reexamined for possible inclusion in the FY 1993 program.
In conclusion, the SUBCOMMITTEE RECOMMENDS THAT ORD REVISE
AND UPGRADE EXISTING RADIATION TRANSPORT MODELS TO MORE
ACCURATELY MONITOR RADIATION EXPOSURE. Wl ALSO RECOMMEND
THAT ADDITIONAL EFFORTS BE MADE TO RELATE SHORT TERM TO LONG
TERM TESTS FOR INDOOR RADON MEASUREMENT AND EXPOSURE
DETERMINATION,
ft W ¥». F¥ II
3.3, Water Quality Research
ORD's Water quality request totals
236.9 FTEs (- 17.5 FTEa) and $32J million,^
$2 million), for research on criteria
development, multimedia nitrogen input to
estuarine and near-coastal systems, risks to
habitat values, multi-chemical exposures,
sediment quality and wetlands (Figures 8 & 9).
Since the concept of applying ecological
criteria as a basis for judging the
quality of our lakes, streams, and waters is
both timely and scientifically valid, the SAB
endorses the proposed new effort and major increase in funding for enhanced research
in Aquatic Criteria. However, we would remind the Agency that stream and lake
conditions depend heavily on the status and conditions of the riparian ecosystems or
the ecosystems of the surrounding watersheds that supply and drain the aquatic
systems. For these reasons WE RECOMMEND THAT RESEARCH IN LANDSCAPE
ECOLOGY DEALING WITH THE PATTERN DYNAMICS OF TERRESTRIAL
ECOSYSTEMS AND THEIR CONSEQUENT INFLUENCE ON AQUATIC
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ECOSYSTEMS BE INCLUDED IN
THIS AUGMENTED RESEARCH
EFFORT.
Increased emphasis on wetlands
research addresses a major
environmental concern and is also
strongly endorsed. The Science
Workshop convened to identify
important risks to be addressed by
^authorization of the Clean Water Act
(CWA) concluded that physical loss of
aquatic-related habitat was the major
risk. THEREFORE, ALONG WITH THE RESEARCH ON WETLAND HABITATS,
ADDITIONAL RESEARCH ON THE UNIQUE HABITATS OF RIPARIAN SYSTEMS,
SHORELINES, AND BENTHOS IS RECOMMENDED.
3.4. Drinking Water Research
w-FY92m.ft 13
Fig. 10
A total of 171.2 FTEs and $21,9
million (a decrease of 4.9 FTEs and $0.2M) is
requested for drinking water research
(Figures 10 & 11). The research coven
health effects of contaminants and microbial
pathogens and the health risks of
disinfectants and their by-products. The
Subcommittee notes that ORD has followed
the Drinking Water Advisory Committee's
recommendation to continue research on the
effects of drinking water disinfectants and
their by-products. However, given the
magnitude of uncertainty concerning THE POTENTIAL EFFECTS OF
DISINFECTANTS AND THEJB BY-PRODUCTS, SIGNIFICANTLY INCREASED
EMPHASIS IN THIS AREA IS
ESSENTIAL.
3.5. Toxic Stibatance* Research
The toxic substances request is
Increased by OJSFTEa and $1M for a
total of 185.5 FTEs and $26.SM (Figures
12413). This IB a broad and varied
program involving muitidisciplinary
research and development of protocols
and guidelines for TSCA, extrapolation
of toxicant doses among
fJJ8.11
13
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species, biological indicators of dose, toxics
control systems,strueture-activity
relationships, Biotechnology, eco- risk,
exposure assessment, emission estimation
techniques and asbestos measurement and
abatement procedures. For FY 1993, the
Subcommittee concurs with the
distribution of resources as presented.
Toxic Svbatanee* R*»**reh
Fig. 13
Tasde Svfcitarwta - FY 12 vs. FY 93
3.8. Pesticides Research
A total of 110.9 FTEs and $15.8 million
(+$1.3 million) is proposed for pesticide
research (Figures 14 & 15). TbJj research
concentrates on environmental and health
teat methods,development of biological
markers as indicators of exposure,
transport aad fate of pesticides in the
environment, worker safety, human
exposure monitoring, evaluation of
microbial and biochemical pest control
agents, eco-risk and quality assurance.
Again, the Subcommittee generally
agrees with the distribution of funds and
the research emphases in this area of
ORD research, THE SUBCOMMITTEE
Ptttftf <*t RM
Paatfei*** - FY 12 ¥•
Rf.13
Fio.1'1
ALSO STRONGLY ENDORSES THE
INCREASED EMPHASIS ON
NEUROTOXICOLOGY RESEARCH,
THIS HIGH PBIOBITY BUT
UNDERFUNDED PROGRAM
CONTAINS INNOVATIVE AND
TIMELY ELEMENTS WHICH WILL
PEOVE TO BE INVALUABLE IN
FUTURE DECISION-MAKING.
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fio.ts
3.7. Ha/ajti ana. Waste Research _ Hazard*** w**t* - FY 12 v*. FY S3
The hazardous waste research
program request reflects an increase of
12.7 FTEs and a decrease of $5.3M for
a total of 236,6 FTEs and $42.4 million
(Figure 1,6). The FY 1993 proposal
concentrates on pollution prevention
and waste minimization but also
considers alternative disposal systems
and processes, underground storage
tank (UST) releases and oil spills. The
oil spill work, which will be funded by the Federal Oil Spills Response appropriation,
will involve activity in developing physical cleanup methods as well as continue work
on determining the effectiveness of chemical and biological cleanup methods.
The Subcommittee commends ORD for its efforts in the pollution prevention and
waste minimization areas and encourages its realistic approach toward alternative
disposal technologies.
3.8. Superfund Research
Superfund support is increased in
the FY 1993 budget proposal by $2M
and requests 136.9 FTEs (Figure 17).
The work proposed is largely
technology oriented, focusing on
monitoring, assessment, and cleanup
technology. Though the program has
a research component, it is an effort
which is, by necessity, strongly site*
related and technology oriented with
emphasis on the urgencies of cleanup.
Therefore, related research involving
modeling of surface and ground water
contamination by complex toxicant mixtures (with subsequent effects on human health
and ecosystems) seems to be dependent on the base efforts of oilier ORD programs. The
reviewers feel that the type of research undertaken in this area is constrained by site
specificity and a "job-shop" mentality in response to specific site clean up requirements.
Unfortunately, this can often result in "acting before thinking" and exacerbate some
problems associated with the cleanup effort CONSEQUENTLY, THE
SUBCOMMITTEE AGREES THAT STRONG EMPHASIS ON MONITORING
METHODS AND CLEANUP TECHNOLOGY IS APPBOPRIATE FOE THIS
PROGRAM, BUT URGES SUPPORT OF RESEARCH IN THE HUMAN HEALTH
Hfl.lf
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AND ECOSYSTEM EXPOSURE AND EFFECTS AREAS CRITICAL FOR
IMPROVING .ASSESSMENTS.
3,9. Multimedia
Pollutants emitted into the environment know no boundaries. Since they are
not constrained to a single medium but cross into other media and expose all forms of
life to their presence, the Multimedia Reiearch Program has been organized address
these complex intermedia issues,
MuUimedi* - FY12 v». FY SS
160000
1400004*
120000
* 100000-.
i 80000-.
1
40000
200004.
0
In FY 1993, ORB is requesting
225.6 FTEs and $15§.8M (and
increase of 30.8 FTEs and$6.2
million) for multimedia research
(Figure 18), The proposed research
covers work in ecological and health
risk assessment, risk reduction,
exploratory research,
interdisciplinary research centers
and a major effort in environmental
monitoring and assessment.
EMAP:
This is the Agency's most
important and challenging ecological effort. The committee is pleased that the
proposed budget increase of $18.9 million is in general accord with the budget
increases planned in the original ORD core strategy. As an important program in
terms of its potential for environmental management, it has been under intensive
review by the SAB since its inception. Efforts are geared toward providing an
historical data base against which the efficacy of our environmental programs can
ultimately be determined and identifying trends which can identify emerging problems.
Initial efforts will result in some amount of immediate, beneficial information but some
adjustment of approaches will also be necessary as the researchers gain experience.
THE SUB COMMITTEE COUNSELS CAUTION IK EXPECTING EARLY RESULTS.
THIS IS A PROGRAM THAT WILL REQUIRE PATIENCE AND CONTINUED
SUPPORT IF IT IS EXPECTED TO SUCCEED, THE SAB ALSO URGES
SIGNIFICANT STRENGTHENING OF THE DATA MANAGEMENT OPERATIONS
AND STRONG AUGMENTATION OF RESEARCH IN SUPPORT OF OVERALL
LANDSCAPE BASED DESIGN (an area which is critical to implementation of
subsequent detailed sampling and analysis of different ecological resource components
of the landscape).
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Grants:. ..
The SAB notes its extreme concern and regret that there is no indication of
increased funding for the extramural program that supports investigator-initiated
research proposals. The announced intention by the Agency for annual increases of
$10 million (until a level of $50 million was reached) is now seriously off target. The
1992 and 1993 levels of $1-8 million are too low to maintain an appropriate growth In
theknowlcdge base for environmental science, and insufficient for the development of
stable programs in academia for the recruitment and training of the next generation of
research personnel Such individuals art vital to IPA and the entire environmental
research community to replace imaging cohorts of scientists and engineers.
The SAB is also dismayed to learn of ORD's intention to terminate its general
solicitation of investigator-initiated grant proposals in the area of health research In
order to use that part of the budget to support research only in more narrowly focused
areas, such as in b.omarkers. THE SAB DOES ENCOURAGE IPA TO ISSUE
REQUESTS FOB APPLICATIONS (EPAs) IN PROGRAM AREAS SUCH AS
BIOMARKERS (WHER1 THEEE IS A NEED TO STIMULATE MORI RESEARCH),
BUT RECOMMENDS THAT SUPPORT FOR RESEARCH IN SUCH SELECTED
AREAS NOT BE BORNE AT THE EXPENSE OP CURRENT, EFFECTIV1
RESEARCH EFFORTS.
Centers
The Subcommittee is pleased to endorse the Agency's recent change of the level
of support for each of its University Based Research Centers. We would hope that this
shift and the selection of new Centers is based on a combination of reviews of past
efforts, as well as projected needs of the Agency, WE STRONGLY ENDORSE THE
CONCEPT OF PERIODIC PEER REVIEWS OF EACH OP THE CENTERS BOTH IN
TERMS OF RESEARCH ACCOMPLISHED, AS WELL AS RESPONSIVENESS TO
THE MISSION OF THE AGENCY, AND STRONGLY ENCOURAGE A DOUBLING
OF THE NUMBER OF CENTERS OVER TO NEICT TWO YEARS, BACH AT THE
CURRENT LEVEL OF FUNDING.
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^^ 4.0 CONCLUSIONS
It is clear to this Subcommittee that certain elements of ORD are at a critical
juncture. The most serious threat to the continued viability of the EPA research
program stems insufficient S&E funds and FTEs, These inadequacies result in three
major weaknesses which threaten the core capabilities of the Agency's research efforts:
1) reliance on on-lite contracts for continued research effort rather
than mere support services,
2} attrition of federal career scientists with a subsequent loss of
historical perspective and invaluable experience with the Agency.
This situation is compounded by inability to hire due to inadequate
Personnel Compensation and Benefits (PC&B) funds, and lack of
funds for adequate training and professional development.
3) increasing obsolescence/inadequacies of equipment and facilities
capabilities.
Although the Subcommittee feels that ORD has made tremendous strides in
environmental research and has the potential to become the premier environmental
research facility, each of the above deficiencies continue to erode such capabilities*
Comequently, we again urge the Administration and the Congress to provide an
infusion of resources to abate the decline of EPA's scientific capability.
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