Workshop on State and EPA Tools and Strategies for Implementing Performance-based Programs “Using Performance Partnership Agreements and Grants to Institutionalize and Fund State Leadership Programs” Jack Bowles, EPA January 23, 2006

Indicators Initiative Report on the Environment Performance Partnership Grants & State Grants Information Exchange Network Performance Measures The Environmental Delivery System: Partnering for Results with States, Tribes, and Local Governments Performance Partnership Agreements EPA Strategic Plan State & Local Innovation Better Protected Land Cleaner Air, Purer Water Regional Plans Effective Oversight

Vision Achieve environmental results through performance-based partnerships that focus on agreed-upon priorities and take best advantage of the unique capacities of each partner The Principles Maintain core level of environmental protection Make continuous environmental improvements Plan together based on mutual environmental goals Allocate resources to highest priorities while ensuring fiscal and programmatic accountability (PPGs) Use mix of environmental indicators and program measures Facilitate public understanding Tailor oversight based on state performance The National Environmental Performance Partnership System

Four pilots in 1995 to create administrative savings give states flexibility to achieve greater environmental results. Appropriations authority and Agency guidance in Codified in EPA’s grant rules in States and tribes can combine up to 19 categorical grants into one multimedia grant. PPGs and categorical grants are subject to the same administrative requirements Now EPA’s largest state program grant. In FY 05: –About 30% ($346 million) of state program grant funds were awarded in PPGs. –Around 70 PPGs have been awarded in 50 States and territories, mainly to environmental and agriculture agencies. PPGs and Performance Partnership Agreements (PPAs) are two key tools for driving results in state grant agreements. States have used flexibility at the margin – demonstrated benefits have been anecdotal and mostly qualitative. The major issue facing PPGs is same as for all state grants – demonstrating results and linking clearly to EPA’s strategic plan. PPG History and Highlights

Performance Partnership Grants (PPGs) Flexibility to Address Priorities Partnership principles are built into the EPA’s grant rule governing all state and Tribal environmental program grants; the rule provides for a range of flexibility All State/Tribal Program Grants Link program activities to program outcomes and environmental goals Provide some flexibility to direct resources to state/tribal priorities within a program Performance Partnership Grants (PPGs) Allow states/tribes to combine up to 19 categorical program grants into a single multi-program grant Provide flexibility to achieve maximum environmental results. All PPGs provide administrative flexibility and reduced costs Streamlined paperwork and accounting procedures Composite match requirements rather than by individual program Easier funding of cross-cutting and multi-media projects In the most flexible use of a PPG, a state/tribe can increase efforts in some program areas and decrease them in others based on need; or fund innovative programs to maximize environmental results.

State Environmental Agencies State Agriculture Agencies Trends in Performance Partnerships Performance Partnership Grants Performance Partnership Agreements

Distribution of State and Tribal Assistant Grant Funds FY % 22% 30% 8% 5% $3,877 Million Total In FY 04, About 30% ($326 million) of categorical grant funds were awarded in PPGs.

Grants Included in Performance Partnership Grants State Environmental & Agriculture Agencies FY 2004 the average # of grants combined in environmental agency PPGs has remained stable at 6-7 Total # of PPGs = 68

Use of Flexibility in Performance Partnership Grants State Environmental Agencies FY 2004 Total PPGs = 39 MS – used funds from CAA 105, CWA 106, RCRA enforcement to conduct multi- media inspections in high priority watersheds CO – used funds from multiple programs to supplement PWSS program to provide emergency support to water systems impacted by forest fires/drought NH- tapped water grants to fund increasing wetlands work, and the lakes program, which had lost funding NE - used excess state air & water funds to meet state match for RCRA, which had insufficient state funds

It makes a difference whether one includes innovation language in the strategic section of a PPA or the body of a state grant workplan. Non-workplan PPAs (or the non-workplan sections) do not usually have binding commitments. PPG and categorical workplans usually commit the state (and sometimes Region) to certain outputs or outcomes. For states and regions that are developing innovation programs, inclusion in just the PPA or other joint priorities document could be a useful approach. For more mature efforts, developing grant outputs and outcomes may be appropriate, and could provide the innovation with access to core program funding. Innovation commitments could be stand-alone, or integrated into core program workplan commitments. PPAs, State Grants, and Innovation

Individual Media Program Grants Individual Media Program Grants/ Some type of an agreement with the RA PPA/PPG with less up-front flexibility PPA/PPG with high flexibility, multimedia focus (R8, CO) Higher Chance of Success Lower Chance of Success ! Mostly output measures ! Single Media, Stovepipe ! Only commitments with STAG $ have a chance ! PT/PB programs last in line to get $ ! Media turf issues greater at Federal level ! Greater number ofoutcome measures ! PT/PB Programs are often given higher priority for funding ! States can more easily negotiate w/ EPA to fund PB programs ! States work out their own turf issues Characteristics Likelihood that Integration Workgroup Recommendations on PT and Performance Leadership Programs Will Be Implemented Based on Type and Characteristics of Grant Agreements Characteristics Range of Flexibility in State Grants

PPGs and State Grants: Institutionalizing Innovation The need to demonstrate results and show links to EPA’s strategic goals is changing state grants – common templates, core performance measures and workplan components. These changes can provide an opportunity to better institutionalize and fund innovation programs in PPAs, PPGs, and categorical program grants. For Innovation programs to be included successfully in grant workplans, they likely will have to demonstrate results comparable or even superior to core or base program activities. We need the common currency (measures) or the conversions (functional equivalence) that will enable success...