summary report of
TRANSCRIPT
SUMMARY REPORT OFTHE JOINT LEGISLATIVEAUDIT AND REVIEW COMMISSION ON
Organization of theExecutive Branchin Virginia
TO THE GOVERNOR ANDTHE GENERAL ASSEMBLY OF VIRGINIA
House Document No. 44COMMONWEALTH OF VIRGINIARICHMOND1984
MEMBERS OF THEJOINT LEGISLATIVE AUDITAND REVIEW COMMISSION
ChairmanDelegate L. Cleaves Manning
Vice ChairmanSenator Edward E. Willey
Senator Hunter B. AndrewsDelegate Richard M. BagleyDelegate Robert B. Ball, Sr.
Senator Peter K. BabalasSenator fohn C. Buchanan
Delegate Vincent F. Callahan, fr.Delegate Theodore V. Morrison, fr.
Delegate Lacey E. PutneyDelegate Ford C. Quillen
Mr. Charles K. Trible, Auditor of Public Accounts
DirectorRay D. Pethtel
PREFACE
HOllse Joint Resolution 33 of the 1982 General Assembly directed the JointLegislative Audit and Review Commission to "study the organization of theexecutive branch for the purpose of determining the most efficient andeffective structllre". The resolution expressed concern regarding the numberand independent statns of executive agencies. However, debates and discussionssurrounding passage of the resolution indicated that there was also significantlegislative interest in a reassessment of the secretarial system of executiveleadership ill the Commonwealth and the role of boards and commissions.
An interim report olltlining areas of inquiry i research approach, andpreliminary findings was issued in December 1982. Subsequently, House JointResolution 6 was enacted by the 1983 General Assembly, which continued thestudy through 1983.
This summary report is the last in a series of four reports on executivebranch structure issued by the Comntission. It provides a comprehensivesynthesis of the preceding reports and highlights each principal finding andassociated recommendation. The companion volumes in this series are entitled1) An Assessment of the Secretarial System in the Commonwealth ofVirginia , (2) An Assessment of the Role of Boards and Commissions inthe ExecutIve Branch of Virginia , and (3) An Assessment of StructuralTargets in the ExecutIve Branch of Virginia
An important feature of this summary is a statement of the actions takento date on each recommcndation, including all legislative actions taken duringthe 1984 General Assembly session. Since the executive branch of governmenthas been substantially resh~lped as a result of these actions, a revisedorganization chart has been prepared and included on page 36 of this report toillustrate the resulting structural arrangements.
On behalf of the Commission staff, 1 wish to acknowledge the cooperationand assistance of the Governor's staff and secretaries, as well as the directorsand staff of each State agency which provided information for the reports.
/ar&'~Ray D. PethtelDirector
TABLE OF CONTENTS
I. INTRODUCTION .
II. THE SECRETARIAL SYSTEM IN VIRGINIA .
Role and Responsihilitics .....
Secretarial Structure
Staffing the Secretarial Systcm .
III. BOARDS AND COMMISSIONS
. . . . . . . . . I
. 7
......... 7
· . 8
· . 12
· . 15
Board Responsibility for Agcncy Opcrations . . . . . . . . . . . . . . . . . . . 15
Role of Boards in Exccutivc Dircction . . . . . . . . . . . . . . . . . . . . . .18
IV. STRUCTURE OF STATE GOVERNMENT. . . . . . . . . . . . . . .21
........... 21
. . 22
Cross-Cutting Concerns ..
Specific Structural Targcts .
Net Effects of Structural Proposals
V. NEXT STEPS IN REORGANIZATION .
.30
. .. 33
House Joim Resolution 33 of the 1982 GeneralAssemhly directed the Joint Legislative Audit andReview Commission (JLARC) to "study theorganiz:.uional structure of lhc executive branch forthe purpose of determining the most efficient andeffective Slfucturc." An interim report, published inJanuary 1983, outlined areas of inquiry, thercSt.'arch approach, Jnd preliminary findings.
House Joint Resolution 6, passed by the 1983General Assemhly, extended the study. Threereports, addressing the major components of theexecutive hranch, were puhlished in January 1984,
• An Assessment of the Secretarial System inthe Commonwealth of Virginia;
• An Assessment of the Role of Boards andCommissions in the Executive Branch ofVirginia;
• An Assessment of Structural Targets in the.Executive Branch of Virginia.
This summary document is an overview andsynthesis of thesc flARe reports, and provides anupdalC', where appropriate, on lhc swtus of therccommcnd:l1ions.
The principal findings and recommendations infLARes reports conslitutcd a blueprint for JctionprcSt.:'lltcd, in conjl1nction with the Governor'sreor,ganization proposals, for the consideration ofthe 198-1. session of 1I1e General Assembly. TheCeneral Assembly and lhe Governor are theprincipal architects of structural change.
JLARC and the Chid Executive conductedinde~nde111 assessmems of the organization of State,governmel11. The two staffs cooperated fully atimponam points in the process. The flARCschedule, for example, was advanced toaccommodate lhe Governor's request to report inpreliminary form to his September Conference onCrilieal Reevalu:uion of State Government. Theeoopcr~1tio1J was beneficial 10 hath parties in,gau,ging reaction and fine-tuning proposals.
Certainly, lhere is no one perfect way to
or,ganize ,government, nor is there necessarilyconsensus on what arrangements are most efficientand effeClive. Of primary importance is clearlyfoeusiu,g accol1ntability for management of Stategovernment.
In ilS review, flARC took an aggressive,s1[uul1ral approach, recognizing that decisionmakers wmdd be likely to consider additionalquestions which might affect final outcomes. Suchquestions potentiall y incl ude:
• What do we want to accomplish~'
• What do we want to emphasize~'
• Is it pelitically feasible'• What are the historical precedents~'
• What are the fiscal constraints andopportunities!
As recorded in this summary, the legislatureconsidered a wide range of reorganization hillsduring the 1984 session; most were adopted inwhole Or in part. Other proposals require furtherconsideration and may properly become part of theagenda for the next legislative session. Table 1provides an overview of the recommendations inthe three previous JLARC reperts, an update on thestatus of most recommendations, and an index tothe discussion of each recommendation in thissummary report.
Historical ConcernsAs of July 1983, the executive branch was
compesed of,
85 independent administrative agencies;
79 dependent agencies and institutionssuch as community colleges, correctional facilities, and mental healthinstitutions;
Table 1
Overview of JLARC's Government StructureRecommendations
JLARC Recommendation Status of Action IPage NumbersIn This Report
Report: "An Assessment of the Secretarial System in the Commonwealth of Virginia"
III Retain secretarial system. 7
121 Clarify secretarial authority and mission.
131 Separate administration and finance seCretariats.
141 Appoint full-time director for budget agency.
151 Resolve status of chief of staff.
161 Create special assistant for education insteadof secretariat.
171 Realign energy and military programs underappropriate secretariats.
IBI Eliminate transportation secretariat.
191 Create Secretary of Commerce and Transportation.
1101 Create Secretary of Cultural and Natural Resources.
1111 Provide deputies for secretaries; create centralagency for secretarial staffing.
Implemented by HB B 15.
Implemented by HB B 15.
Oirector appointed.
Resolved by SB 3B4.
HB B15 maintains distinctions between education
and other secretariats.
Imptemented by SB 32B.
HB B 15 merges transportation with public safety.
HB 147 calls for study of executive managementstaff activities.
B-lO
10
10-11
11
11-12
11 12
12
12
12-13
Report: "An
in
Assessmentthe Executive
of the RoleBranch of
of BoardsVirginia"
and Commissions
1121 Establish categories of boards.
1131 Repeal supervisory authority of 16 boards.
1141 Modify supervIsory authority of five boards.
1151 Delete personnel authority of certain boards.
1161 Limit budget approval to supervIsory boards.
1171 Define monitoring responsibilities.
I1BI Clarify lines of accountability.
1191 Define "citizen member" category.
1201 Contain board meeting costs.
1211 Consolidate or eliminate boards where appropriate.
1221 Authorize and limit gubernatorial task forces.
Implemented by HB 6BO and HB 6B 1.
Implemented by HB B15.
Implemented by HB 6B3.
HB B13, HB 25, SB 33, and SB 32B eliminatefive boards.
Implemented by HB 6B4.
15 16
16
17
17
17-1B
1B
1B-19
19
19
19
19-20
Report: "An Assessment of Structural Targets in the Executive Branch of Virginia"
2
1231 Consolidate or support small agencies.
1241 Conform sub-state boundaries.
1251 Adopt standard agency nomenclature.
1261 Refine State's computerized budget system.
1271 Codify certain agencies.
HJR 147 calls for a study by the Governor.
Under study by budget agency.
Implemented by HB 6B2 and HJR 162.
Efforts under way by budget agency.
Implemented by SB 113 and HB 6B5.
21
21
21
22
22
JLARC Recommendation
(28) Centralize debt collection.
(29) Assess transfer of State Police computer operation.
(3D) Co-locate analytic sections of two agenCies.
(31) Realign Commonwealth Data Base underbudget agency.
(32) Transfer DMV's revenue forecast'lng un"lt,
(33) Create Department of Economic Development.
(34) Consolidate product promotion.
(35) Merge administration of historic sites.
(36) Create Department of Environmental Regulation.
(37) Consolidate conservation activities.
(38) Create Department of Game and Inlandand Marine Fisheries.
(39) Consolidate product inspection,
(40) Consolidate worksite inspection.
(41) Create Department of Commerce andHealth Regulatory Boards.
(42) Assess consolidation of student
financial assistance.
(43) Realign and support Division of Volunteerism.
(44) Eliminate duplication betweenvolunteerism agencies.
(45) Co-locate visual and other
rehabilitative services.
(46) Assess transfer of certain functions of Departmentof Visually Handicapped.
(47) Co-locate social services for aged and others,
(4B) Real"lgn Governor's Employment and Training
Division under another secretariat,
(49) Create Department of Advocacy Agencies.
(50) Consolidate regulation of health-related facilities.
(51) Assess independent status of Rehabilitative
School Authority.
(52) Designate Central Garage a working capital
fund and realign.
(53) Consolidate administration of aircraft.
(54) Centralize specified responsibilities for
radioactive materials.
(55) Realign Department of Military Affairs
under public safety.
(56) Realign emergency services and energy activities
under another secretariat,
Status of Action
HJR 147 calls for a study by the Governor.
Transfer authorized by Governor.
SB 32B creates department.
Implemented by SB 32B.
Implemented by SB 32B.
HJR 147 calls for a study by the Governor.
SB 32B creates Department of Conservation
and Historic Resources.
HJR 147 calls for a study by the Governor,
Under study.
HJR 147 calls for study of small agency support.
Memorandum of understanding drafted,
SB 3B3 realigns Title XX and auxilary grantprograms under Department of Social Services.
HJR 147 calls for a study by the Governor.
HJR 147 calls for a study of small agencies.
HJR 147 calls for a study by the Governor.
Under study,
Working capital fund approved.
Negotiations under way.
Implemented by HB B 13.
Implemented by HB B 15,
Implemented by HB B 15.
Page Numbers(n This Report
22
22-23
23
23
23
23-24
2.
2.
25
25
25
25-26
26
26
26-27
27
27
27
2.
2.
2.
2.
28-29
29
29
29
29-30
3D
3D
3
222 collegial hodies such as lhe ho,-Irdsof visitors of institlltions of highereduc,-Ition and mher supervisory, policy,and Jdvisory hoards;
II politicli suhdivisions sllch as theState Edllcation Assistance Allthoril y.(While the subdivisions in most casesJre creJ.ted independently to providefinancing mechJ.nisms, some level ofcoordinJ.tion with them is necessary);
10 independent leadership offices incllld"ing the offices of lhe three electedofficials J.nd the seven persons \vhoserve as the Governor's secretaries.
Concerns regJ.rding the size, complexity ,-llldcost of StJ.te government J.re not new in Virgini,-l.IncreJ.sed demJ.nd for governmentJ.I services overthe yeJ.rs hJ.s heen pJ.ralicied hy growth in lhenllmber of SUte J.gencies J.nd J.ctivities. Thisgrowth hJ.s hrollght with it nllmerolls J.ttemptssince the 1920's to mJ.ke the struClIIre of Stategovernment mJ.nJ.geJ.hle.
ProposJ.ls for full-scJ.le reorgJ.niz~Ition to red licethe size of the strllctllre were never totJ.llyadopted. Hmvever, the Governor's c<lpacity tom,-lIuge the myriad of government services J.ndadministrative processes WJ.s strengthened in severJ.IWJys. In 1972, agencies with similar missions werere,-Iiigned iu hroJd fllnctionJ.1 JreJ.s under thedirection of six Governor's secretJ.ries. An ongoinginitiative h,-Is heen centrJ.lizing and improvingnunagemelll functions such as plJ.nning, blldgeting,personnel, and pllrchJsing.
While these steps hJ.ve contrihuted to theefficiency of government, seveul concerns wereapp,-Irellt at the initiation of this stlldy. Thesecretari,-Ii system h,-Id evolved from J. primJ.rilycoordinative role to a manJ.geriJ.I and policy-makingroll', raising concerns J.hout the concentution ofexecillive authority in the Governor J.nd secretJ.ries.Thi,,> compounded long-term concerns regJ.rding therole of citizen hO~Irds within J. profcssionJ.llyman~lged ,-llld efficiently strllctllred executivehranch. Addition~Ii orgJnizatiOlul concerns were theover,-Iil numher of ,-Igencies <lnd the hlurring ofdistinctions ,-Imong functional ~Ire,-IS of governmentaud among agencies.
Legislative Responsibilities forExecutive Branch Structure
Org;Iniz;Ition~Ii restnlctllring 10 address sllchconcerns is clearly '-I icgisbtive prerogJ.tive. TheCOllstitlltiou of Virgiui~1 reserves organizJ.tionJ.1pmvers to the General Assembly:
• Article III sUtes that the "legislative,exeCillive, aud judicial departments shJ.ll he
scpJrJte ,-llld distinct, so th,-It none exerciseIhe pmvers properly helonging to the others,nor ;lllY person exercise the power of moreIiLlll ODe of Ihem at Ihe same time;provided, hO\vever, administf,-Itive ,-Igenciesnuy he ereJled hy the Ceneral Assemhlywilh such ;uIthority Jnd duties as theCeDer,-Ii Assemhly nuy prescrihe."
• Anicle V sUtes that "the fllnctions, powers,;11\(..1 dllties of the administr,-Itive departments;uld divisions ,-llld of the agencies of theCommon\veahh \vithin the legisiJ.tive J.ndexeculive hranches may he prescribed hyLI\\"."
• Article IV cllltions tlut "the omission in thisConstilIltion of specific grants of J.lIthority ..sh;IiI Dot he eonstmed to deprive the GeneulAssemhl y of such allthority, or to indicJ.te J.ch;lllge of policy ... '
Altholl,gh ultinute ,-IIIthority for executivehrJDCh reorg:lllizatiou is vested in the Legislatllre,Ihe C;eDcral Assemhly ~Iiso ~lllthorizes the Governor,through the Execlltive Reorg'-ll1ization Act (Title2.I, Chapter 1.1 of the Code of Virginiil) to initiJ.tcproposals for its consideration. The GeneralAssemhly is in no WJ.y constrained, however, fromtJ.king independent J.ction to reorganize theexeclItive hunch.
The Act specifics legislative intent fororganizationJ.1 restrllctllring J.S follows,
• Promote the better execlltion of the laws, themore effective nunJ.gement of the executivehunch Jnd of its J.gencie,,> and functions, andthe expeditiolls J.dministr<ltion of the pllhlicbusiness.
• Redllce expenditllres and promote economy tothe fullest extent consistent with theefficient opeution of Stale government.
• IncreJ.se the efficiency of the operations ofStJ.te government to the fullest extentprJ.cticJ.ble.
• Grollp, coordinate, J.nd consolidJ.te agenciesJ.nd fllnctions of StJ.te government, J.s nearlyas mJ.y be, according to mJjor pllrposes.
• Reduce the number of agencies byconsolidJ.ting those hJ.ving simibr fllnctionsunder J. single heJ.d, J.nd abolish suchJ.gencies or functions thereof as nuy not benecessary for the efficient conduct of theSute government.
• Eliminate overbpping and duplication ofeffort.
JLARC Review and ProposedOrganization
The JlARe studies took into ;IccOimt hothhistoriCJ.I concerns J.nd legisbtive pJ.rJ.meters forreorgJ.nizJ.tion. The overJ.ll gOJ.I WJ.S to J.chieve anefficient J.nd effective structure with appropriJ.te
assignmcnt of responsibilities within themanagement hierarchy. Mcthods werc directedtoward three specific objectivcs:
l. to rcview the organizational structure of thecxecutivc branch in terms of its agencies,programs, and activities, in order to ideutifyarcas of duplication, fragmentation, orinappropriate alignmcnt.
2. to asscss thc stntcture and relationships ofexecutive direction as intcnded by theLegislature, and as implemented by theprcviOlts and current Governors, Governor'ssecrctarics, agency hcads, and citizen boards.
3. to prescnt options and rccommcndations forrcstructuring thc executivc branch toachicve legislative objectives for aneffcctively and efficiently organizedstructurc.
This comprchcnsivc approach includedassessment of the more than l,238 diffcrent agencyactivities as wcll as a review of the superstructurefor exccutivc direction - comprised of theCo\'ernor, secretaries, boards, aud agency directors.A utuuber of approaches were used to gather datator anal ysis:
• A comprehensive computer and verificationaual ysis of the l,238 activities of executivc;lgeucies eutered in the State's programbudgeting system. This analysis enabled staffto ideutify duplicated, fragmented, or
iuappropriately aligned activitics andstructures.
• Two written surveys, one of boardchairpersons and another of a rcprcscntativcsample of board members. Thc survcys wcrciuteuded to provide iuform~ttion on theactivities and orientations of thc 68 boardswhich arc coucerned with the overalloperations of an executive agency.
• A systematic review of previous legislativeand executive studies to identify historiccoucerns.
• luterviews with the Governor's secrctaricsaud staff in many State agencies.
• A systematic review of the Code of Virginia,the Constitution of Virginia, andcommentaries on the Constitution to idcntifyageucies aud other entities crcatcd by statuteaud priuciples of fundamental law in thcConmlOllwealth.
Proposed Blueprint for Action/LARC found that the executive branch is
logic ..llly orgauized in a manncr consistcnt with thcmauagemeut ueeds of the Commonwcalth.Nevertheless, the three reports havc callcd forsignificaut actions to address arcas of imbalance oriuefficiency. The recommendations arc cxplaincd inthe following chapters of this rcport, whichspecifically address the secretarial system, boardsaud commissious, aud strUctural targcts.
5
6
II. THE SECRETARIAL SYSTEM IN VIRGINIA
The secretarial systcm was created tostrengthen management control over the executivebranch. A structure for providing high-level policydirection and coordination was seen as preferable tothe piecemeal consolidation or reorganization ofagencies which had occurred in the past. Thesystem currently consists of six secretaries who arceach responsible for overseeing the agencies withina functional area of government. Creation of thesystem, nevertheless, gave risc to concerns regardingpotentially excessive concentration of executivepower and the appropriate assignment ofresponsibilities among government entities.
Therefore, the structure and rolc of the systemshould be periodictlly assessed. Currently variousrelationships require clarification and balance.These include authority of the General Assemblyand Covernor; the responstbiltties spelled out instatute for agency heads and boards; and themanagement responsibilities, structure, and staffingof the secretarial system.
ROLE AND RESPONSIBILITIESThe system's role and responsibiltties have
L'volved over time. Secretaries now carry outimportant coordinative, budgetary, and monitoringactivities. However, the value of high-levelmanagement could be enhanced if there were lessambiguity regarding the conttnued need for thesystem, and its authority and mission.
Continued Needfor the Secretarial System
There is no questton that the State reqLtiresefficient management of its resources. The nLtmberof State <.lgencies may be reduced throLtghconsolidation or other measures. However, the roleof State government in the federal system and theresponsibilittcs of State agencies can be expected toincrease.
Although executive power has become moreconcentrated in the Commonwealth, this ts notincompatible with the direction cstabltshcd- by theCeneral Assemhly to provtde more cohesivedirection to the functional areas of government.The secretarial system appears to offer a reasonablestructural format to maintatn the tntegrtty of theindividual agencies that carry out programs whileproviding this directton. The balance of authorttybetween the Governor and the General Assemblyalso docs not appear to have been sertouslyimpJired. The General Assembly still hasresponsibiltty for conftrmtng appotntments andprescribing the structure, responstbilittes, and broad
policies of executive entities.There is no evidence that it would be desirable
to return to a system where all program-relatedagencies report directly to the Governor. Nor docsit appear necessary to undertake massivereorganization to adopt a cabinet system, in whichthe heads of a relatively few, large, multi-purposeagencies also serve as advisors to the Governor. Thequestion of whether or not some other system ofpolicy advisement would work better is not possibleto answer.
Staff Recommendation (1): The General Assemblyshould retain the secretarial system with itsmanagement-coordination orientation.
Status of Action: As noted lInder slIhsequentreconlmendations, the responsihilities of thesecretaries have heen clarified and reaffirmed hyaction of the 1984 General Assembly.
Clarification of Authority and MissionSince 1972 the management role and
responsibiltttes of the secretaries have beensignificantly strengthened through a major statutoryrevtsion and successive execLttive orders. TheGovernors have made use of their flexibility inexecllttve orders both to deftne statutory provisionsand to delegate addtttonal responsibilities of theirown.
EvollItion of Management Orientation. lnitially,the secretarial posittons were established in statute,and the Governor was authorized to delegate anyof his management fLtnctions. Early executiveorders provtded for a coordinattve or staff role wtthlimtted authority over agenctes. In fact, the StateCommisston on Governmental Managementexpressed concern that the authortty of thesecretartes was so limtted that the management roleenvtstoned for them was not being achieved. Theyappeared to be serving tn a collegial sense, whichundermined the intended focus on functional areaS.
Between 1974 and 1976, statutory revisionsprovided the Governor and secretaries, for the firsttime, with explictt authority to establish policiesfor agencies and to resolve conflicts betweenagencies. This responsibtltty was clearly notregarded as inherent in the constitutional provisionsvesting chtcf executive powers in the Governor orrequtring the Governor to "take care that the lawsbe faithfully executed." It had to be specified In
statute by the General Assembly.Also, for the first time, secretaries'
responstbilittes were specified tn statLtte to includecompiling program budgets for thetr respecttve
7
fnnccion;J! <.IH.:as. The General Assembly made animpnrw11l discinccion, hO\vever. The powers andd11lies (if che Secrec;Jry of EdllC,Hion werediffercIHialed frOIn cbe ochers. This secrccary nul'pnwide conrdilucion <.l11d develop ;J!cernacive blldgecproposals. (Thc feJ!1 r':l11ge of SCa(lHory and delegmedrl'sponsibilicics is shown in Table 2).
Aut/writ)' to Hold Agencies Accollntable.Despice SC<.J(lHory ch;l11ges w nuke cheresponsibililies of che secrecaries more explicic,chere is ;lmbigllicy in che rebcionship of secrewries;l11d "Igency direcwrs. To some degrce, chis,·refleccs;Imbignicy in che role of che Governor. Thel'XecIHive ..nHhoricy of che Governor is nO(sllfficicndy defined in che Constitlltion w close offdd).:He ab01H ics scope and na(lJre, Imc mllSC bedecermined in conjll11ccion wich consideracion ofcradicion .:lJ1d sC ..J(lJ(ory assignmenc of responsibilicy.
The Gem:r.:J! Assembly has nO( chosen (Q makeexplicic in SC ..J(lHe che .:nHhoricy of che Governor orhis secrewrics (Q hold agency heads responsible forcheir performance. Nevenheless, chis responsibilicyhas been informally exercised by Governors anddelcgaccd w each secrecary by exeCIHive order.BeC<.11lse chis responsibilicy is .:1 cricical managemenccomponclH, ic w01J!d be desirable ac chis cime (Q
specify ic in sU(lHe. Thc Sccrcwry of EdllcacionSh01J!d be excepced, however, bCC<.11lse of nniqllecOnsCi(lHiOlUI ..l11d SW(lJ(ory circnmsc;Jnces regardingedllc;lcional encicies.
Ic Sh01J!d be cle<lrly sC;Hed in swmce chac chemission of che secrccarial syscem is co provideoveull policy direccion and co moniwr performanceof ..1 hl11ccion ..J! area of governmenL However, cheresponsibilicy for oper.:Hing <In <.lgency and<.ldminiscering ics programs Sh01J!d remain clearlyvesced in chc appoinced and confirmed agency heador sllpervisory board.
Staff Recommendation (2): The General Assemblyshould clarify the mission of the secretarialsystem and the authority of the Governor andsecretaries. with the exception of the Secretaryof Education. to hold agency heads accountablefor fiscal, administrative, and programperformance.
SUtllS of Action, HB 8 l::; provided the secret~lries
Idth the reco1ll11lellded ;1llthority.
SECRETARIAL STRUCTURECh"lnging circllmscallces reqllire periodic
re<.lsscssmenc of che secrcwrlal scnlcmre co enSllrechac ic cOJ1(imles co serve che plJrpose for which ic\vas creaced. Described as ic <lppeared in Jllly 1983,d)c sl'crcc.:Jrial sysccm in praccice consiscs of sevensLH(JCOT\" posicions in che ch':lin of comnund
8
becween che Governor and exeCIHive branchagencies. The six secrecaries and che Assis«JncSecrecary for Financial Policy repon co cheGovernor. An cighch posicion - chief of scaff incrodllccd by exeCIHive order in Jllne of 198''3serves in a posicion becween che secrec"lrics and cheGovernor.
The scnlC(lJre was assessed '.lccording co chefollowing criccria:
(I) Agencies in che hl11cc!onal arca Sh01J!d servereasonabl y re laced pllrposes;
(2) Agencies relJllire che sllpervision of asecrewrYi
(3) A secrewry Sh01J!d have a reasonable sp"1l1of control and workload;
(4) The Governor reLJllircs independenccoordinacion and adVice reg;Jrding chegovernmencal hmccion; ;Jnd
(5) Scrllcmral arrangemencs onghc co beendllring, nO( convenienc, expedicnc, orbased solely on che abilicies of Theincllmbenc.
Based on chese criceriil, five modificacions arcproposed for che secrecarial syscem. The reslJ!cw01Jid be,
• separace secrecaries for adminiscracion alH.1financei
• a hJiI-cime direccor for cbe DepJnmenc ofPlanning and B1Jdget,
• a policy coordinacor for edllcacion inscead of ;1
secrecarYi• a chief of swff posicioned in che Governor's
Office rachcr chan in che chain of commandbecween che Governor ;Jnd che secreCJrieSi
• a Secrccary of Commerce and Transponacion,and ehminacion of che sep;Jrace cransporwcionsecrewriaci and
• ..I Secrecary of Namral .:Jnd Cllimral ReS01Jrces.
Administration and Finance SecretariatOrganizacional arrangemencs in che
adminiscracion and finance secrcwriac cOlHradiccswmwry assignmenc of responsibilicy and creaceconhlsion becallse chey have nO( been endllring.This is a cricical problem, becanse che secrecari;Hencompasses agencies responsible for planning,blldgec, and personnel fnnccions chac arc imponancw che overall managemem of Scace governmenc.They are imponanc also co che suppon of lineagencies and O(her secrewriacs.
The Secrewry of Adminiscracion and Finance issW(lHorily designaccd as dCPIHY personnel andImdgec officer of che Common wealch and is vescedwich responsibilicy for overseeing all scaff agencies.In praccice, however, supervision of fiscal agenciesh<.ls been delegaced co che Assiscanc Secrecary forFin,lllci;J! Policy. This posicion receives Jsl'CTl'I<lri;ll-kvcl sal;Jry, <.Ipproved by che General
Table 2
Powers And Duties Of The Governor"sSecretaries As SRecified In The Code
Powers And DutiesI Delegated By Executive Order
Secretary
Power or Duty A&F C&RI EDI HR PS TR
Secretary II II Provide gen...-al poli<:v dire<:llon 10 agencIes tI • • 1·\ • • •ABoF I CBoR I ED IHR I PS I TR I Resolve adm,mslrallve. 'Ullsd'cl,onal, policv.
II • • 1.1. • •progam. or operBllOl1aJ conflicts among agencIes
I I I. I. I I II IIHold aSSIgned agoncv hllads accountable for lhl!
• I •• • • • adm,nllitJallvlI. fiscal and progam performance • • • •of 1~1l agarn;,.s
Tran$ffilt reports to the Governor " • I • • • • •Exam"'e the orgllnrzallon of agencllIs • I • • • -. •• I • I ,. ,. I • I II II and ra<:ommend changes
TransmIt recommendallons reqUIred bv slalulll of
• I • • ·I. I •Slale agllncllIs 10 the GovlI,nor
Direct. lor the Governor's cons'OOrauon. the formulauon tI • I • e • I • I •of comprehens,vlI POllC"'1S. plans. and budgets
• I • I • I. I • I • I II II Dired, for the Governor's consideratIon '"" !preparallon of allltrna!lve pOliCllIS, plans, and II I ..budgets for IIducBllon
,
• I • I I .1 • I • I II II Coordinalll ass,gnlld agencIes aCllvllles
• I • !. • I. I •Wllh Olher enlllles
Talr.e so-<:,fic acllons. or SIgn documenls In lhe.0 'I • I • .\. \.• I • I I. I • I • I II II Governor's sleed. as specIfied ,n Execullve OHler
Coordinele communlcallons Wllh lhe FederBl govern- I • I • .:. •• I I I I II II menl and governmenlS of olher slales
lmpletTlenl policIes for 'eglSlallve coord,nal,on o i • ' ..'. •• I I I I II II Emplov Personnel and conlracl for coosulllng i ·:. , .sarVICIIS as reQUlllld and subjI:tCl 10 ava,lable .0' • I·funds I
• I I I I II II Direcl lhe adm,nlSuBllon of lhe Slalll governmllnl
II •plann,ng and budgel process
Direcl lhe adm,nlSlrallOO of lhe Slalll governmenl tI • I• I II II personnel svslem
Re50lve coofliclS among and bel ween secrlll(lrlal ;
!!
:0 I I I I I I II II areas whIch <rav arISe concernIng anv acllons • idelegaled 10 lhll Secrelarllls , iDllvelOQ revenue forecalils and provIde advlclI on
i 0 I i0 I I I I I I II II mailers of fi'lance 10 Governor ~nd olher secrelanes IDVefSBe linanclel policv developmllnl and coord,nale til 0 !
• IIfinanC'al aCllv'lleS of pUblic IInlllllls ,ssUlng bonds
i)
Serve as a member of Treasurv Board 0 I
• Devlllop and opera Ie a 'lIglslallve coordinellon prOcllss i 0, i
AEnslJrlllhel lhe leQislllllVII coordlnBllon process III Implemenllld • • • • • •ServlI on lhll Cenlral Car POOl Commlllllll as ChaIrman •&AeOlloo>O'hl' "mlroo 10 000-'''''1''''''0'''' plO9<am. o 4.~ 10 I.......... ,af'., '><>erel .. , 'ew r''''''''''&1 POI'"
-BAu_.IIl".. , ,nov"'" ,o''''vl,oo'' "'09<om• • At......,.., 10 s.c,., ......
LbtI Provision which clarifies or comes straight from statute.
Coordmale and presMl lhe SlalewldeTransporlellon Plan
• "' ...gneo 10 ~,"(;lel."
0"""_ 10 lh. "'''''''0'11 5eoolo" I", r,ooopol P_,
D,,"cl lhe formulallon 01 a comprehenSIveprogrem budgel fOI cullUlal affairS
Serve as depuly personne' off,ce,
ESlabUSh spec,f,lld Insurance plans
Coordmale lhe fInanCIal acl,v,l,es of lheseverel publIC aulhorllllls. agencIeslind Inslllullons ISS""1g bonds
Oversee fInancIal pOlICy developmenl
Provide policv dlrecllOn fOI programsinvolving more lhan a sIngle agencv
Direcl thll formulllllon of a oomprllhllnslveprogrem budgel fOI hIS offIce Bnd agencills
Dlrecl lhe preparBllOn of a'lernal,v.e polICieS.plans. end budgels 101 educallon
Resolve adm,n,slral,ve lUnsd,cllonal.
or pollCV conf~cls belwee" asslgnlldIIgl:mciIIs lunless lhe GOvernor IIxpresslvrllserVlls such a power for hImself I
Power or Duty
Tranemil IIgl:mCV reporls 10 GOvernor
Agencies shali exercIse lhe" respeclivepowers and dulles ,n accordance wilh
generlll pollcv IIs1abhhed by lheGovernor or lhe Bppropnale SecrlllarvIIcl,ng on hIS bllhBlf
Sub;ecl 10 dlrecllOn Bnd supervISIon oflhe Governor
Serv. U depulv pl,~nnlng ano oudgel off;c. 1 - I I 1 1 .l......-......
Source: JLARC'D
AssemblY, :IIHl directly reports to the Covernor.Thcse orl!,:mi::ItiOIul clunges have occurred, inp.Irt, bec~mse of the :Illparent desire of recent,~O\Trnors to h.lve .1 more direct relationship withthc buuget function, the he:lvy workload of tbesecreurLn, aIlll the dissimiLIr missions of agencies.
The workload of the secretariat appears towarr:mt t\\iO secretaries. Creating a sep:IrateSecretary of Fin:mce and a separate Secretary ofAdministr:Ition would continue the strongreLItionship of the budget function with theCovernor. It would also strengthen the program:Irea secretaries. There is now implicit dominanceof the administration and finance secretariat overthe program secretariats that has been derived byconlhilling ad1l1i nistrati ve and blldgetary allthorityin one secretariat.
Agencies :Issigned to the Secretary of Financeshould include only :Igencles with budget and fiscalpolicy orientations. Concurrently, the administrationsecretariat would take on a new and importantfunction. Suff support for the secretarial system inareas of policy research, general informationgathering, and evaluation would he provided by theproposed Dep:lrtment of Analytical andAdministrative Services located within the~ldministr;Ition secrctariat.
Staff Recommendation (3): The General Assemblyshould eliminate the current administration andfinance secretariat and create a separateSecretary of Administration and a Secretary ofFinance. Agencies should be aligned under thetwo secretariats in the following manner.
AdministrationDepartment of Computer ServicesDepartment of General ServicesDepartment of Management Analysis and
Systems DevelopmentDepartment of Personnel and TrainingOffice of Employee Relations CounselorsCompensation BoardDepartment of TelecommunicationsSecretary of the Commonwealth - Division of
RecordsDivision of VolunteerismState Board of ElectionsCommission on Local GovernmentOffice of Commonwealth - Federal RelationsDepartment of Analytical and Administrative
Services (New)
FinanceDepartment of AccountsDepartment of the TreasuryDepartment of Planning and Budget (with new
revenue estimating unit)Virginia Supplemental Retirement SystemDepartment of Taxation
10
(Plus approximately 6 public authorities withfinancial orientations)
StJtIIs of Action; HB 8L, creMes separ:lte~ldI1Iinistr;ItiOIl and finance secret~lriats.
Management of the Department ofPlanning and Budget
An additional organizational and mauagementprohlem in the admt"nistration aud financesecretariat relates to the responsibilities of theAssistant Secretary for Financial Policy. Currently,the Assistant Secretary also serves as the Directorof the Department of Planning and Bndget. Whileboth positions arc related to financial matters, theorientation and responsibilities of each arc different.The Assistant Secretary must necessarily beoricnted toward issues related to financial policy.The Director of DPB has as a primary orienUtionthe efficient and effective operation of theDepartment.
A large and complex agency entrusted with thecritical functions of DPB needs the attention of afull-timc director. Moreover, line agencies and othercentral agencies should be ahle to perceive tbesecretarial level as having an impartial overview ofrelationships and issues.
Staff Recommendation (4): The Governor shouldappoint a full-time director for the Departmentof Planning and Budget.
StatllS of Action. Effective [Illy I, 198~, :I flll1-timedirector wi}] be appointed in accordance ~vith thebudgetary provisions in Section -/.-6.01 of the1984-86 Appropriations Act.
Chief of StaffMany of the functions of the administration
and finance secretariat are shared by the Covernor'schief of staff who is not confirmed by the GeneralAssembly. E~ecutive Order 36 declares andconfirms the Governor's Senior Executive Assistantas having budgeting, personnel, and planningauthority. This order raises legal as well as pohcyL/.uestions. Moreover, the perception of hierarchicalauthority of this staff position is further reinforcedby the Senior Executivc Assistant's position as headof an ad hoc committee to oversee the budgetprocess. The group adds another level to thecomplex budget process, and reportedly has the lastword at each stage. Some secretaries participate hutothers do not.
Assigning such powers to an individual who isnot confirmed by the Ceneral Assembly haspotential to abrogate the Legislature's approvalprerogative aud the statutorily assignedresponsibilities of the Secretary of Administration,md Finance. Moreover, it docs not conform with
the delegation of powers statute, which authorizesthe Governor to delegate functions vested in himby law only to a secretary or otber officer in tbeexecutive branch who is required to be confirmedby tbe General Assembly.
The Governor's Office indicates that the intentof tbe order is not to delegate autbority but toclarify relationships. The order was issued uponinformal consultation with the Attorney General.Tbe autbority is intended to apply only to tbeGovernor's Office, and new language is beingprepared to make tbis clear.
Nevertheless, designating a trusted assistant ascbief of staff can provide a focal point forleadership within an administration. If a Governorwishes to organize on the basis of Executive Order36, be or sbe sbould request tbat tbe GeneralAssembly establisb a cbief of staff position wbicbis confirmed, or submit an amendment to thedelegation of powers statute to identify otberindividuals eligible for delegation. For tbe present,however, Executive Order 36 stands in conflictwith statute.
Staff Recommendation (5): The Governor shouldrescind Executive order Number 36 thatestablishes the Governor's Senior ExecutiveAssistant as chief of staff with budgetary,personnel, and planning authority.
Statlls of Action. SB 384 resolves the problem byallthorizing the Governor to appoint a chief of staffand providing for confirmation of the appointmentby the General Assembly.
Education SecretariatThe unique aspects of education governance in
tbe Commonwealtb indicate tbat tbe Secretary ofEducation is expected to serve in a policydevelopment and advisory role. Tbe GeneralAssembly appears not to bave intended amanagerial role for tbe position. Nevertheless, byexecutive order the management orientation of thesecretarial position has been increased and madesimilar to that of other secretari.es. This status isincompatible with the important statutorydistinctions made by tbe General Assembly in tbepowers and duties of this secretariat.
Statutory distinctions for the secretariat include:• no authority to develop a comprehensive
program budget for tbe functional area;instead there is authority to developalternative proposals;
• no authority to transmit agency reports;• omission of language included for other
secretaries, requiring agencies to operate inaccordance wi th the policies of the Governorand secretary i and
• no listing of boards of visitors under thesecretary's jurisdiction.
Tbese distinctions are further supported by tbeunique status of boards within the secretariat andthe discrete assignment of budgetary responsibilities.Tbe Board of Education is constitutionallyestablisbed, and tbe boards of visitors of bigbereducation institutions are, by statute, subject to thecontrol of tbe General Assembly. Additionally,while the Governor is authorized to prepare aprogram budget, tbe secretary is only autborized toprepare alternatives. For colleges and universities,tbe State Council of Higber Education sets fiscalguidelines and formulas and comments on budgetsto tbe Governor and General Assembly.
lt appears questionable for executive orders tobe used to make positions equivalent that aredifferentiated by tbe General Assembly. As one ofthe highest priorities of State government, however,education should receive vigorous attention from anexecutive official with direct access to theGovernor.
Staff Recommendation (6): The General Assemblyshould eliminate the position of Secretary ofEducation and create the position of SpecialAssistant for Education in the Governor's Office.For the present, executive orders should bebrought into conformance with statute.
Status of Action: HB 815 maintains the distinctionsbetween the uniform responsibilities assigned toother secretaries and those assigned in existingstatute to the Secretary of Education.
Transportation SecretariatTwo circumstances warrant a close look at the
need for a separate transportation secretariat. First,the Department of Highways and Transportation isthe major agency in the secretariat.lt is managedby a Commission which has extensive powers inplanning, policy development, and oversigbt. Tbesepowers duplicate tbose of tbe Secretary.
Second, several agencies have purposes that areclosely related to tbe public safety and commercesecretariats. The missions of the Department ofMilitary Affairs and tbe Office of Emergency andEnergy Services are more related to public safetytban transportation, and sbould be realigned witbintbc public safety secretariat.
The remaining four agencies - the VirginiaPort Authority, Department of Aviation, Division ofMotor Vebicles, and tbe Department of Higbwaysand Transportation - do not constitute a largeenough span of control to require a secretariat.Tbey could be linked witb commerce-orientedagencies.
Because there is a strong relationship betweenstrengthening the transportation infrastructure andeconomic development, a combined Secretariat forCommerce and Transportation should be created.Combining transportation and commerce, however,
II
is dependent upon separation of commerce andresources. Otherwise, the workload would beunmanageable, and too many important functionswould be grouped together.
Staff Recommendation (7): The General Assemblyshould separate the emergency and energydivisions of the Office of Emergency and EnergyServices (OEES), and transfer the EnergyDivision to the secretariat with oversight ofconservation activities. The Governor shouldtransfer the Department of Military Affairs andthe emergency response activities of the OEESto the public safety secretariat.
Status of Action, SB 328 transfers the energydivision to a new department in the commercesecretariat. The other agencies were transferred tothe public safety area by HB 815.
Staff Recommendation (8): The General Assemblyshould eliminate the transportation secretariat.
Status of Action, HB 815 merges the transportationsecretariat with the public safety secretariat.
Commerce and Resources SecretariatRestructuring and dividing this secretariat could
reduce the secretary's span of control and focusattention on discrete program areas. The secretariatis composed of 19 independent agencies and 104other entities, many of them collegial bodies withoversight, policy, or advisory roles. Consolidation ofagencies and activities can serve "to make thesecretariat more manageable in terms of numbers ofagencies and activities. However, the secretary stillmust balance competing commercial and naturalresource needs. These functions are often notinherently compatible and are hotly debated byinterest groups of various types.
A secretary responsible for conserving theState's natural and historic heritage would have adifferent orientation than a secretary committed tomaximum economic development. However, thereIs a strong-ieIationship'-between economicdevelopment and strengthening the transportationinfrastructure. These interests could be encompassedin one secretariat.
Staff Recommendation (9): The General Assemblyshould create a Secretary of Commerce andTransportation and align the following agenciesunder this secretariat:
Department of Housing and CommunityDevelopment
Department of Labor and IndustryDivision of Industrial DevelopmentState Office of Minority Business EnterpriseVirginia Marine Products Commission
12
Milk CommissionDepartment of Agriculture and Consumer
ServicesDepartment of CommerceVirginia Employment CommissionGovernor's Employment and Training DivisionDepartment of AviationDepartment of Highways and TransportationDivision of Motor Vehicles (could be assigned to
Administration or Finance, also)Virginia Port Authority
Staff Recommendation (10): The GeneralAssembly should create a Secretary of Naturaland Cultural Resources and align the followingagencies within this secretariat:
Air Pollution Control BoardState Water Control BoardVirginia Historic Landmarks CommissionVirginia Soil and Water Conservation
CommissionJamestown - Yorktown FoundationVirginia State LibraryVirginia Marine Resources CommissionGunston HallCommission of Game and Inland FisheriesDepartment of Conservation and Economic
DevelopmentCouncil on the EnvironmentScience Museum of VirginiaVirginia Museum of Fine ArtsCommission for the Arts
Status of Action, The size and complexity of thecommerce and resources secretariat have beenaddressed through several actions consolidatingagencies, as discussed in chapter four.
STAFFING THESECRETARIAL SYSTEM
Secretaries may require support from direct andindirect staff. Resources assigned to the systemshould be commensUrate with the role andresponsibilities of the Governor's high-levelassistants. The number and structure of staffresources may reflect factors such as the purpose tobe served and the level of objectivity andaccessibility desired.
Current Staff ResourcesFor 1982, a conservative estimate of staff
resources available to the secretaries was 64positions. In addition to the 26 direct staff,including the secretaries, the figure represents 38FTEs of line agency and consultant personnel whoworked on secretarial projects during a ten-monthperiod. Almost $2.5 million in direct and indirect
st~lffing costs were incurred.The full extent of supplemental staff available
to meet secret~lrbl needs is not generallyrecognized. While supplement~d staffing ispermissible, the Gener~d Assemhly has reqUiredmonitoring of temporary personnel transfers toensure th:lt :Ipproved staff levels for executive~Igencies arc not hypassed. Personnel transferred for:1 two-week period or more must he reported.However, supplemental staff almost always remainin agencies, ;.md their time is not regularlyrecorded.
Gener~l!ly, secretaries use pcrsonnel from line:Igencies to conduct studies and provide informationrequired by the secretary or the General Assembly.Cent"il agency staff are used for budget andm~llugement-related purposes. Major sources ofsecrct~lri~d support arc the Department ofM~ln~lgement An;.1lysis and Systems Development,the Dep;lrtment of Planning and Budget, andagencies within secret~lriats that have broadcoordin,Jt;ve missions, such as thc Council on theEnvironment .:1l1d the Department of CriminalJustice Services.
Future Staffing PotentialCre;lting a celltr:l! st~lff office to provide support
to the secret:lri~lts could ;.1ccomplish severalpurposes. Of prim~lry importance, it would addressthe progr;lmm~ltic needs of the secretariesindependently of the fiscally-oriented supportprovided by the Department of Planning andBudget. It would ~ilso co-locate currently frJ,gmented
ev~dwltive ;.Ictivities, particul.:irly the research,eV;llu~ltion, :lTId policy sections of DPB, them;.ll1:1gement consulting section of the Departmentof M~111:lgemel1t An~dysis .:lnd Systems Developmcnt,and the Office of the Internal Auditor. Thesecrct:lries would gain equitable ~Iccess topermanent, profession;.d staff, and could rely on ahili-time director for management and qualityassurance.
The agency could also be structured to addressthe problem of inefficient duplication of supportfunctions in small agencies. A separate division ofthe department could perform payroll, accounting,and other administrative overhead functions for the21 small agencies with fewer than 20 employeeseach. Such agencies are disproportionately burdenedby administrative responsibilities which divert thetime of program-oriented staff.
Staff Recommendation (11): The GeneralAssembly should place at least one deputysecretary position in each secretariat and createa central staff agency within the administrationsecretariat.
Status of Action, Section 4-7.01(e) of the 1984-86Appropriations Act provides estimates rather thanahsolute maximums for employment of secretarialstaff to allow the Governor flexibility. HB 147directs the Governor to study the most appropriatealignment of executive management staff activitiesand logistical support for small State agencies.
13
14
III. BOARDS AND COMMISSIONS
The Commcl11wcahh has a sHong lr.1dilion ofcilizen panicipalicm on boards. Collegial bodiesdcsignau:d as "boards," "commissions/' or"councils" arc associau:d with almost everyadminisn~uivc agency of lhe executive branch.
Within the structure of government, boards arcplaced hetween their respective agencies and theGovernor's secretaries. Most hoards predate thesecretarial system, and statutes do not address therole of hoards in this hicwrchy. This circumst;lncc,coupled wilh strong emphasis on professionalmanagement, has at times made unclear theauthority of boards for agency operations ;mdcxccwivc direction.
Bo,lrd responsibilities may include providingsupervision or advice to agencies and implementingquasi-judicial or quasi-legislative functions. flARC'sreview focused on 68 boards with an agency-widepurview. Each was selected because its breadth of<l111horil y places it in a position to significantlyinfluence an agency's operations and to exercisepolicy and oversight responsibilities that paralleldlOse (If lhe secreraries
BOARD RESPONSIBILITY FORAGENCY OPERATIONS
Over lime, the ;lppropriate extent of boards'operational authority over agencies has been asource of concern. Boards have been variouslyperceived as not exercising their full prerogatives oras ill1erfering with the operational responsibilities ofagency heads. Nevertheless, flARC found thatboards generally carry out their activities at a levelconsiste111 wilh broadly defined cltegories ofsupervisory, policy, and advisory Juthority.Problems that occur relate, in part, to insufficientdcfinilion or ambiguous assignment ofresponsibility.
Assessment of Levels of InvolvementWilhin each category of board, individual
boards exceed or fall short of exercising theappropriale level of <luthority. flARC classifiedboards based upon the assignment in the Code ofVirgillia of specific responsibilities. Forty-five of the68 boards have a charge to supervise an agency orits programs. Thirteen boards l traditionally labelledpolicy boards, carry out a range of quasi-legislativeor judicial responsibilities that do not constituteagency supervision, and ten boards are clearlylimited to advising an agency.
Syslematic comparison of the three types ofboards, as shown in Figure 11 involved scoring eachboard's participation in key functions that control
the operations of agencies: personnel, budgeling,policy-making, and monitoring. Each board's scorewas calculated based on the chairperson's responsesto survey questions. Boards could, for example,receive a total score of 20 in budgeling: A boardlhat received fiscal trend data and reviewed,modified l and approved initial and final budgetswas determined to be more involved in budgetingthan a board that only reviewed the budget forinformation purposes.
Similar distinctions were made for otherfunctions. A board's level of involvement inmonitoring was determined by the type ofinformation it received and the action taken. Aboard that set both broad policy goals and morenarrow budgetary :lnd administrative guidelines wasdetermined to be more involved in policy-makingthan a board involved only on one policy level. Abo:nd that appointed or evaluated personnel wasdetermined to be more involved than a board thatonly received information on personnel changes.
Definition of Board Authority andResponsibility
Differences in levels of board involvementrelate I in part, to the absence in the Code ofuniformly specified or defined responsibilities fortypes of boards. Some diversity may be necessary toenable boards to :lchieve unique purposes. However,imprecise assignment of responsibility leads todivergent interpretations of authority among boardsand agency directors.
It is not always clear, for example, whetherfinal authority rests with the board or agencydirecmr for budget or personnel decisions or forestablishing day-to-day operational policy. Inpractice, boards interpret vaguely worded statutes asauthorizing extensive budget activity. Conversely,they do not fully implement language regardingpersonnel authority.
This problem could be addressed for all boardsthrough enactment of statutory criteria that definewhen a board is needed and the circumstances thatrequire a limited versus an agency-wide purviewand advisorYI policYI or supervisory authority. Torhe extent possible, uniformly definedresponsibilities might be established for categoriesof boards.
Three categories could be defined as follows:• Supervisory lxxlrds are the entities
responsible for agency operations l includingthe employment and supervision of personneland approval of the budget. These boardsappoint the agency director and ensure thatthe agency director complies with all board
15
~lIld st;..ItIItory direClives• Pohcy hO~lf(i~i may be specifiedly ch:Ir,~ed b~·
stallile to develop policies ;lIld reglliations.Specific fnllctiolls of the board Illay incillder~ile settillg, distriblltillg federal flluds, ;lIld~ldilldicatilIg regnlatory or stallilury violatiollS,bill each pmver is to be ellnllierated hy law.
• Advisory hO:.lf(is provide advice alldcOllllllellt fr01l1 kllowledge;lble citizens whenJgencies develop pnblic policies. They aiso~IrticllLIte the cOlIcerns of particnlarpopnlatiolls. This type of board shQ..Uldbecreated if policies arc elosely cirClllllscrihedhy St~Ite ;lIld federal laws alId regnlations, orif the bO;Ird is lIot intellded to serve arule-lIlaking pnrpose.
The criteria wOllld provide henchmarks fordeterIlIinillg board compliallce with legislativeilltelil <llId the cOlltillnilIg lIeed for JII assiglIedlevel of allthority. New and existillg bOJrds cOllldbe :digned :Iccording to the oper~Itional role theyare expected to serve.
Staff Recommendation (12): The GeneralAssembly should adopt statutory language toclearly establish criteria for determining the needfor a board. its level of authority. andcomplementary responsibilities consistent withthe level of authority. Specific categories ofboards should be created. and each board shouldbe assigned to one of the categories.
Classification of Existing BoardsThe statlltory level of JlIthority cnrretItly
assigued to some hOJrds Illay relj,lIirereconsideratioll. Key factors should be the actIiJIactivities of bOJrds, manJgement needs of Jgencies,~lIld statIitory provisions.
SlIpervisory Boards. Snpervisory JlIthorityilliplies th;il J bO;Ird is IIltimJtely responsihle forall ;Igency decisions and accollntable for fllifilimentof the ;lgeIICY's maudJtes. This places tremendonsresponsibilit y on the sholliders of J pJrt-time iJyboard. Not surprisingly, some bO~Irds with snchallthority actIi~dly fllnction more like policy bOJrdsalld c<lrry ont only allocation, nde-making, JndJdindicatory Jctivities. They do not fnlly serve JSthe operatillg he:lds of their agenCies.
A key determin~mt of a sllpervisory role;Ippears to be a board's ~l1Ithority to Jppoint theJgellcy director. Boards that appoilIt the chiefoperating officer '-Ire 1I10St cleJrl y acconntJhle forthe selected illdividnal's performance. In theseillst;IIICes, the hO~Ird serves JS the governing hody,alld is clearly expected to serve as the corporJtesnpervisory ";Igellcy he~ld" to ensllre that thedirector <llId st;lff flllly implemellt board ~md
st~lllItory directives. Tv,!ellty-six boards, includingthe l:=i higher edllcation boards of visitors, cllrrently
16
appoillt the ~Igency director or IIl1iversit y preside lIt.However, in 1978 the sllpervisory roll' of SOllie
boards bccallie nnclear. At that tillie, the Geller~d
AssetIihly anthorized the GoverIlor, rather thanhoards, to appoillt agellcy directors, with SOll)eexceptions. LIIIgllage W;IS retailled ill the Codcregarding the sllpervisory roll' of hoards th:1l nolonger Iud direct cOlltrol over the III~l1l;lgelllelil
prerog;nives of the director.Ci:Irificatioll of the sllpervisory or oper:iliollal
anthority of hO~Irds shonld take into aCCOllllt theappoinollent statns of bO~Irds. Only those boardsth~It appoint the director Jre clearly sllpervisory.Their responsihilities shollid illclnde ;Ipproval ofblldgetary and persollnel decisions.
The following JmelldmelIts to the gelleralresponsibilities of boards, conlmissious, ~lIld
illstitIitions in Title 9 of the Code of Virgini;IwOllld accomplish this purpose:
GellerJI Allthority of Boards ~lIld AgelIcyDirectors.A. NotwithstJndillg ;lIlY provisioll of law to the
cotItrary, the Jgellcy admillistrator of e~lch
exeClItive brJnch agelIcy shall have thefollowing getIeral powers ~lIld dnties exceptthose directors ill 2.1-41.2 that arc ~Ippoililed
by their respective boards Jud the Board otEdncatiotl:
I. To sllpervise and IIlanage the departlliellt orJgencYi
2. To elllploy slIch persollllel ;IS may benecessary slIbject to Ch<1pter 10 of Title 2.1and within the limits of appropri<1tiollsnlJde therefore by the General AssemhlYi
3. To prepJre, approve ~md sllbmit all blldgctreqnests for JppropriJtions alld beresponsible for all expenditIires purSIl~IIIt toIn appropriJtiOiI.
B. No provision in Section A shall restrict ;IIIYother specific or generJI powers Jnd dlltiesof exeCIItive branch boards grJnted by Llw.
Staff Recommendation (13): The GeneralAssembly should repeal supervisory authority for16 boards and continue such authority only forthe higher education boards of visitors. boardsthat by law appoint the administrative head ofthe agency. and the Board of Education. Theseboards are:
State Board of ElectionsCommission for Local GovernmentState Milk CommissionBoard of Directors. Virginia Truck and
Ornamentals Research StationVirginia PUblic Telecommunications BoardBoard of Agriculture and Consumer ServicesState Air Pollution Control Board
Highway and Transportation CommissionMarine Resources CommissionState Library BoardVirginia Historic Landmarks CommissionVirginia Commission for the ArtsBoard of the Rehabilitative School AuthorityVirginia Fire CommissionState Water Control BoardVirginia Council for the Deaf
1\l/in" :Illd Ad\"isory HO:Irds with Potellti:11 forC/I:lllge. Two policy hoards, Ihe Bo~nd ofCummerce :llld Commission Clf Heahh RegllblOryBuards, prinIJrily have SI:lIl1lory ~llllhorilY 10 makerecommend:lIions HI Ihe agency, Cover nor, or(;eneul Assemhly. Conseqllenlly, Ihese IWO hoardsshuIlld he redesign:lled as ~Idvisory hoards 10 cle:nlyesuhlish limils OIl Ihe exercise of Iheir :llllhorily.
A Ihird policy ho:nd, Ihc Board uf HOlIsing andCummllnilY Developmelll, has more limiled powersdUIl mher policy ho:nds, hlIl more alllhoril)/ dun:Idvisnry hnards. RegllLlIory responsihililies cllrrellllysplil hl'1ween Ihe :Igency direcIDr "Jnd Ihe hOJrdshuuld he cunsolid:lIed in one or Ihe Olher, and Ihehoard shullid he cllegorized accordingly.
T\vu advisory hoards, Ihe Board of MiliraryAfLiirs and Ihe [kurd of VisilOrs of ClInslOll Hall,h:lvL' heen iIlal'1i,,'l'. The B(urd of MiliIary Affairsshould he elimin:lIed. If condilions in Ihe deed ofClInsHIlI Hall prevelll elilllin:lIion of Ihe hoard, ilshmIid lake ~I more JClive role in advising IheCuvernor nn Ihe managelllelll of ClInslOn Hall.
Staff Recommendation (14): The GeneralAssembly should clarify or modify the level ofauthority for five additional boards. Theseboards are:
Board of CommerceCommission of Health Regulatory BoardsBoard of Housing and Community
DevelopmentBoard of Military AffairsBoard of Visitors of Gunston Hall
Accountability for Personneland Budget
Personnel and hlldgel ing arc cril ical aspeCiS ofageIlcy oper:lIiuns. Responsihilil)/ for Ihese fIlnClionsneeds 10 he c!Le(dy assigned 10 Ihe hu:nd or agencydireclUr in order 10 fix accollll1ahilil)/. However, insmne ClSes personnel Jlllhoriry is splil helwcen Ihehoard ~llld dircclOr, and Ihe exlenI of hlldgelalilhorily is IIncle~lr.
Persollllc/. When Ihe Governor appoillis IhcdireclOr hlll Ihe hoard hJS ~lIl1horilY 10 appoill1mher personnel wilhin Ihe agency, Ihemanagemelll hierarchy and reponing wirhin:Igencies can he unclear. Prior 10 1978, many hoards
Iud SIaIIIlury aIlihoriry H1 hire Ihe direclOr alld all;Igency persunIlel. Then, Ihrollgh en~IClmelll nf ~
2.1-41.2 of Ihe Code (if Vilgilli:l, rhe Covernorulher rhan Ihe ho:nd was aIllhorized 10 employrhe direclOr. Llllgll,-Ige alllhnrizing the hoard 10
employ mher personnel, huwever, renuins in effecifor len hoards.
Becallse few ho:nds clIrrclllly exercise Iheiraillhoril y 10 employ personnel, a change insr:IllllOry alllhunlY wOlIld caIlse lilde dislocIlionnow. SlIch aCiion is neceSSJry, however, 10 prevelllfIllllre panicipalion hy hoards in an adminisn:Illvedec;sion Ihal shollid reside wirh Ihe agencydireclOr.
Staff Recommendation (15): The GeneralAssembly should delete the personnelemployment authority of the boards that do notappoint the agency director. These boards are:
State Air Pollution Control BoardVirginia Commission for the ArtsState Board of ElectionsVirginia Historic Landmarks CommissionBoard of the Rehabilitative School AuthorityVirginia Soil and Water Conservation
CommissionState Water Control BoardState Library BoardCommission on Local GovernmentState Milk Commission
SGilUS of Action: HB 680 amellds the Code toe/illlinJte the personllc/ aIlthority of eildl hO:Ird.HB 681 e....;tah/ishes the principle ill stat lite th:rt theildlllinistratOr of each execlltive hrallch agency sha/fhe responsihlc for employing agency personllcl.Excepted arc administrators th:rt hy !:Iw :Ireappointed hy their [(\<.;pective hO;1[ds.
BlIdgct. Srallllcs for only seven of Ihe 68 hoardscomain clear :llld specific references 10 hlldgelresponsihililks. Althollgh JccolllllahililY for hlldgelprepanllion illld final approval is nO! clear, 39hoards hroadly imcrprci Code language asJlIrhorizing approval of Ihe agency's hlldge!. Thebo Ihar ;dl hoards do nO! assllme Ihis ~lll1horilY
illllsIrales an inconsislelll IIndersIanding uf hlldgelresponsihi Iii ies.
WhelI a hoard is rhe oper:'Iling head uf anagency and JppoinIS Ihe direoor, il shollid alsohave explicil SIJIUlory :'lIl1horiry 10 approve Ihehudge!. In all Olher insunces Ihe agency direclOrshollid he respunsihle for preparing, suhmin ing ~llld
approving Ihe final hlIdgcl retl"esl in accordancewilh Ihc Govcrnor's and secrcraries' direclives.However, ,-Iii tlo.:nds shollid review Iheir ~Igencies'
hIldgCls in order 10 IIndersland Ihe fiscalconsequences ut Iheir pulicy decisiuns or preferences.
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Staff Recommendation (16): The GeneralAssembly should specifically charge supervisoryboards that have authority to appoint theagency director with the authority to approveagency budget requests. All other boards shouldbe authorized only to review agencies' budgets.
Policy Direction and PerformanceMonitoring
Citizen boards serve an important purpose inrepresenting the public interest during policyformulation and in monitoring the achievement ofan agency's mission. Nevertheless, the GeneralAssembly has been concerned that some boardsbecome overly involved in administrative detail tothe detriment of their policy and oversight roles.JLARe fonnd that boards arc involved to varyingdegrees in administrative matters, often workinteractively with agency staff on policy matters,and in some cases, receive limited information onagency performance.
Some board policy and monitoringresponsibilities have been specified in statute. Forexample I individual boards are concerned withissnes of water supply and quality, continuity ofcare for the mentally ill and mentally retarded,and public transportation. Such specific assignmentscan clarify board and agency understanding ofresponsibilities and promote cooperation. Benefitscan be derived, therefore, by more frequent nse ofthis mechanism.
Staff Recommendation (17): The GeneralAssembly shOUld specifically define the areas ofpolicy or agency operations that should bemonitored by a board in those instances wherea board is expected to serve in an oversightcapacity.
ROLE OF BOARDSIN EXECUTIVE DIRECTION
Citizen participation on boards can bring freshperspectives and expertise to dealing withgovernmental issues. However, effective citizeninvolvement requires clear understanding ofreporting relationships within the chain ofcommand and the appropriate boundaries fori.lgeucy, board, and secretarial action. Additionaleonsiderations arc the extent to which specifictypes of representation for boards should bespecified in statnte, and the potential need forlimitations on task forces.
Unclear Reporting RelationshipsStatutes do not address the authority of the
Governor's secretaries with respect to boards.However, in recent administrations, the secretaries
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have been authorized through executive order toexercise their powers and duties over agency heads"and their respective collegial bodies".
Responses to the fLARC survey of boardchairpersons indicate, however, that boards arcuucertain about their reporting relationship to thesecretaries. Apparently unaware of the execntiveorders, only 12 of the 68 boards indicated that theyreport directly to the secretary.
The General Assembly could greatly clarifyreporting relationships by adopting the definition ofsupervisory boards used in this report. Asupervisory board that appoints the agency directorwould be classified as the operating head of theagency. The board, rather than the agency director,would report to the secretary. ln all otherinstances: (l) boards would be accountable to thesecretaries only for responsibilities speeified forthem in statute or executive order; and (2) theagency director, appointed by the Governor, wouldreport to the secretary on matters related to theoverall performance of the agency.
Bounds of Authoritylt is not unusual for several levels of
government to have responsibility for keymanagement processes. However, the potential forproblems arises when the distinction between twogovernmental entities is not clearly delineated orgenerally understood. The functioning of theexecutive agreement process, initiated in the fall of1982, illustrates such problems between thesecretaries and some boards.
Each executive agreement was developed andsigned by the Governor, the respective secretary,and the agency director. The agreements were usedas a management tool to communicate policyobjectives, implementation plans, and performancecriteria. Boards were generally not included iu thisprocess. Supervisory boards, however, have broadauthority that warrants direct involvement, andother boards can serve a useful advisory function.
This problem is symptomatic of the broaderissue of governmental accountability. Theagreements apparently focused on agency directorsbecause they were viewed as directly acconntableto the Governor for their performance. In somecases, however, the board is the operating head ofan agency. Moreover, as discussed in Chapter Two,the authority of the Governor and secretariesregarding agencies necds to be clarified and madeexplicit.
Should boards be made accountable to thesecretary, the uniqne aspccts of educationgovernance would necessitate an exception. TheBoard of Education has constitutional status, andthe boards of higher education arc designated instatnte as "subject at all times to the control of theGelleral Assembly".
Staff Recommendation (18): The GeneralAssembly should ensure that the Governor (or bydelegation, the respective secretary) is clearlyresponsible for holding agency directors or,under certain circumstances, supervisory boardsaccountable for the discharge of their powersand duties, except the institutions and agenciesresponsible for primary, secondary, and highereducation.
St~ltlLS of Actiou, HR 815 provided the Governor:llid sccrcl~lrics \virh the recommellded ~llithority.
Citizen RoleThe perspective th~lt individu~il hO~lrd members
bring to '-I hO,-lrd is all important determinant ofthe concerns tlur will he voiced in hoarduclihcratinns. Bo,-lrd members primarily fulfill theirmission by panicip,-lting in hoard meetings. Mostmcmbers Lin nOI fnrm ..illy engage in other liaison,-lctivitiC's such ..IS meeting with the public, localoffici ..ils, \lr community groups. It is important,thereforc, that the llCCCSS<lrY and relevant interests;llld affiliations ..Ire represented in individualmembers nf the hoard. A P~lrtiCllLIr concernlutionwide h<ls heen estahlishing citizenmemhership on profession<il-oriented hoards.
In Virginia, approximately 100 of the 1,990execlltive hr<lnch hO:lrd positions identified in thissllldy <Ire required to he filled hy the Ilniquecltegnry of "citizen" memhers. When a citizenmemher requirement is attached to a hoardposilion, the Ceneral Assemhly <Ippears to he:lltempting to h<lbnce professional andnon-professional perspectives, or :It least roencnllrage advice from individuals with hackgrounds:md :Iffili:llions other th<1n those which areprnfessiOlully related. However, with the exceptionnf ~o.j~1.18,1 of the Code of Virginia, which appliesonly to memhers 011 professional reglliatory hoards,no st<ltutnry provision defines <I citizen memher.
Staff Recommendation (19): The GeneralAssembly should define the unique category of"citizen" board member in statute to excludeindividuals with affiliations related to thepurpose of a board.
Staws of AClioJ); HE 683 eswhlishes critcri~1 forii/ling /)cxlrd pm'itions design<lted lor citizenmcmhcrs, consumers, ~illd reprcseI1tJtives of thepuhlic.
Cost of Citizen input'. Agency costs of morethan $800,000 dllling calendar year 1982 em hedirectly attrihllted ro the support of the 68 m<ljorhoards. Cost items incillde: per diemreimhursements, meals, lodging, travel, rental ofmeeting facilities, postage, and sllpplies. This toulrepresents a conservative estimate of hoard costs,
hecause indirect expenses for research, information,and other staff support activities arc not recorded.
The cost of puhlic participation in Stategovernment is not high compared with the $6hillioll cost to operatc State government dllring <Iyear. Agency directors and hoard chairpersonsreport, however, th<lt some cfficiencies cOllld heachieved by changing the freqllcncy, dur;;ltion, <lnd10C<ltion of hoard mectings. Moreover, the need fora hoard may ch<lngc with timc, allowing costsavings throllgh consolidation or elimination ofIlnneccssary hoards.
Staff Recommendation (20): To the extentpossible, agencies and their boards should takesteps to contain the direct and indirect costs ofboard meetings.
Staff Recommendation (21): Whenever applicable,the Governor and General Assembly shouldconsolidate or eliminate boards to reduce theoverall size, complexity, and cost of Stategovernment.
Status of Action, HE 8/3, HE 2.0, SE 33, and SE328 eliminate fil'c hOiJrds. HE 8/1 (propQ;cd hillnot pJssed) wOllld have merged twO others.
Use of Task ForcesAlthough most collegial bodies <lrC crc<lted in
statllte by the General Assemhly, a Ilnique categoryof hoard is created hy executive order of theGovernor. Often these are short-term task forccsestablished to advise the Governor on particlliarissues, although somc have longer-term missions.They foclls attention and a hroad hase of expertiseon issucs sllch as the economic outlook forVirginia, federal hlock grants, and physical fitness.
The creation of advisory hodies docs not appearto bc outside a Governor's allthority. FOllrteencollegial bodies have heen created hy t hc currcntGovernor during his two years in office. Ovcr <illeight-year span, the two previolls Gnvernors ercateda total of six. However, grc<lrer artention to thecontcxt and staffing of task forces could avoidlin necessary prolifer<ltion of government entities andduplicllinn nf fllnctions.
In many Glses the charges of these hodies arcrelated to the responsihilities of a nllmher ofexisliug SUtc Jgencies. The Commission on BlockCrallls, for eX<lmple, is rcsponsihle for rcviewingthe finJnci<il imp<lct of federal hlock grantprograms in Virginia. It reviews the currentdelivery of hllman service and education programs,<llld works with the Governor's secretaries, theGeneral Assemhly, :lnd Virginia's Congressionaldelegation to forward hlock grant concerns toWashington. Entities with rcl:lted functions includethe Departments of PLlllning and Blldget, Soci<ilServices, Ment<il Health and Mental Retard<ltion,
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Rehabiliti~Itive Services, the Office ofCommonwealth-Feder.Ii Relations, .md the(:overnor's secretaries.
StJff support to bodies created by executiveorder is uS1wlly provided hy St<Ite agencies oremities. For example, the Block Grant CommissionW;I'; snpported by staff in the Offtcc of theSecretary of Human Resources during 1982. TheGovernor's Commission on Virginia's Future iscurrently receiving 4 FTE in support from theInstitute of Government at the University ofVirginia and from other SOttrces.
The General Assembly may wish to reviewthis <Irea because:
(I) the responsihilities of the bodies can and dooverlap with responsibilities assigned by theGeneral Assembly to State agencies and the
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Covenmr's secretaries, and(..!) staff support is provided by State agencies.
Staff Recommendation (22): The GeneralAssembly may wish to explore and specify instatute the extent to which task forces may becreated, their duration, and the appropriate useof staff support from State agencies.
St,'Itu'> of Action: HE 864 rCLJIlires task forces to hetermed Commissions .:llld esuhlished for no moreth.:m 0lH.' )'e':lr with .:1 one-ye<lr extension. Atsix-moIlth iIltervals, the Governor mnst report tothe SCIl.:Ite FiIWIlce .:llld Honse AppropriationsCommittee", 011 the .:ImOuIlt, cost, and sonrce ofsuff support for e':lch Commission.
IV. STRUCTURE OF STATE GOVERNMENT
Agencies arc grouped within functional areasbased on the similarity of Iheir missions. Suchgroupings can enhance coordination for budget,policy, and Olher management purposes. It is alogical and basically sound arrangement for agenciesIhat are called upon to carry out a myriad ofactivities.
Nevertheless, /LARC identified six concernsthaI affect or cut across the entire executive branchstructure. In addition, there are 33 specificproblems or targels of duplicated, fragmented, ormisaligned activities. Addressing these problemscould increase the efficiency and effectiveness ofthe structure and reduce the number offree-standing, independent agencies by about 15percent. Because the approach to this study wasstructural, however, no attempt was made to judgethe worthiness, performance, or political status ofagencies or entities.
CROSS-CUTTING CONCERNS
Agencies have been created or extended asservice needs have been perceived. As aconsequence, the executive branch has grown, duein part to the proliferation of small agencies andgeographically dispersed regional offices.ProgrJ.mmatic and administrative costs are associatedwith growth, and inconsistent use of nomenclatureand program budgeting codes contributes tostructural complexity.
Excessive SizeA tmal of 85 independent and 79 dependent
agencies comprise the executive branch.Management problems associated with the overallnumber of agencies have been cited in numerousstudies, and in fact, the secretarial system wascreated to gain management control over aburgeoning executive branch. Still, secretarial spanof control in some instances appears to be toolarge. And contrary to a commonly held belief, thefederal governmem seldom requires states to create"separate and single" agencies to carry out federalprograms.
Twenty-one of the independent agencies havefewer lhan 20 employees each. Most of these smallagencies focus on a single purpose or client group.Many arc disproportionately burdened byadministrative responsibilities which divert the timeof program-oriented staff. In addition, the agenciesmay lack sufficient clerical and other supportservices which are feasible for larger agenciesbecause of their size.
Staff Recommendation (23): The GeneralAssembly and the Governor should take steps tomodify the organizational structure of smallagencies by consolidating those with _missionssimilar to other agencies and providingadministrative assistance to others which shouldremain separate.
Status of Action, HB 147 directs the Governor toreport to the 1985 session on support services foragencies with fewer than 25 employees.
Currently, there are at least 77 differentconfigurations for agencies' regional boundaries.This situation has led to two problems. First,agencies do not often co-locate their offices andmay incur unnecessary costs. Over 700 officecomplexes are located outside of the City ofRichmond in 212 cities and towns. Second, it isunnecessarily difficult to identify those who mustbe involved in cross-agency cooperation withinregions.
Staff Recommendation (24): The GeneralAssembly should (a) direct the Department ofPlanning and Budget to devise a system ofsub-state boundaries and (b) require agencies toconform to it. However, procedures should beestablished to grant a minimum number ofexceptions to agencies whose districts requireunique boundaries.
Status of Action, The Department of Planning andBudget is currently studying sub-state boundaries ofState agencies.
Inconsistent Use of Nomenclature andProgram Budget Codes
State agencies and other entities have 33different titles, which often have little relationshipto their status. and level of authority. For example,in some instances, "division" may refer to anorganizational subunit within an agency. In otherinstances, an entire agency may be called a"division." "Council," "board," and "commission"
. may all refer. to a freestanding agency and may notdistinguish between the agency and its collegialbody.
Staff Recommendation (25): The GeneralAssembly should adopt a standard nomenclaturesystem to name State agencies and entities.
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Status of Action, HB 682 defined a standardnomenclature system for State entities, and HfR16:r "sia~blished an implementing mechanism.
PROBUD, the State's computetized budgetingsystem, is a llseful analytical tool that could benefitfrom further refinements. The system is intendedto record each agency's expenditures in mutuallyexclusive activities such as land management orenvironmental regulation. However, inconsistencieswith the codes and in their use make program andsubprogram expenditures and instances ofduplicated, fragmentated, and misaligned activitiesdifficult to identify.
Staff Recommendation (26): The GeneralAssembly should (a) direct the Department ofPlanning and Budget to continue refining thePROBUD system so that differences in programsand subprograms are more accurately reflectedand (b) require agencies to use codes in aconsistent manner.
Status of Action, The Department of Planning andBudget has under way efforts to refine thePROBUD system.
Creation of Agencies By ExecutiveOrder
Article V of the Constitution of Virginiarequires executive agencies to be created by actionof the Genetal Assembly. Nevertheless, two entitieswhich function as administrative agencies werecreated by the Governor through executive orders,the Governor's Employment and Training Division,which administets the new Job TtainingPattnetship Act; and the State Advocacy Office fotthe Developmentally Disabled, which assistsdevelopmentally disabled clients with problems notaddtessed by particulat State agencies.
The Governot is designated by fedetal law asthe State official to ope rationalize these programs.However, as noted in a 1978 opinion of theAttorney General, federal law cannot override theState constitutional requirement for legislativecreation of agencies.
Staff Recommendation (27): The Governor shouldpropose to the General Assembly enablinglegislation for the Advocacy Office for theDevelopm/llttally Disabled, Governor'sEmployment and Training Division, and anyother executive agency created without specificlegislative action.
Status of Action, SB 113 and HB 685 codify theseagencies.
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SPECIFIC STRUCTURAL TARGETS
Consistent with previous reorganization studiesand the Executive Reoganization Act, the followingcharacteristics of a sound executive branchstructure guided this review:
(1) to the extent possible, agencies with similatmissions should be located in the samefunctional area;
(2) the functions of government should becarried out by the fewest agencies possihle;
(3) telated activities should be consolidated intonew or existing agencies with relatedmissions;
(4) duplicative activities and progtams shouldbe consolidated or eliminated; and
(5) new ot existing agencies should bemanageable in size.
Recognizing that some agencies or functions mayrequire special placement, additional considerationswete also applied.
Although tatgets involve ovet 57 agenciesthroughout the executive hranch, they areconcentrated in the Human Resources andCommerce and Resources areas. A type of problemsuch as service support may involve more than onetarget and extend across agencies and secretarialareas. Each problem area is described in thefollowing sections of this chapter.
Administrative and Central SupportServices
The two targets in this area deal withfragmented tesponsibility fot debt collection anddata processing.
Debt Col1ection. As of Match 1983, ovet $300million was owed to State agencies by individualswhose accounts were 120 days past due. Agenciesate ditected to tefet uncollectable debts to theAttorney Genetal's office fot legal action. Inaddition, the Setoff Debt Collection Act tequitesnotification of the Department of Taxation so thatdelinquent debts may be withheld from taxrefunds. Under this arrangement, claimant agenciesdo not have a single State agency fot tefenal ofdebts. Multiple agencies ate still involved in debtcollection. A .few agencies tely solely on ptivatecollection agencies, and others lack the resourcesfor exhaustive collection efforts.
Staff Recommendation (28): The responsiblity forcollecting delinquent debts owed by individualsto State agencies should be centralized underthe Attorney General or the Department ofTaxation.
Computer Services. The Department ofComputet Setvices (DCS) operates fom centtalized
computer centers in Richmond. When DCS wascreatcd in IY7R, ahuost all agencies (except someuuivcrsities) cousolidated tbeir computer opewtionsinto DCS. The Dep~lrtmcnt of State Policecontinues to opcrate the only major data processingf:Icility th~lt is not P~Irt of the St~lte system.
Staff Recommendation (29): The transfer of theDepartment of State Police computer operationsto the Department of Computer Services shouldbe assessed further.
Research and Evaluation ActivitiesA comprehensive d;lta hase and analytical
capahilities arc important to the efficient andeffective m;lllagemeul of State government.Ho\vL'\"L'r, as iudicated hy the three targets in thisprohlelll are:I, dat;1 collection, r('venue forecasting,:Iud progWl1I e":Ihwtion arc fragmented within the;Idministration and finance secretariat. An additionalcomponL'IH is misaligned iu the transportationsecretariat.
RL'.-;e;lrch ;llld E\·,lhwtion. The ManagementCousIlltin,g Divisiou of the Department ofM;llugenlL'11t An;I!ysis and Systems Development(MASD) ami the ev~I!uation section of theDL'partment of Planning ~Ind Budget (DPB) evaluateSute ~Igencies :llld their programs at the request ofthe Coveruor, the secretJries, and/or agencies.MASO ev;I!u;ltes the orgnizational structures andm~lllJgement practices of State agencies, while DPBis ch;nged with ev;I!uating progr'.im performance.However, it is difficult to evalu~lte an <.Igency'sprogum without looking at the management of theagency. Curreutly, there is no single source withinthe eXL'Cutive hranch for comprehensive progwmrevie\v. Neither is there a unified source ofprogram information and techuical support for theGovernor's secretaries.
Staff Recommendation (30): The evaluationsection of the Department of Planning andBudget and the Management Consulttng Divisionof the Department of Management Analysts andSystems Development should be co-located in anew Department of Analytical andAdministrattve Services.
Status of Action, HIR 47 directs the Governor tostlldy ;lUd report on this prohlem to the 198.:;Session.
Data Collection and RL'venue EstimMion.Dnplication and fragmentation in data collectionand revenue forecasting make it difficult for Stateagencies to locate the source for the data theyneed, and inhibit development of a comprehcnsiveState data ccnter. The Department of Taxation(DOT) and the Department of Planning and Blldget(DPB) maintain extensive information systems with
similar content. In addition, the responsihility forrevenue forecasting is split among several <Igencies,and DPB - which is the prim,uy user of thegenewl revenue forecasts for budget purposes does not develop them.
DOT collects, stores and analyzes extensive datarelated to economic and natural resources in asystem called the Commonwealth Data Base. Thesystem is used by agencies concerned with natuulresources, and hy DOT to support econometricmodels psed to help forecast the Statc's geneulrevenues.
DPB is also heavily involved in themaintenance of generai interest data systems and Inforecasting. DPB is directed hy statute to collectand disseminate data on the social, economic,physical, and governmental condition of the State.The agency acts as the State's data center, compilesspecial fund foreC<lsts, and uses DOT's forecasts ofgeneral funds to develop the blIdget for theCommonwcalth.
Staff Recommendation (31): The Department ofTaxation's revenue estimating activities and theCommonwealth Data Base should be transferredto the Department of Planning and Budget. (Anindependent revenue forecasting capacity couldbe established in the legislative branch tomaintain a system of checks and balances.)
St.'1tUS of Action, The Governor has authorizedtransfer of the Commonwealth Data Rise fromDOT to DPB as of filly I, 1984.
In addition to the agencies which furnish DPBwith thcir own foreC<lsts, sever;I! other entities havehroad revenue forecJsting responsibilities. TheDivision of Motor Vehicles (OMV) has been:Issigned the lead role in developing the highwaymaintenance Jnd construction fund forecast, whichincludes revenues from the motor fuel tax, salesand use uxes, dnd registration fees. Moreover,OM V receives federal funds forecasts of theDepartment of Highways and Transportation andthe road tax receipt estimates of the StateCorporatiou Commission to carry Ollt its forecastingrespOilsihi Ii tics.
Staff Recommendation (32): The Division ofMotor Vehicles' revenue forecasting unit shouldalso be transferred to the Department ofPlanning and Budget.
Economic DevelopmentIndustrial development and product promotion
~Ire key l..'lements iu a state's strategies for economicdevelopment. However, these two ~Ireas arcidentified ~IS structural targets because of excessivefugment;ltiou amoug agencies that devclopinformation, make contacts, and provide technical
23
~lssisl:ll1Ce lO ;Iccomplish reLiled goals. Many slalesIuve consolidaled lheir economic developmentJ('li\'ities 11l1der one agency.
Illduslri~11 Devc/op/llcIle FOllr sep;lrJte agenciesill the commerce and resollrces secretarial arcillvolved in sllpportin,~ illcreases in the nllmber andscope of Sl:ile bllsinesses. A fifth Jgency is in thelranSp0rlalion sccreuriat. Llch agency carries milsimilar aClivilies dUl wOllld henefil fromcoordillalioll and improved client access:
• The Division of Indllstri:Ii DevelopmentencOln~lges bllsillesses to locate or expand 111
Virgilli;1 ;ll1d helps Slale manlJfJctllrers toeSl;lhlish export m~nkets abroad;
• Wilh fllnds from the Division of IndllstrialDevelopment, the Indllstrial TrainingDivision of the Virgini~1 Commllnity CollegeSystem provides basic lraining, relraining, ~ll1d
inslrllctor training services which arcreqllested for the employees of new Jndexp;ll1ding indllslries in Virginia;
• The Office of MinorilY Bllsiness Enterprisepromolcs thc growth :ll1d development ofmillorily ;ll1d small bllsinesses;
• The Divisioll of TOllrism within lheDep;lrtmenl of Conservation and EconomicDevelopment encoln:lges the tollrist indllstrydHOIIgh ilS :Hlverlising and research efforts;
• The Virgini;1 Port Allthority, localed ill lheTransportation secretari;lt, carries Ollt part ofits mission hy promoting domestic Jndforeign lise of Virginia's ports.
Staff Recommendation (33): The Division ofTourism, Division of Industrial Development, theState Office of Minority Business Enterprise, andthe Industrial Training Division of the VirginiaCommunity College System should be merged tocreate a new Department of EconomicDevelopment, The port promotion activities ofthe Virginia Port Authority could also beconsidered for inclusion.
SUtllS of Action: SB 328 creatcd a DcpJrtl1lcnt ofEconol1lic Developl1lent which inclllde.'> theDivisions of Tourism ,Hid Indllstrial DevL'!op1l1ent.
Prodllct Prol1lotion. The Department ofAgriclliture and Consumer Services promotesVirginia agricultural commodities. It also providesJdministr,.Jtive support to prodllct commissionswhich arc estahlished hy statute within thedepartment. M~lintaining the nineseparately-constituted commissions (three \vith lheirown staff) can resllit in IIneven Or dllplicJtiveedllcation, rese~nch, and promotion ;1Ctivities forVirginia products. Fllrlhermore, J complclelyseparate ,Igency, the Virgini,l Marine PrndllctsCommission, plans and cnries ollt similar aClivities
24
reiJtive to finfish and shellfish Iurvested from lheState's waters.
Staff Recommendation (34): The Virginia MarineProducts Commission should be merged with theDepartment of Agriculture and ConsumerServices, If the State decides to continue specificproduct promotion as part of its mission, theDepartment should also assume the functions ofthe individual product commissions.
SUtll..,: Action: 5B 328 adIllini.'>tr;ltivcly I1lerge.'> theM':JriIJL' Prodllcts COIlll1li.'>siol1 with thc DCpJrtl1lCiltof Agriculture Jnd ConslIIller Services.
Recreational and Historic PlanningSlale oper:ilion of recreational and historic sites
aSSllres their preservation for flltllre generations.Bill excessive cOSls may be incllrred vvhen cach sill'is sllpported hy a small independent Jgency(,~Hrying Ollt simiLn piJlllling ,md adl11illislralivefllnctions. The Parks and Recreation Division ofthe DL'parlmL'nt of Conscrvation and EconomicDevelopment, and fOllr other entities, operatchistoric attractions. Two additional entilics haveresponsibilily for the preservaliol1 of historic andOlher sill'S - the VirgilliJ Historic LandmarksCommissioll :llid the VirginLI Olltdoors FOllndation.
Adl1lillislralive merger cOllld achieve moreIIniform nUllagement :ll1d promotion of attractions;ll1d rcdllce adminislralive O\'erhe:ld Jnd theIIl1mher of illdependent agencies. To maximizebencfil.'i, Ihe deeds for Cllnston H~IiI ;lnd the famesMonroe Mllseum ,ll1d Lihr;ny shollid he reviewedto bcilil:ile inelllsion of lhese siles to the extentconsiSlelll \vilh ,Hlmillistrative provisions.
Staff Recommendation (35): The entities whichmanage and/or preserve historic sites andattractions (Virginia Historic LandmarksCommission, Virginia Outdoor Foundation,Division of Parks and Recreation of theDepartment of Conservation and EconomicDevelopment, Jamestown-Yorktown Foundation,Gunston Hall, James Monroe Museum andLibrary, and Virgini.a War MemorialCommission) should be administratively merged.These entities should be brought together in aproposed Department of Parks and HistoricPreservation. If this agency is not established,the entities which manage sites should bemerged under the Division of Parks andRecreation in the Department of Conservationand Economic Development. The VirginiaHistoric Landmarks Commission and theattached Virginia Outdoors Foundation should beplaced in a separate division of the Department.
St;lIlh; of Action: HB 318 creJted a Dcp;lfttllcnt ofCOlbcn';ltioll ~lIld Historic Resollrces.
Resource Planning and RegulationVirginia is one of four states which have not
co-located environmental regulatoty activities forair, lvatcr, ~ll1d solid and hazardous wastes underone agency. Fllnhcr fwgmcnt,Hion involves soilconserv~ltion ~ll1d hoating regulation.
Elll'irOllllJl'llt;IJ Rc,gtll.:ltion. Fragmc ntationextends heyond the commerce and resourcessccrl't;Hi~lt to incllldc activities assigned to theDl'p~lrtmcnt of Hl'~l1th in the human resourcesSl'cn:t~lriat.
Within the commerce ~lnd resources secretariat,the following ~lgl'ncil's c~nry mit related or similar.lctivities:
• The Suite Water Control Board (SWCB)prom1l1g~ltl'S w~ltcr Lluality regulations, issuespermits to discharge W~lstl'Watcr, plans andm~ll1agl'S the lise of groundwater sllpplies, andmonitors ,-l11d enforces W<lter LJ.ualitySt:!lld;lrds i
• The Air Pollution Control Board adoptsreg;.llations, develops plans, and monitors andenforces air quality standards to ensure thatcertain levels of air quality are achieved andmaintained;
• The Division of Mined Land Reclamationwithin the Department of Conservation <lndEconomic Development develops and enforcesmining operation regulations;
• The Cmlnetl on the Environment is reLJ.uiredto develop broad environment~11 plans,rese<lrch and draft position papers onenvironmental issues, and reviewenvironmental impact reports i
The Council on the Environment is alsoresponsible for coordinating the planning, services,and multiple permit procedures of the otherenvironmental agencies. Coordination could be moreeffective if all environmental regulation agenciesworked together under a single department.Currently, however, key functions are implementedin .lnother secretariat.
Four units in the State Department of Health'sOffice of Health Protection and EnvironmentalManagement are involved in environmentalregulation. The Bureau of Wastewater Engineeringcarries out activities similar to those of the SWCBin the regulation of wastew,-Iter tre<ltment f~lcilitics.
The Bureau of Toxic Substanc.es Informationregisters businesses which use or produce toxicsubstances. The Bureaus of Solid Waste andHazardous Waste develop plans, provide technicalassistance, inspect sites, take enforcement actions,and issue permits for the operation of sanitarylandfills and the handling of hazardous waste.
Staff Recommendation (36): The State WaterControl Board, Air Pollution Control Board,Division of Mined Land Reclamation of theDepartment of Conservation and Economic
Development, Council on the Environment, andthe State Department of Health's regulation ofwastewater treatment facilities, Bureau of ToxicSubstances Information, and Bureaus of Solidand Hazardous Wastes should be merged into anew Department of Environmental Regulation.
5wttls of Action. HfR 147 directs the Governor to
study and report on this issue to the 1985 Session.
Conservation. Several agencies share a commongoal of managing and preserving the land resourcesof the Commonwealth. Their b<lsic supportive <lndtechnical assistance activities appear to be verysimilar. The Soil and Water ConservationCommission provides financial and technical;lssist..l11ce to loc;11 conservation districts. Within theDepartment of Conservation and EconomicDevelopment, the Division of Forestry provides,-Issistance to protect and develop forests, theDivision of Litter Control helps localities establishlitter programs, and the Commission on theConserv,Hion .1l1d Development of Public Beachesprovides financial and techntcal assistance toloc~llitics to h;l1t shoreline erosion.
Staff Recommendation (37): The Soil and WaterConservation Commission should be merged withthe Department of Conservation and EconomicDevelopment. If a new Department ofConservation is created, the Soil and WaterConservation Commission and the conservationactivities of the Department of Conservation andEconomic Development could be broughttogether under this department.
5t'lttlS of Action. 5B 328 created a Department ofCOllserviltiol1 ~lnd Historic Resources whichel1comp~lsses these ~lgcl1cies.
BO.:ltiug Regulatioll. The Marine ResourcesCommission enforces small boating laws on thenurine w;lters of the State, and the Commission ofC<ll11e ;l11d InLl11d Fisheries enforces boattng laws on'-Ill waters of the St,-Ite, both inland ,-Ind marine.E<1ch ..Igency h,-Is '-In admini-strative stnlcture tosupport personnel that patrol the waters sometimes the s..lme waters.
Staff Recommendation (38): The Virginia MarineResources Commission and the Commission ofGame and Inland Fisheries should be broughttogether to create a new Department of Gameand Inland and Marine Fisheries.
Regulation of Products, Worksites, andOccupations
When responsibility for similar types ofreguLltion is unnecessarily fwgmented among
25
agencies, the result Clll be excessive costs,administrative duplication, poor communication, andmultiple intrusions into husinesses. The StateDepaflment of He~Ilth currently cJrries out threeproduct reglllation ~Ictivities that are shared with orsimiLir 10 activities of the Department ofAgriculture ,-llld Consllmer services. A worksiteregulation ~Ictivity is shared with the Departmentof Llbor and lndustry. ReguLItion of professions~llld occupations is split hetween two agencies, theDepartment of Commerce ~llld the Department ofHealth RegulJtory Boards.
Product luspectiou. The Dep~lrtment of Health(SOH) and Dep~lrtment of Agriculture andConsumer Services (DACS) both issue permits,inspect processing plants, and analyze s~lmplcs toensure that milk products are safe for humanconsumption. Under some circumstances,inspections arc done by one of the agencies alone.For example, although DACS usually inspectsfrozen dessert and ice cream processing bcilities,SOH will make the inspection if the facility alsocontains a Grade A milk plant.
Fragmentation also exists between DACS andSOH in the inspection of seafood processing plams.SOH is responsible for shellfish and crabmeatprocessing plants, DACS for finfish processingplants. lf a plant handles both products, eJchagency's inspectors observe conditions only indesignated production sections.
SOH also regulates bedding and upholsteredfurniture. This area of regulation differs from otherSOH functions! but is similar to the consumerproduct functions of DACS. SOH issues licenses topersons who manufacture or reupholster bedding orupholstered furniture, or process or sell fillingmaterials. Permits are also issued to persons whosanitize or sterilize these items.
Staff Recommendation (39): The following threeactivities of the Department of Health should betransferred to the Department of Agriculture andConsumer Services: milk and milk productinspection, inspection of seafood processingplants, and bedding and upholstered furnitureregulation.
Statlls of Action: HIR 147 directs the Governor to
stlldy and report on this issue to the 198:1 Session.
Worksite [nspections. SOH also sharesresponsibility for issuing citations, conduclingtraining seminars, and inspecting worksites withthe Department of Labor and Industry (DLl). SOHenters husinesses to check for health hazJrds suchas excessive noise ~Ind asbestos. DLl enters the samebusinesses to check for safety-related hazards suchas a lack of a proper guard on a machine.
26
Staff Recommendation (40): Worksite inspectionresponsibilities currently divided between theDepartment of Labor and Industry and theDepartment of Health should be transferred tothe Department of Labor and Industry.
Occup<Itiona1 and Professional Rego1<Ition.Virginia is the only state with two Jgencies whosesole purpose is to provide administrative support tobO~lfds that reguLIte practitioners of occupations andprofessions. The Department of Health RegulatoryBoards and the Department of Commerceadminister the application and licensure process andreceivc aud investigate compLiints againstpractil ioners
The Department of Health Regulatory Boards isoriented to heJlth care profession<.lls, and theDep~lftment of Commerce is oriented to commericalpLictitioners. Hmvever, this distinction is notconsistellt. The Litter ,-Ilso regulates allied healthprofcssiOluls such as audiologists. ln 1983, theCener:Il Assemhly realigned some bo,-Irds betweenIhe IWO agencies, ,-!Cting upon a fLARCrecommend~Ition in the report, The Occupational:llld [)rofcs.<;ioll:11 Rcgu1Mory System iII Virginia.
Staff Recommendation (41): The Department ofHealth Regulatory Boards and Department ofCommerce should be brought together to form anew Department of Commerce and HealthRegulatory Boards.
Financial Assistance for HigherEducation
Administration of fin,-Incial assistance tostudents attending institutions of higher educationis fr<.lgmented ~ullong two JdministrJtive agencies~llld t\\'o political subdivisions. This situationduplicales ~Idministrative costs and requires parents~llld students to seek financi<.ll Jssistance frommultiple sources.
The State Council of Higher Education forVirginia administers the College ScholarshipAssistance Program, the Tuition Assistance GrantProgrJm, <.llld the Llstern Shore Tuition AssistanceProgram. The State Education Assistance Authorityis the guarantor, recordkeepcr, and collector of allguarallleed loans made to Virginia residents whoarc enrolled in post-secondary education andvocltional institutions anywhere in the UnitedSt~Ites. The Virginia Education Loan Authorityissues bonds to establish a loan pool, and in turnmakes loans to students who wish to attend highereducation institutions. An advisory committee tothe Sute BO~lfd of Health gives annual scholarshipsto students in nursing and dental hygieneprograms.
staff Recommendation (42): The feasibility ofcombining the two political subdivisions withstudent financial assistance orientations (theState Education Assistance Authority and theVirginia Education Loan Authority) with thegrant and scholarship programs of the StateCouncil of Higher Education and StateDepartment of Health should be studied.
Sl:Itlls of Actiol1, At the rcC/"est of the Sl'Crct~lry ofEdllCilio/l, STAA ~llld VELA ~lrc analyzing theirrc tnio/L,,'h ill.
Volunteer Service SupportVolunteers Gll1 allgmC11l services that JfC
cIlrrently provided at State expense. However, theDivision of Vohll1tccrism may he misaligned in the1111111,111 reSOllrces secretariat bCClllSC all St~ItC
agencies arc potential beneficiaries of the Division'sservices. In fact, until 1979 volunteer promotionwas c:nricd alit with ill the administration ,melfinance secretariat.
Additionally, the Division <illd the Center torVolunteer Development at Virginia PolytechnicInstitute :Ind SLite University may he duplicatingsome activities. The Center encourages bClllty andstaff ;It Virginia institutions of higher edllcItion t.obecome involved in volllnteerism, and providestechnical assistance throllgh the llniversHy'sextension division to volunteers from local grollpSand from Suite agencies. Althollgh the Centerst;Irted with total graut fllnding, Sute hmding Iusprogressively increased since the first year, andgrant fllnds will soon terminate entirely.
Staff Recommendation (43): The Division ofVolunteerism should be realigned under theSecretary of Administration and Finance, andprovisions should be made to provideadministrative support to the division. Thisrecommendation would be adopted ifVolunteerism is viewed as an administrative orcentral service agency. 1f viewed as a humanresources agency, it would be co-located underthe Department of Advocacy Agenciesrecommended in recommendation 49.
SUit liS of Action: HfR 141 directs the Governor tostudy Sl/pport "ervin's for St~ItC agencies with fewerlhan 25 employees ,wd repon lhe findings to the1985 Gener,11 Assemhly.
Staff Recommendation (44): A non-structuralsolution of the problem of duplication betweenthe Division of Volunteerism and the Center forVolunteer Development of Virginia PolytechnicInstitute and State University has been proposedin a separate JLARC report. (Senate Document6, The Virginia Division of Volunteerism,
December 1983). That report recommended either(1) requiring a more specific memorandum ofunderstanding to clearly specify theresponsibilities of each agency and/or (2)restricting activities of the Center to thoseconsistent with the University's extensionmission and limiting the Center's non-Statesources. Therefore, a structural solution is notbeing proposed in this report.
St~ItllS of Action: The division ~Ind the center ~Ire
negOti~Itill,!.; a more specilic mellwr~ln(h/fn of1IIIde r.','(~lllding.
Rehabilitative, Social, and FinancialServices
Duplication Jnd fragmentation of servicesamong hllll1an reSOlIrce ;Igencies create servicedelivery ,IS well as ;Idministrative problems andcosts. Problems of nationwide concern incilldeelient difficljlty in accessing services, and thelimited ahility of discrete agencies to address aclient's ovcr~Iil needs. Administrative isslles involvedllplicative eligibility, contr,lcting, and reportingprocesses. Sllch prohlems OCCllr in the provision andplanning for reh,lbilitative, social, financial, and,Idvocaey services in Virginia.
Reh~lhiliwtive Services. The State maintains twoseparate ,Igencies in order to provide rehabilitativeservices to the blind independently of similarservices providcd to other disabled clients.Interagency coordination is addressed throllgh aservice agreement between the Department for theVisllally Handicapped and the DepartmelH ofRehabilitative Services. Generally, the degree ofvisllal or physical impairment determines theassignment of a client to an agency, althoughmllitiply halldicapped clients may deal with both'Igencies.
Althollgh federal reglll~Itions allow state~Igencies to establish a separate agency to provideservices to the blind, this is not required.According to the Federal Rehabilitative ServicesAdministrJtion, specific organizational strllctllre isnot as important as development of ~I separate planto rch,lhilitate the hlind. Approximately 22 statesluve established distinct llnits within largeragencies to deliver visllally h;lI1dicapped services.Approxim,Itely 18 states have organizationalstrIlctllres tlut merge vislIally handicapped serviceswith other services. Ten states appear to haveestablished sep,Irate and single agencies for theblind ;ll1d visllally handicapped.
Staff Recommendation (45): The Department forthe Visually Handicapped should be moved as aseparate program division into the Departmentof Rehabilitative Services. (Further study ofindividual functions should also be undertakenas stated in recommendation 46).
27
SOci~11 Services ~md Finm1ci~11 Assistance. DVHalso splits admillistration of Title XX social servicesalld allxiliary gr~mt programs with the Departmentof Soci~Ii Services. Under Title XX, similar~ldmillistr;.ltive ~lctivities arc carried alIt by eachdep;utllleut to provide services to visuallyh~mdiclpped aud sighted clients, respectively. Localwelfare departments arc reimbursed for purchasillgsocial services slIch as cOllnscling, day cue,companion services, and transportation. The twodepartments also devclop ~l Title XX plan, mOllitorservice delivery, and review local blldgets andrecords.
Allxiliary grants arc State and local monies paidto persons whose federal supplement~d securityincome (SSI) payments are not sufficient to COvertheir needs. DVH and DSS developed policies andproccdllres and reimlmrse local welfare departmelIts,which directly administer the grants to sightedpeople in homes for adnlts and to ynalified hlindpersons.
DVH also operates ~l library service for theblind in Richmond and eight sllbregional"mini-libraries". In most other states, libraryservices for the blind are operated by the st~He
library agency or the education department.
Staff Recommendation (46): A merger of the TitleXX, auxiliary grant, and library functions of theDepartment for the Visually Handicapped withthe Department of Social Services and VirginiaState Library, respectively, should be assessedfurther.
Stams of Action. SB 383 realigns Title XX '!lid~mxiliary grant hmctions with the Department ofSocial Services.
Services to the Elderly. Similar dllplication andfragmentation exist in providing services for theelderly. This concern involves the VirginiaDepartment for the Aging (VDFA) and theDepartment of Social Services (DSS).
Under the federal Older Americans Act, VDFApllrchases and sllpervises services for uon-indigentswho are 60 years of age or older. The services,which include legal aid, escort, health, and choreserviccs, are provided by local area agencies all'Iging. Under the Title XX program, DSSadministers similar types of services to the elderlywho are indigent.
In other states, services to the elderly arcorganizationally aligned in a numbcr of ways,including: units of a large human service or otheragency (22 states), freestanding administrativeagencies (9 states), independent boards OlHside theexeclltive branch (8 Slates), and entitics within theGovernor's Office (S statcs),
28
Staff Recommendation (47): The Department forthe Aging should be moved into the Departmentof Social Services as a separate programdiVision.
Employment Services. The Governor'sEmploymclll ~llld Traillillg Divisioll preparesilldivi(huls for clltry~ illto the labor force. Thcdivision is eurreutly 10cHed ill the hllmanrCSOllrces arca. Howevcr, the major employmentservices ~lgl'llCY, the Virgiui':l Emp loy mentCommissiolI, is located with othcr economicdevelopmclIt ~lgeucics ill the commercc andreSOllrces ;lrea.
Staff Recommendation (48): The Governor'sEmployment and Training Division should betransferred to the commerce and resourcessecretariat from the human resources secretariat.
Statlls of AcciOlI: HfR 1..J.7 directs the Goverllor tostlldy 10Lltiou of tr':lim'ng ':lCtivities .:Ind report tothe 19R::; Sessioll.
SOCi':ll Services PI.:lllnillg ~md AdvoclCY. Severalagellcies iu the hllmall resources area are primarilyJdvocates for grollpS sllch ~IS women, children, thedeaf. and the developmentally disabled. The~lgellcics help to Cllsure th'H services are beingprovided by other ~lgencies. They collect dau, writereports, dissemin~He information and ev.IilIateservices, LICh snull agency provides its ownadmillistL.ltive SllPPOrt. Staff sizes rallge from one to16 employces.
MaillUilliug the agencies scp;u.Itely may detractfrom their e;Ip~lcity to carry out mand.:Hedrespollsibilities .llld llnnecess.uily dlIplicatcadmiuistrative strllctllres. None of the agencies isprohibited by federal mand~He from co-location.Althongli by federal law the Advocacy Office forthe Developmentally Disabled nlllst remainilldepelldcllt of servicc-providing agencies, it is notrestricted from consolidation with other advocacyfuuctiolls.
Staff Recommendation (49): The four smalladvocacy agencies under the Secretary ofHuman Resources (Commission on the Status ofWomen, Division for Children, Advocacy Officefor the Developmentally Disabled, and Councilfor the Deaf) should be co-located together toform a new Department of Advocacy Agencies.If the Commission On Indians should become astaffed agency, it would also be included here. Ifa decision is made to retain the Division ofVolunteerism as a human resources agency, itshould be established here.
StJtllS of Action, HfR 147 directs the Governor tostlldy provisioll of support services to small agencies
illc!wh'ng, thc advocacy ~lgencies lllelltioned in therCCOllln IClld~ltion.
Thrce ;Igencil's ill the hllm;U1 reSollrcessecfel:lri:1t :lIld oue in the edllc<ltion secretari,ltlicense and. inspect pllhlil' bl'ililies sllch as nursinghomes, grollp homes, and hospiuls. Oversight bythe Sute is inrl'nded to enSllre th,n the f.:IcilitiesJre fit for humJn hahitation. Technic<dly similaractivilies arc carried Ollt hy e;lch ;lgency, regardlessof the Iype of fJcility or client popularion.
The State Department of Health (SOH) has thelargest roll'. SOH regldJtes hospitals, nursinghomes, home heJllh ngencies, and other pllhlicf:lcilities. Key acrivities include issuing licenses,training inspectors, conducting inspections, Jndproviding consllitative services. In some cases, SOHJnd the DepJrtment of Social Services (DSS) havejllrisdicrion over the same bcility. For example,SOH inspects the nllrsing home componelll andDDS inspects the home for adllits component ifhoth arc contained within the S;lme fJcility.
The Departmenr of MenrJI Health Jnd MentalRetard;Ition regulates commlmity ml'ntJI healthcenters, grollp homes, ;md other fJcilities whichprovide carl' to the mentally ill, mentJlly retJrded,and sllhstancc ahllsers. The Department ofEducation reglllJtcs private schools for thehandicapped.
Staff Recommendation (50): The regulation ofhealth-related public facilities carried out by theDepartments of Social Services, Mental Healthand Mental Retardation, and Education shouldbe merged under the Department of Health.
Starns of Action: HJR 147 directs the Governor costlldy this issuc and report to the 1985 Scssion.
Education of InmatesThe RehabilitJtive School Authority is In
indcpendent Jgency which provides <1c<1demic <1ndvocationJI tr<1ining to juvenilc <1nd adllit inmates ofcorrection<11 institntions <1nd field units. Personnc.lof rhe Jllthority must work continll<1lly with theDcpartment of Corrections' staff to coordin;lteinslfllctionJI schedules, provide sccllrity, and <1ssigninmJtes to classes. This is thc only instance wherethe St<1te h<1s cre<1tl'd <1 sep<1rJte l'duc<1tion<11 agencyfor an institlltion<1lized poplliation.
Staff Recommendation (5 I): The status of theRehabilitative School Authority as anindependent agency should be considered duringthe forthcoming JLARC study on theRehabilitative School Authority and theDepartment of Corrections.
Status of Action: The stlldy is lIndcr way and thefindings wiJl be reported to the 1986 session.
TransportationVehicle <Iud Jir trJnsport~ltion services for
government personncl Jppe;1r to hl' misaligned inoue (;Ise ;lIld dllplicnive in other C<1ses.
Vehicle Support. The Central Carage Car Poolprovides vehicles to State employees whenueCl'ssary for their official dllties. The centrJIg;Ir;lge is illJppropriatcly ;digned, however, nnderthe Dep;lrtmeIIt of Highways ;md Tr<1ns.portJtion.Mosl ;Ictivities which SIlPPOrt the operJtions ofother SUIte ;Igencies ;lre locIted under the SecretJryof Administration and Finance, nuny within Jmlliti-pllrpose sllppnrt ;Igency - the DepJrtment ofCener:I1 Services. A rclJted problem Jddressed intwo previolls flARC reports is the need for theCeutral C~Ir;]ge to he designated JS J workingClpit;d fllnd - ;Ill ;Iccolmting mechJnism thJtshOldd he sel IIp when ;111 Jgency provides goods orservices to other St;lte agencies.
Staff Recommendation (52): The Central Garageshould be transferred from the Department ofHighways and Transportation to the Departmentof General Services and efforts continued todesignate it as a working capital fund.
St:.ltllS of Actiou: The Joim Lcgislntivc Audit andRn'inv Commission ~lpprovcd initiation of aworking clpital f1md cffectivc July ( 1984.
A~'i;ItioD. FOllr sep<1rJte St<1te agencies Jrespendiug fllnds to own, operate, Jnd mJint<1in five;Iirl'r;lft in Richmond. The Department of AviJtionowns ;lIld operates two ;Iircraft, Jnd operJtes J thirdonl' th;1t is owned hy the Govl'rnor's Office. Inadditiou, the Department of Highw<1Ys <1ndTransportation ;md the Commission of GJme JndInbnd Fisheries each own Jnd operJtc In JirplJne!J;lsed :It Richmond's Byrd Airport.
The number of ;lirplanes and flight stJff inRichmond m;IY he higher than would he neceSSJryif the agencies pooled their resollrces. TheDep;lrtment of Avi;ltion hJS the greatest role III
Ilsing planes for programmJtil' <1ctivities andtransporting Sute personnel.
Staff Recommendation (53): The Department ofAviation should take over the administration,operation, and maintenance of the aircrafthangared in Richmond and owned by theDepartment of Highways and Transportation,the Commission of Game and Inland Fisheries,and the Governor's Office.
St:.Itns of ACfiou: Thc Sccrct~lry of Transportation~lDd thc ~Igcncics arc dcveloping appropriatc p/~ms.
Hazardous MaterialsBec;lIlse oversight of r<1dioactivc mJteriJls is
currently divided, coordinJtive prohlems may occurin the cJse of <1n emergency. CompJnics th;It ship
29
radioactive substances alld eqllipment nIllSt registerwith the St.:lte Dep':lrtl1lent of Health. However,they 1l1l1st .:Iiso cOntact the Office of Emergencyand Energy Services (OEES) bdore they transportmaterials through Virginia. If notificatioll dues nutoccur, OEES and local officials will not be .:Iwarethat an accident involves radio':lCtive sUbstallces :llldmay not respond appropriately.
OEES is responsible for ;Ipproving transpurtroutes and notifying 10c.:Ii ':lllthorities whenshipments will be transported throllgh theirjurisdictions. Localities may call OEES for on-siteassistance. Centralizing responsibility in OEES forregistering shippers as well as responding toemergencies could bcilitate a wpid and informedresponse.
Staff Recommendation (54): Responsibility forregistering shippers of radioactive materials andresponding to emergencies involving radioactivematerials should be transferred from the StateDepartment of Health to the State Office ofEmergency and Energy Services.
St<ItIlS of Action: HE 813 implements thisrecommendation.
Emergency Response and DefenseActivities
A primary purpose for establishing funetion.:Iiareas for Virginia's State government was to provideoversight and coordination of agencies with similarmissions. Nevertheless, the missions of t\\lOagencies, the Department of Military Affairs ,mdthe Office of Emergency and Energy Services, ,Hemore related to other areas of State governmentthan to the transportation are.:1 where they arccurrentl y assigned. ....
Military Affairs. The Department of MilitaryAffairs trains, manages, and supervises the St.:lte Airand Army National Guard; maintains its armories,tr.:Iining sites! ;md shops; and provides seclIrity forits weapons and munitions. fn time of a lI.:ltionalemergency, certain units em be mobilized foractive duty. During a natural disaster or otheremergency! the department provides aid tulocalities. All these functions .:Ire related to publicsafety. In case of an emergency, elose coordinatiollwould be needed with thl' State Police, cllrrentlylocated in the public safety area.
Staff Recommendation (55): The Department ofMilitary Affairs should be transferred from thetransportation secretariat to the public safetysecretariat.
Seatos (if AceiuIl: HE 81.:; loeltes the department 111the cOlllhiIled J-lu/l/ic s.:Ifcty/er~Inspart<Icion
."1-'('rct;lri;lt.
EIller,L:CIlc\· ;lIld ElIcrgy Services. The Office ofEmef,l;CIlcy .:llld Energy Services helps 10eIiities and
St:lte agellcies desigll emergency plans .:md set upemergellCY nainillg progr:lllls. It evaluates andprovides tilI:IIICi;Ii assist;mce fur loe,Ii emergellcyprogr:ll1ls. Dllrillg an emergency, the officecuordiIl.:ltes the responses of local, Statc, and fcder.:Iiagellcies. Tu promote cnergy conserv;ltion, theellergy di\'isiuIl provides conservatioll services .:ll1dprogr;lIl1s 10 cUillmericIi :ll1J residential consllmersalld techllical ;IssisLlllce to lucal governments.Neither clIlergclIcy pl':llllIing lIor energyCUlISCf\',ltiOIl appe:Ir to h;lve ;I common missionwith uther nallsporLltion agencies.
Staff Recommendation (56): The emergencyservices functions of the State Office ofEmergency and Energy Services (OEES) shouldbe transferred from the transportation secretariatto the public safety secretariat. The EnergyDivision of the OEES should be transferred tothe commerce and resources secretariat. If theproposed Department of Conservation is notestablished. the division should be merged withthe Department of Conservation and EconomicDevelopment.
SI.:1CUS (It ActioIl: SB 318 tr':ll1sfers the EllergyOin"sioll l(1 ;1 IIClV Ocp;lrtl11el1t of Mines, Mincr.:I1s,;llld EIlcrgy. HB 81:1 lacMcs the Office ofEIIICl)';CIICY Sen'ices ill thc pIlhlicS.:IfcCl'ltr':IIL<;pllrt;ItiolI secrctariat.
NET EFFECTS OFSTRUCTURAL PROPOSALS
Adoptiull of thcsc rccommclldations wOllldrcsllit ill import;lI1t chJl1ges in the strllcture of theCXCClltivc hrallch. For cX;lmplc, the integrity ofsecrctarial areas wOllld bc strengthened byrc;Iiigllillg those :Igelleies that do not share commonIllissiollS \'lith other :Igcncies in their .:Ireas. Thetotal IIlllllbcr of indepcndent cxecutive agencies\VUiIiJ hc redllccd from 8:; to 72 alId wouldincillde thc following ncw or renamed agencies:
DCP:IrtIlICllt of AII,-IiyticIi and Administr.:ltive ServicesDepJrtll1ellt of Advocacy AgencicsDep,-Irtl1lcllt ot P:Irks alId Historic Preserv.:ltionDepartl1lent of ConservationDep;Irtlllellt ot Ellvironll1cntal RegulationDcpartlllcllt of Camc :ll1d InLllld and Marine FisheriesDepartment of Econumic DevelopmentDcp;Irtment of Commercc and Health
Regulatory BO':Irds
And, depending IIpon the fin;Ii propos;Iis decidedupon to implemcnt each recommendation, costdifferences from $1,474,474 to $1,653,239 Or highercould be realized in staffing costs alone.
If .:Iil the recommendations from the threeJLARC reports were implemented, the cxecutivebranch would be organized as shown in Table 3.
30
Table 3
Proposed Organization ofthe Executive Branch into Secretariats
Administration (13)
Department of Telecommunications
Department of Computer ServicesDepartment of General ServicesDepartment of Systems Development
Department of Personnel and TrainingDepartment of Employee Relations Counselors
Secretary of the Commonwealth - Division ofRecords
Department of Volunteerism
Department of ElectionsDepartment on Local GovernmentDepartment of Commonwealth - Federal Relations
Department of Analytical and Administrative
ServicesDepartment of Compensation
Finance (5)
Department of the Treasury
Department of Planning and Budget (with new
revenue estimating unit)Virginia Supplemental Retirement SystemDepartment of Taxation (possibly in administration
secretariat)Department of Accounts(Plus approximately 6 public authorities with
financial orientations)
Natural and Cultural Resources (8)
Department of Game and Inland and Marine
Fisheries
Department of ConservationDepartment of Environmental Regulation
Department of Parks and Historic Preservation
Virginia State LibraryScience Museum of VirginiaVirginia Museum of Fine Arts
Commission for the Arts
Commerce and Transportation (12)
Department of Hous"lng and Community
DevelopmentDepartment of Labor and IndustryDepartment of Economic DevelopmentDepartment of Milk Regulation
Department of Agriculture and Consumer Services
Department of Commerce and Health RegulatoryBoards
Department of Employment ServicesDepartment of Employment TrainingDepartment of Aviation
Department of Highways and Transportation
Division of Motor Vehicles (could also be assignedto administration or finance)
Department of Ports
Human Resources (6)
Department of HealthDepartment of Mental Health and Mental
RetardationDepartment of Rehabilitative Services
Department of Social ServicesDepartment of Health Services Cost Review
Department of Advocacy Agencies
Public Safety (9)
Department for Commonwealth's Attorneys'
Services and Training
Department of Alcoholic Beverage ControlDepartment of Corrections
Department of State PoliceDepartment of Criminal Justice ServicesRehabilitative School Department
Department of Fire Programs
Department of Military AffairsDepartment of Emergency Services
NOTE: This table ...eflects the composItIon of sec etal'iats assuming implementation of all...ecommendations in the JlARC st ...uctu...e epons.
31
32
v. NEXT STEPS IN REORGANIZAnON
Executive hranch reorganization receivedsigllificult attention during the 1984 GeneralAssemhly session. The three fLARe reports servedtheir intcnded purposes as sources of information;llld :IS ;1 blucprint for lcgisl<itivc action.
WrittCll responses to the three draft reportswere received from the Governor's secretaries, 66;lgCllcics ;llld institutions of higher education, and.'::;8 other individuals. Because of their volume, theresponses could not he included as part of thisSllllllll;lry report. They arc, however, available forreview upon relJuest at the offices of fLARe, Sl!ite1100, 910 Clpitol Street, Richmond, Virginia.
The Commission authorized the printing andsuhsequent distribution of the reports to eachkgisLitivc member. The Commission also~luthorized continued cooperation hetween its staffand th~lt of the Governor. Such cooperationinvolved the sharing of information, clarification ofrecom mend<.ltions, and discussions of draftlcgisbtion.
Acting as individuals, some Commissionmemhers sponsored key administration hills thatwere consistent with fLARC proposals and alsointroduced sever<.ll hills <.lddressing additionalreorg~lnization issues.
Actions taken hy the General Assembly havelhe potenti<.ll for significantly improving theeffectiveness and efficiency of the secretarialsystem, hoards <.ll1d commissions, and theorg~l1lization of the executive branch. Thesecretari<.il system was retained, and respollsihilities;l1ld ~luthority regarding agency performance werecLirified. Actions taken to restructure the system;lddressed the worklo~ld within secretariats and theintegrity of functional ~lreas of govcrnment.Concerns reg~lrding the status of the Governor'schid of st;iff were resolved hy legislation enablingthe position and providing for confirmation.
Legislation pertaining to hoards establishedcriteria for ~Id hoc task forces and defined theunique positions reserved for "citizen members" or"represent~ltives of the public" on some boards.M~ll1y <.lctions ~lddressed the structure and alignmentof ~lgencies. The hasic thrust was to reduce theoverall llumher of agencies, merge agencies and/oractivities with similar missions, estahlish standardnomcllcL:ltUre, and conform regional houndaries.
Reorg;ll1iz<.ltion, however, is a continuousprocess th~lt serves to adapt government to changingconditions. Previous studies have greatly influencedthe current structure of State government and theextensive legislative and executive evaluationscarried OUI during the 1982-84 biennium. Althoughthese evaluations have already resulted in
numerous actions, specific proposals are pending forconsideration during the 1985 session. Others mayhc addressed at a future time.
The Governor was requested in House faintResolution 147 to study the most suitahlealignment of the following programs and report tothe 1985 session of the General Assembly on,
1. employment and training activities providedby the Virginia Employment Commission,Governor's Employment and TrainingDivision, Department of Labor and Industry,Division of Industrial Development, VirginiaCommunity College System, Department ofRehabilitative Services, and Department ofSocial Services. The analysis will alsodetermine the proper secretarial assignmentin either Education, Commerce andResources, or Human Resources;
2. resources planning and coordination activitiesin the Council on the Environment; waterquality resource management and regulatoryactivities in the State Water Control Board;water quality management, w;LSte waterengineering, and toxic substance, solidwaste, and hazardous waste control activitiesin the Department of Helath., and airmanagement activities in the State AirPollution Control Board;
3. agriculture service and regulatory activitieswhich consist of agricultural productspromotion activities in the Department ofAgriculture and Consumer Services, VirginiaAgricultural Foundation, and the individualproduct commissions; milk regulationactivities in the Department of Agricultureand Consumer Services, Department ofHealth, and Milk Commission; seafood andbedding regulation activities in theDepartment of Health; and farm activitiesin Chippokes Plantation Farm;
4. budgeting, accounting, purchasing, andlogistical support serviccs for approximately60 State agencies with fewer than 25employees;
5. regulation of residential facilities and dayprograms hy the Department of Health,Department of Social Services, Departmentof Mental Health and Mental Retardation,Department of Education, and Departmentof Corrections; and
6. executive m;ll1agement staff activitiesinvolved in personnel, evaluation, auditing,hudgcting ;ind policy planning.
The three JlARC reports ;ire now pendinghefore ~l suhcommittee of the Commission. Several
33
..In: ..IS of reorg;mization were reserved hy thesuhcommitlee for consider..ltion in the coming year.The suhcommittee WJS ..lisa ch"lrged withmouitoring reorganiz;ltion ..Ictivity during thelegisbtive sessiou ;lnd recommending ..my furtherCommission ;lCtion in suhsequent sessions.
Since the publication of tbe JLARC reports,many changes h;.lve been implemented in theorg..miz;.ltion of the executive hr~mch, and others
34
~lre currently under w;ly. Some ch;:lnges are directresults {If flARC's ;.In ..liyses ;111d recommendations,;111d others ..Ire initiJtives th;lt grew out of theCoven lOr's reor,~Jniz;.ltion stud y.
These eh;111ges Jre illustr;.lted in the two figureswhich follow. Figure I illustr;ltes the orgJniz;.ltion{If tile execlllive hr..mch ;IS it W..IS on July I, 1983.Figure 2 shows the new organization (as of Jul y I,I~R ..n heing implemented.
Urganization of the Executive Branch Before July 1, 1984
I--~NEY GENERAL Ii
ILIEUTENANT ~ER~
-."--DefOO,l,l",,,u of law ,., "
\ CI"ef of Slaff. f
'- 'T
Deparlmem ofAv,"'l,on
'eparlmem °H,ghwavs &T, anspOf fOliO"
Vlrg'nlaPOll AUlhOf,ly
Div,s,on ofMOlOf Veh'cfes
Depanmenl ofM,fllary Affa"s
GovernOf"SSecrelary
Slafe Off,ce ofEmergency & EnerYf
Serv,ces
.006'
Separale Agency
J ELECTED OFFICIAL I- r=:,:'. II
(
Secrelary ofPubf,c SafelY
Deparlmenl ofSlale Po/ice
Depltnmenl of
COfrecllons
Deparlmenl ofF"e Programs
""",-PO;;Ik"! W,lhin ""\\lhe Gove<nOf sJ
'-..~!!..l~_'"
Deparlmenl ofCriminaf Juslice
Serv,ces
Rehabif!laliveSchoof AUlhOfily
Off'c,af line ofRespons,bifilY & AUlhOflly
o Dependem adminlslrollve ag6nc,es Included ,n <If
• RepOflS d"eclly 10 lhe Govern..... onexecuf,ve poI,cy mailers
Commonweaffh'sAllOfneys Serv'ces &
Treln,n9 Counc,f
Dapanmenl of Akohollcgeverage Conlro/
025.00
Heafff,
Comm,ss,on on fheSIal us of Women
ueparlmem ofSociaf Seru,ces
Virgin,a CounciffOf lhe Deaf
Deparlmenl
fOf lhe A9in9
Virginia DepanmenffOf lhe Visuefly
Hendicapped
D,vls,on ofVolunfeeflsm
D,v,s,on for Ch,fdren
Deparlmenf of HeaflhRegufalOfY 90ards
VWGlnla HeahhSeru'ces Cosf Reutew
Commiss,on
Deparlmem ofRehab'hlai,ve Services
Deparlmerll of MenlafHeaflh & Memaf
Relardalion
fafe Advocacy OfficefClf lhe Devefopmolma~YI
Disabled
GovernOf"S Empfoymenl& Tra,nin9 D,vis,on
0".36
Vir9lnia Truck-& OrnamenfafsResearch Slafion
V"g,nie Museumof Fine Arls
VIrginiaM,filarY fnSlllule
Vu-gln'e SlaleUnlvers,ly
The Collegeof Wifham & Mary
fn V"!llnlO
RadfOfd Unlvl!rSlly
Virginia Comm,sslOnfOf lhe Ans
VirginiaPolylechnic fnSlllule
& Slale Un,uersny
UnlVerS,ly of V"g,,"a
Vlr9in,a Slale l,b.-ary
The Science Museumof VirginIa
Vir91n,a CummonweahhUIl,vers"y
SeCrelary ofEd"cal,o,f
GeOfge Moson\In,verslly
James Mad,sonUn,vers,IY
Ofd Domin",onUnivars,IY
Norfolk SlaleUnlvers,ly
Deparfmem ofEduCOllon
Slale Co"ncif ofHigher Ed"callon
fOf Vlr9'nla
Ch'lSIOpherNeWpOfl Colfege
Mary WashinglOrlCollege
lungwood Coffege
Y"Y""d ':omm"nllyCoffege SySlem
The Virginia Schoofsfor lhe Deaf & 9hnd
029."6 5
Ma"ne Reso"rcesComm,ss,on
Slale A" POftullOnComrOl 90ard
M,.Comm,ss,on
Slale Wale,COnlrOl 90ard
Slale Dff,ceof MlnO"ly
9us,ness Enle,p"se
~ __ ,a So,f &Waler Conservallon
Comm,ss,on
Vlrg,n,a Ma"nePruduClS Comm,ss,on
V"gln,a EmpfoymemComm,ss,on
JameSlown-Yo<klOwnFo"ndallon
Vlrg,n", H,SIOf'Clandmarks Comm,ss,nn
V"",n
Secrelaryof Commerce& Resources
Counc,f on lhe
Envlro"mem
Depaflmem ofAg"culHue &
Consumer Se<v,ces
Depanmem ofCommerce
CommISSIon of Game& Inland F,she"es
D,v,s,on oflnduSl"al Developmenl
Gunslon Haff
Depanmem of labor& lnduslry
-Depltnmem ofConservallon &
Econom,c DevelOpmenl
"'An.
o 6."6 ,
ASS;Slanl
Se<;:,elary FOf
Financ,al Policy
Depanmenl ofPlanning & 9udgel
SIal" 90ardof Efe<;:l,ons
,ffl-ceolCommonweallh
Federal Refel,ons
~ .....r"lary ofIn" CommonwellllhD,VISIon of RecOfds
Compensallon 90ard
Deparlmenl ofGeneral ServIces
.......... Imem of
Ta.al,on
OffIce of Emr,.foyee
Relal,ons Counselors
• <:_,
Depilrlmenl ofTelecommun,Cill,ons
Deparlmem of
AC(;OUnIS
Deparlmenl oflhe Treasury
C"mm'ss',on onLocal Gove,nmenl
Vlrgln,a Suppfemenlal
Re,,,emenl Syslem
Depilnmenl of
Compule, ServIces
uepanmenl ofPersonnel & Tra'nlng
Depanmenl ofManagemenl AnalysIs &Syslems Developmenl
s..c,elary ofAdm,n,Sl'allOn &
F,nance
."6' • Collegial & olher bodles ,ncluded ,n area
w(Jl
6 Polillcaf subdiv,s'ons ,ncluded In Mea
.j
--
_ L- _ '--- __ L-...JL--..J L- _ '-- _
~--'--------
-~o ,> i••.. "j ~
•
E
J-
-
!!!!!!!
..:i!.."'>o"
<I..!">:l!..olI..
i;;;;;o;;
!!!!!!!!!..oz.."'>o"~I::>
"'~'"-~-=..,~=III('C
.c~=('C..
==~;;.
0..=~illl!
101oi
~.c..
36
RESEARCH STAFF
DirectorRay D. Pethtel
Deputy DirectorPhilip A. Leone
JLARC STAFF
ADMINISTRATIVE STAFF
Section ManagerSharon L. Harrison
Business Management& Office Services
Division Chiefs@ Susan Urofsky, Division
Kirk lonas, Division II
Section ManagersGary T. Henry, Research Methods
& Data Processingfohn W. Long, Publicat.ions & Graphics
Project Team LeadersSuzette Denslow[oseph H. Maroon
@ Barbara A. NewlinWalter L. SmileyGlen S. TittermaryShepherd Zeldin
Project Team StaffLynn L. Grebenstein
@ Stephen W. HarmsClarence L. [acksonThonus [. KusiakR. ray Landis
@ Sarah [. LarsonCynthia RobinsonRobert B. RotzMary S. KigerE. Kim Snead
Administrative Servicesroan M. Irby
Secretarial ServicesBonnie A. BlickRosemary B. CreekmurBetsy M. [acksonK. Adele Linkenhoker
SUPPORT STAFF
Technical ServicesDavid W. Porter, GraphicsR. ray L.mdis, Computers
Interns@ Carolyn O. Tillman
Geraldine A. Turner
@ Indicates staff with primaryassignment to this project.
37
RECENT REPORTS ISSUED BY THEJOINT LEGISLATIVE AUDIT AND REVIEW COMMISSION
Long TcrIII CIre in VirgiIli~I, Murch 1978MeJic:I1 A...,·...,.i,'iIaIlCC jJrogr~lIw,; in Virginia, All OvcTvicH', fune 1978Vi(c:in1a SIIf1p1cmcIlwJ Rctin.'IlICIlt Sy..;tCIll, October 1978The Clf1iI~IJ Owlay Proccs,"" in VirginizI, October 1978elm!J jJcIldh'IOII, November 1978JIIjXIliCIlI enc in VirgiIli~I, f:muJry 1979OIIlp~Ili{,IH em' in Virginia, M;HCh 1979M;IIlagCIJ]CIlI ;wel Usc of State-OwIled Vehicles, fuly 1979CcnificlIc-of-Nccd in Virginia, August 1979Report 10 I!JC C{,Il{'r~IJ Asscmhly, August 1979Virgini~l Po(vtcchnic Insriwtc ,JI1d Stale University Extension DivisioIl, September 1979Dcin'itlIIItiOIwlizalioIl ,lIlel COIlIIllIIIIity Sen/icc...;, September 1979Speci,]! Suul}': Federal Funds, December 1979HOIlH.'.'i for AdIllrS in Virginia, December 1979M~InagemeIII and U,'ie of Consultants hy Sute Agencies, May 1980The General Relief Program in Virgini:I, Septemher 1980FedenI! FIlud..,' in Virgiui~I, October 1980FeJer~I! FIlnds: A SlIm mary, fJnuary 1981MedlOdologv for:I Vehicle Cost Responsihility Study: AnInrerim Report, fJnuary 1981Org:lIliz:lIion :IIId Administration of the Department of Highways and TnlIlsportation: An Interim
Repon, january 1981Tide XX ill Virgini~I, fanuary 1981Org~lIliz:IIion and AdIlIinistration of Social Services in Virginia, Aph1 19811981 Repon 10 Ihe Gener~I! AssemhlyHighw;Iy ~lIld Tr,lIlsporUtion Progums in Virginia: A SIlmnwry Report, November 1981OrplIliz,IIion :IIHl Administration of the Dep~ntment of Highways and Tunsportation, Novemher 1981Highw,Iy ConstrIlction, MainteluIlce, and Tunsit Needs in Virginia, November 1981Vehicle CosI ResponsilJility in Virginia, November 1981 -Highway Filwncing in Virginia, Novemher 1981Puhlic,Itions ,md PIlhlic Relations of St~Ile Agencies in Virginia, fanuJry 1982OcclIpalion~II ~Ind Professional Regulatory Boards in Virginia, fanuJry 1982The CETA Progr~Im Administered hy Virginia's Bal:mce-of-Statc Prime Sponsor, May 1982Working ClpiuI! FIlnds in VirgiI~ia, fune 1982The Occup:IIiOIwl :lIld Professional Regulatory System in Virgini:l, December 1982Interim Repon, EIIIlity of CIlrrent Provisions for Allocating Highway ConstrIlction Funds in Virginia,
Decem he r 1982COIlsolid~IIion of Uffice Space in the RO:lIloke An'~l, Decemher 1982SUffing and Manpower Nanning in the Dep:ntment of Highways and Transportation, january 1983Consolidation of Office SP~ICC in Northern Virginia, fanuary 1983Interim Report: LocI! Mandates and Financial ResoIlrces, fanuary 1983IIlIeriIlI Repon: Organiz,Ition of the ExecIltive Branch, fanllJry 1983The Economic Potential and M:lIugement of Virginia's Seafood Industry, fanllary 1983Follow-Up Report on the Virginia Dt.'partment of Highways :lIld Transportation, faIillary 19831983 Report 10 rhe Ceneul Assemhly, October 1983The Virginia Division lor Children, December 1983The VirgiIlU Division of VolIlnreerism, December 1983SI:IIC Mandates on LocII Covernmcnts Jnd Local Financial Resources, December 1983An AssessmenI ol StrIlctIIrJI TargeL'i in the ExecIltive Branch of Virginia, fanuary 1984All AssessnH'IlI ol Ihe Secreurial System in the Commonwealth of Virginia, fanllary 1984All AssessmenI of Ihe Roles of Boards and Commissions in Ihe Commonwealth of Virginia, fanllary
19841l)83 FOlJO\I/-IlP Repon on Ihe Virginia Department of Highways and Transportation, fanuary 1984lIIlerim Report: Centr~II :IIld Regional Staffing in rhe Department of Corrections, May 1984E<..jIlin of Curn.'nI Pro\"isions lor AlJocning Highway ~lIld Transportation Funds in Virgini:I, june 1984Org,lIli:::Ilion ol Ihe EXeeIIli\T Bnlnch in Virginia: A SIlmnury Report, fune 1984
38
