I DEC STA.

FF

April. 2008 (actual) December 2010 (t(lrgct)

3775 FTEs 2926 FTEs -849 FTEs

DECNPS FY 2007-08 FY 20] 0-11

$127 million $63 miHion -$64 milhon

S taft' reduction plan

DEC has been instructed bl' DOB to reduce its staff by an additional 209 people in order to ichieve a fill level or 2,926 by Dcccmbe'r 31, 2010. Based on the Department's significant level of partie ration in the recent retirement incentive program, we do not expect a high level of attrition during the next six JIll), periods. and therefore, this directive will essentially result in 209 layoffs 8!, DEC. This I iemorandum outlines the general approach DEC intends to lake to achieve that workforce reduction goal, 11.5 instructed, this document sets forth a "high level" strategic plan. Because we realize that further staff rc iuctions may result in potentia] serious risks to h~!!,an _be~..§:pj_~_~_:::~Y_.~.r:!4_~~yjI911tDentaJ guaJity, and cc uJd seriously iTmit Or-eliminate tFj-e--pu61ICSiscof state assets, producing a more specific plan will take ar ditinnal time and analysis.

Context for dedsion-rnakin;:

The state's fiscal c~iLmC_.R.<gtiS!d~.ryJ __ .AD_9__Qi~J2[S?2~_r!iQ!l'3J£ly,_Jla!.cL, DEC accounts for approximately 2.5% of the New York State workforce subject ###BOT_TEXT### Executi VG control, yc-( 1 ,EC's layo fis will comprise more than 10% of the 2,000 positions that the Governor plans to elimin.ae Al though DEC's total State Operations budget is in excess of $500 million, three quarters of tluse funds CITe provided by the federal government and 'special revenue, other' (SRO) accounts. for example, the: federal government COyt."TS most of the cost of DEC's implementation of Clean Air Act am Clean Water Act requirements The SROs are statutorily created and provide a dedicated means of financing discrete activities. For example, the Conservation Fund i.:; funded by the sale of fishing, hunting, and trapping licenses, and it pays for DEC's efforts in those areas (including the fish hatcheries, pheas nnt farm, Jaw enforcement, hunter education, wildlife and fishery biologists, etc.). Expenditures from be Sl~Os arc legally restri cted to the purposes for which they were created. Other State Agencies I.lat arc J 00% federally funded or 100% SRO funded have been exempted from the Governor's proposed layoffs: yet DEC, with 75% .of its funding coming from federal funds and SROs, is not only b! :ing asked (0 participate, but is being asked to carrying a disproportionately large percentage of the layoff .

When Governor Spitzer was -elected, the administration recognized that DEC's workfrrcc had been significantly reduced over the prior decade - approximately 800 Jobs had been lost, whi]e DEC'~ regulatory and programmatic responsibilities increased These staff losses lett DEC serious) \ shorthanded in many key areas, and the administration determined that among its priorities VI'a;.; rebuildiu; the agency. Accordingly. the 2007·2008 budget added 108 critically needed positions as a first step 11 bringing the Department back to its appropriate staffing level. Under significant pressure from (he GOV'l'1l0T"s Officc, DEC succeeded in filling aJI of the new positions, as well as backfilling 'vacancies c: cared through

:l

retirements or attrition. In order to achieve the administration's policy goal of restoring adcquat ~ staffing of core cnvirrunncntal program:>.

Then the fisc;d crunch hit. Tn April, 200S, DEC employed 3,775 staff. Since that time, in .ill';l th : past 2.5 vcars, DEC h;_lS lost 595 employees, or 16% of its workforce. These losses resulted from thre: discrete ~ff();ts: (i) ,dlrition combined with a hiring freeze. (ii) the severance program. and (iii) the earlv retirement inccnnvc program (ERn- With respect to attrition. DEC set a goal with DOB to JOSE 241 staff dun ng th e I ~ -rn onth period from October 2008 throu gli lv! arch 2010. and until the announcern ~J1t of the severance program, was on track to meet that target. Once the severance initiative was announced, however, liS (I practica] matter the attrition goal was superseded, and our attention turned to m ixirnizing participation iii the severance program. Thai program hit it:; target at DEC, and our particip: .tion (135 staff) was flll1[lIlg the highest of all state agcllcics.

Unfortunately. the fiscal problems continued, and like all agencies, DEC was called upon t i produce further workforce reductions, this time through the BRI. Once again, DEC's participation surpased many other state <lgcncies both in numbers and in percentage of'Its workforce. Through a comprehensive planning. PJ'0CCSS, and with the cooperation and support of the Division of Budget, DEC press] ted a pieHl that wonk! both maximize the workforce savings and provide a structure to contrnue to deliver programs, illth()u~h at ,; cir2sticaliy reduced level. I

By thl~ pomt, DEC had gone well-beyond the original arrmnr: goal (in fact. we 'TIMe Own GlUbjcd t~1C, 0llgJl1al workforce reduction). aDO a: the same time i;I_IC absorbed C11fH1T10U$, anrl again disprcl iortionate. cuts In non-personal services (j\iPS") spending On <J percentage haS1S. DEC's NPS budget has bee)1 reduced by 1110:-(: than 40%, since P{ 2000-20 I 0, which has had a radical impact on agency j -perations The impact ~)[- the NPS cuts, which have now been fully implemented, was dcscnbcd m a Iv arch 2010 subrnixsion to nOB. a copy of whichis attached frir reference

A,::- noted earlier, by the end of September, 2010, DEC's workforce, which only accounts for 2.6'1'1' of the state workforce. had been reduced by almost 16%. DEC.) general fund budget, which 8::COUrtS for only .2% (' general fund spending, has been reduced by 13(%. With the additional 209 jobs WE arc being called on t(l eliminate now, DEC's total job 10S$ will he 804, 2]% of the agenc-y's workforce, s ince April, 200S,

1 we c;:pcnL:nccd these extreme reductions, the Department "s federal and state legislative JIliU elates have continued to grow. This combination of severe resource limitations and increased responsibif iues hac: had a dramatic impact - fundamentally compromising the Department's responsibilities to preserve the state's cnvrronrnent, protect human health and meet its obligations to the public. In every quarter, we) rave had to rCdlJCC essential services provided by DEC. We arc now responding to and cleaning-up fcwei PCLTOkuITI spills OUT inspections and enforcement activities in all programs have dwindled . c.g. D37an ous W8stC, em emissions wastewater discharges, dam safety, mining and drilling safety. wetlands development shellfish safcry. and enforcing hunting/fishing regulations. DTiC's review of the environmental impacts of industrial (lell vitics and Issuance of permits 1l0~' take longer. Stewardship of the Department' 5 extensive land holdjn[!~ and facilities has declined. There is Iess oversight of mine safety and oi) and I as drilhng, ami C[TOT1:c l\) plug leaking abandoned wells have been cut Backcountry patrols b),' OUr R angers and

I Another facto,' I h,ll chilled attnrion was rnt: hirin!! freeze -- historica Ily. workers would leave DEC to wnrk ill 0[1 er state :###BOT_TEXT###amp;"r\CIC~ bu: \!-"I\ the hiritif; rrec.7.c lhE11<;roppcd bapPCl11l1b,

2

Conservation Officers have been signifi cantly reduced. Many functions formerly perform: . .:d hy a section of staff people art: being performed by one individual, if at all.

Ironicallv, these cuts have come in the midst of increasing recognition of the DEC's uiportancc to economic development. OUT facilities - state lands, campgrounds, environmental center:'. hiking and snowmobile trails, hunting and fishing access points - arc vital economic drivers in cornrm nines across New York, contributing billions of' dollars [0 tourism and local business development .. otcn in- areas where these activities represent the only opportunity to stabilize or bolster local ecoiornies. No significant economic development project of any kind can occur without DEC review or pen rutting. This is true for general construction, mining, oil and gas drilling, Energy generation, water-depend mt activities, certain development on contaminated land, waste transportation, commercial fishing and she lfishing, and most manufacturing. It is also true for a range of activities conducted by municipal governm: ots and other state agencies, such as sewage treatment, water withdrawals for public water supply stormwater management, transportation 'projects, recycling, and waste management. The work we do is directed by a complex body of State and Federal law and regulations, and as we head into this new round of reductions (6.6% of our remaining workforce), we are already operating under serious constraints.

The new [ifllevel

Before getting to the strategic pl an, It's important to reco gnize that the newest workforce rCl I u cti on target for DEC is disproportionately higher than for other agencies because it includes reducing an arbitrary and anomalous "surplus" in DEC staffing. The concept that DEC is "over" its fill level is a legacy of the superseded attrition goal from 2008, and it fails [0 recognize the extent to which DEC Slan is funded by federal dollars, SROs and private sources.

As a result of the pressure to quickly hire new staff under the Spitzer administration, frorr time-to-time we would be above om targeted fil.l level. This was largely a resul t of managing the "float" -- i. e., hiring new people at the same time that there would be separations through attrition and retii cmcnts. We recognized that this needed 10 be addressed once the fiscal crisis began, so eliminating the problem was included when we established the attrition goal of 241 separations. If the; severance and. :RI programs had not intervened, once we achieved that goal we would have been at the agency's targeted Jill level.

The severance and ERI programs did intervene, however, and instead of losing 241 people, . JUl' workforce was in fact reduced by almost 600 people. As those programs were being implemented, however, the question of how to adjust for the "over fill" problem was never addressed. Given that we hod achieved reductions well in excess of the attrition goal, our "over fill" status needed to be adjusted s: thai it would not someday come back to haunt us. While we raised this anomaly to DOB and State I )perations Oil several occasions, it was acknowledged but never resolved, Instead, the focus was strictly on how many reductions we could achieve, and the superseded, legacy targets were never dealt with.

Our understanding now is that when the new target was determined, a decision was made t! compel DEC to eliminate the positions (hat are _lingering on the books 8S "over fill" notwithstanding til,: I events made that Issue both irrelevant and impossible to deal with. The "over fill" number is fundarncn nl ly arbitrary, and is a holdover from when both DEC and DOB believed that attritions could be used to get l o [he: Jill target That number should have been adjusted as we participated in the severance ami I'Y I pnJb'f'1I'T1S.

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Nou; we arc being told that it is part of the calculation of the new filJ level. This is inherently r nfair and inappropriate. and penalizes DEC for being a high·leve] participant In the severance and ERI pro ;rams

On 0 similar note. in determining DEC's fill level, there should be a deduction for items that arc fully funded hy non-state sources as has been clone with several other agencies. There are a number of categories or i11!CDCY staff that have absolutely no call on state resources. These include positioi.s fully or primarily funded hy the federal government; "environmental monitor" positions paid for by regulated entities as permit conditions or pursuant (0 consent orders; and staff funded by SROs su ~h as the Conscrvati Oil Fund. If those items were not included in determining the fill level, DEC would in fact he well hdow [;IrgcL Ironically, we could go out today and employ people using federal funr s, private funds. and S P. C! money that could produce Jobs and put pcopl e to work with no impact on the sates fisc. Under the ClJITen' thinking, however, we cannot do so because of the way in which our til target is a<;scs:;cd 01.11' arhirrary fill target also limits our ability to leverage federal funds to create jobs at little or no cost to the stare.

As OJ new i;Jl~.cl is being set, there is an opportunity to correct the aberrations which artificially limit employment ()11Portumties and graruircuslv make it more: difficult for DEC to achieve its mi: sian. We J,3VC consistently tried to suggest that DOB should be encouraging agencies to look for alternative means of j)Clying 1'm state crnplovecs - now more than ever that should be an over-arching policy directive. instead. as a practical matte;', we an:: discouraged from looking for th(l~e opportunities because )f the way in which the rill levels are calculated

tip until \lOW, we 11<1\IC faced two discrete management challenges. First, with respect to staff cuts, we have hac! to :ldciress the inherently random impacts of attrition, SCVLTa~ce and the ERI. Second. WIth respect to the I'-1PS cuts, we have had to determine where to reduce allocations to programs Severance and retirement cannot be planned, but as we became aware of who was participating, we h lVC shifted people around, worked out the critically important backfill plan with DOB and taken other in emal steps to rrutigate the impacts, _/J·,s to J\TpS; we took an "incrernenral reduction" approach, The IT anagcment theory was Lll3t we should maintain as man')' of OUT core activities as possible, even at a reduced level of effort In our' Judgment while the cuts howe draconian impacts and create severe challenges in every program. .spreading tnt pain was both possible and fair gl\Icn the relatively equal importance c [our man)' activities In the course of applying thOSE reductions, we carefully inventoried [l11 programs an I activities, and while: we made some adjustments, for the most part the cuts were spread among every pro! ram.

We arc facing a far different challenge at this time, as we arc being asked to target 20Q addiional items. for elimination on the heels of the departure last week of 260 through the ERJ. First, as discussed above, DEC is in lh:.~ weakest position that it has been in since it was created 40 years ago The ~ taffing and funding lo:;s(;~, over the past 2.5 years, combined with increased legislative mandates from the federal pnvenmH~nl. arid State Legislature, have created the perfect management sfOITO_ Many of ou programs are hanglllg by a thread The public would be shocked to learn how thin we arc U7 many area; - in many instances, we h,IV(:' offices or sections responsible'. for important permitting and monitorir g functions sLarfed ())' only one or two people: Some regional offices have no Ci1pa.dT)' ID certain areas hccausc key items arc unoccupied and can't be filled. A~ a result we arc unable to meet the expectations of both the rcgulaiHl cornrnuuirv and the public with respect to countIes;:; activities. In contrast to the past. we no

4

Ion aer have a general capacity for incremental reductions All the meat has been stripped h'l~')l the bones, and some of the hones have disappeared. We arc at a point when: further reductions wil necessarily result in programmatic losses. Accordingly, we need to determine which program :1 'cas can be discontinued. Thus, our first guiding principle in dctcrrnming layoffs will be:

DEC will not utilize an across-the-board reduction of 6.6% and apply this reduction to each division as this will result in debilitation of a number of core programs to the pain! VI;J- ere they will no longer be viable. Instead, we will identify those discreet programs find services that ean 110 longer be provided to New Yorkers, and seek to target layoffs to those areas to try (II salvage the viability of remaining programs_

In targeting the layoffs, we will necessarily need to prioritize programs. Unlike many () I-ler agencies, DEC by design has a multi-faceted mission and our core activities accordingly encompass ,) wide variety of areas. For example, we are responsible for ensuring environmental quality through the implementation of regulatory programs aimed at protecting air quality, water quality, managing hazard: us and nonhazardous waste and cleaning up dangerously contaminated sites, We have statutory responsibility for the state's invaluable natural resources, including all state lands, fish and wildlife populations waterbodies such as the: Hudson River, the Great Lakes and Lake Champlain, and our vast coastline. As a core dement of our mission, we also provide recreational opportunities for the public, many of v, hich are paid for directly by user fees and include heavily relied upon programs for sportsmen and spotswornen, as well as camping and hiking in New York's consti tutionally ,protected forest preserve. Each of our programs has a daily impact on people's lives and thE; health and economic well-being of the stale. While each program has a vocal. politically active constituency, for purposes of this exercise we C innot treat ~JI of them equally and still be able to operate,

Accordingly, the next principle we will apply in -dctennining the layoffs will be:

• III selecting programs for elimination, DEC will attempt to avoid cutting, to the ex tcrt practicable, those programs thai (i) directly address risks to human health, and (ii) prevcn immediate environmental degradation. While the risks to human health have already increased due [0 cuts 10 certain environmental quality programs, and especially to enforcement activities related to pollution sources, further cuts would resu It in unacceptable risks 10 New Yorkers anr unaccepiab k liability f?r N ew York State gOVCI11lTI ent. This eri tenon, prima facie; points to .. thus ~ com pon ems of ourcore mission that are focused on outdoor recreation and sports, including s riing, fishing, hunting, camping, hiking, etc. 'While this focus will mean that DEC will not be ab e to meet the public's expectations and demand for these opportunities, the alternative is all unacceptable increased risk to human health and potentially irreversit!.l..t,~amagc to the environrnei L

_ ......... -. .. ~-_r ........ ,... •. -...- . .

~'hiJe we are hopeful that further analysis and discussion will result in reducing the number n r people that DEC will be required to eliminate, there arc steps that we can take to ensure thai th( cuts will be distributed 8S best as possible within the administrative and management structure of the Dc partrncnt. The demands on each region are different (for example, cleanup of contaminated sites may be 1;I(Jrc important in the Buffalo area than in the Adirondacks). Within DEC's Divisions, staff has already b( cn reallocated based upon the severance and ER J programs, and further changes wil] need to be made as [I [ workforce is further dirnirnshcd. The matrix management structure that divides supervisory and pro grarnrnati c

5

responsibility between the central office and t11C regions also requires review to ensure that ali)' • holes" in management are appropriately addressed, Thus, our next guiding principle is:

• Every ccltcgory of employee '

Related Interests

    il1 bc considered for layoffs, including executive and other exempt po::i Ii IltLS,

    DFC implements a s{"TICS of federal laws in New 'York State pursuant to formal delegations, fedc 'al statutory rcqinremcnts and other types of agreements. In addition, DEC works with municipaliti es to provide slrppnrl For local programs, and in some instances delegates programmatic responsibilities to local governments While there are fiscal and policy implications to surrendering programs to the fed :raJ government In I;eu of rnaintaming state control (e,g., the regulated community will need to deal lirectly ""'I th the EP /\ i nc;tcad of DEC), there may be apport-unities to eliminate programs and have eithe: federal or loca] authorities maintain them in our stead. By targenng layoffs in areas where programs rn. y be delivered by other sources. wecan potentially maximize the opportunity to continue to deliver 0 .her equally si gllllicant programs and mitigate the impact of the layoffs. Similarly, there may be pro ;ram overlaps with other state agencies that can mitigate the impact of the layoffs. .Accordingly, our next guiding principal will he:

    .. DEC .vill examine oPPOrtUt11l1C5 to returndelegated programs to the federal govcrnme nt or cede cnl1tn" 0* certain programs as allowed UIJdt::" ],1'.

    Related Interests

      tn local governments. We will also rc liew those «(1'c:;I.( where there is programmatic snnilarity with other state agencies.

      \f/c have Ickidli'"ICd a number of other criteria that we will applv in targetin~ lavoffs - fo : example -"\_:~;Jlcnci II) f 01 cI iminating act: vines th at by virtue of the cuts already 1l"!'1;:J lerncnted arc not opcaun g well enough [0 continue, As 8 next step we: will apnly the critena set forth above to our cnti: c: nmgc of flTog,a\ns 10 rrcatc a l1s[ of layoff candidates.

      Cr)l1c/usion. fU5k.s fa New Vorl,.

      T(l achieve ~()~ lilyoffs hy the end of the year, DEC will need to make some very tough dec; .ions 3])OL1t which prog:";l1ll.'; to eliminate orgrea1:ly curtail. These decisions will have clear and immediate conscouenccs for NEW Yorkers and for state government For example, if DEC'~ fish ha: chcric~: arc closed, we :.:nn expect a reduction in economic activity supported and induced by fish : tocking A reduction J11 our forestry ranks will seriously endanger our ability to maintain the "green" cer .ification of ou:- Slate f01'CSlS (certifications from the Forest Stewardship Council and the Sustainac Ie Forestry initiative) Vv]llch will reduce the market price we can obtain for our cut timber. Cuts to 0 rr Mincrals Division will mean fewer staff available to review applications and oversee activities relate j to natural gils drjlling 111 (\·1arce]tus Shale, If we eliminate our voluntary brownfields programs and 11 stead focus remediation [\l1ly OD State Superfund sites because they arc the most significant public heal h threats, it wil] noriccablv slow the clean-up and redevelopment of contaminated lands Further n ductions to pcrl111tting ~1;1fr especially ill regional offices, will siow reviews and approvals of industrial, .omrncrt.ial. and rcsidcn.ial development projects. Tn addition, priority infrastructure initiatives such as a rcplacerncru l"(lr the Tappan Zee Bridge, a second Peace Bridge it'. buffaio. high speed rail c .rrridors and majo: rene W(l hie CTI erg)' proj ccts ", .. ill be adversel y affected by rcducti ()I1S in permitting staff.

      We strongly recommend that given the context and consequences, DEC's workforce reduct on target be reconsidered. In the meantime, we intend to proceed to develop a plan consistent with the straiegi c principles set forth above, as instructed.

      7

      Related Interests

        il1 bc considered for layoffs, including executive and other exempt po::i Ii IltLS,

        DFC implements a s{"TICS of federal laws in New 'York State pursuant to formal delegations, fedc 'al statutory rcqinremcnts and other types of agreements. In addition, DEC works with municipaliti es to provide slrppnrl For local programs, and in some instances delegates programmatic responsibilities to local governments While there are fiscal and policy implications to surrendering programs to the fed :raJ government In I;eu of rnaintaming state control (e,g., the regulated community will need to deal lirectly ""'I th the EP /\ i nc;tcad of DEC), there may be apport-unities to eliminate programs and have eithe: federal or loca] authorities maintain them in our stead. By targenng layoffs in areas where programs rn. y be delivered by other sources. wecan potentially maximize the opportunity to continue to deliver 0 .her equally si gllllicant programs and mitigate the impact of the layoffs. Similarly, there may be pro ;ram overlaps with other state agencies that can mitigate the impact of the layoffs. .Accordingly, our next guiding principal will he:

        .. DEC .vill examine oPPOrtUt11l1C5 to returndelegated programs to the federal govcrnme nt or cede cnl1tn" 0* certain programs as allowed UIJdt::" 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        tn local governments. We will also rc liew those «(1'c:;I.( where there is programmatic snnilarity with other state agencies.

        \f/c have Ickidli'"ICd a number of other criteria that we will applv in targetin~ lavoffs - fo : example -"\_:~;Jlcnci II) f 01 cI iminating act: vines th at by virtue of the cuts already 1l"!'1;:J lerncnted arc not opcaun g well enough [0 continue, As 8 next step we: will apnly the critena set forth above to our cnti: c: nmgc of flTog,a\ns 10 rrcatc a l1s[ of layoff candidates.

        Cr)l1c/usion. fU5k.s fa New Vorl,.

        T(l achieve ~()~ lilyoffs hy the end of the year, DEC will need to make some very tough dec; .ions 3])OL1t which prog:";l1ll.'; to eliminate orgrea1:ly curtail. These decisions will have clear and immediate conscouenccs for NEW Yorkers and for state government For example, if DEC'~ fish ha: chcric~: arc closed, we :.:nn expect a reduction in economic activity supported and induced by fish : tocking A reduction J11 our forestry ranks will seriously endanger our ability to maintain the "green" cer .ification of ou:- Slate f01'CSlS (certifications from the Forest Stewardship Council and the Sustainac Ie Forestry initiative) Vv]llch will reduce the market price we can obtain for our cut timber. Cuts to 0 rr Mincrals Division will mean fewer staff available to review applications and oversee activities relate j to natural gils drjlling 111 (\·1arce]tus Shale, If we eliminate our voluntary brownfields programs and 11 stead focus remediation [\l1ly OD State Superfund sites because they arc the most significant public heal h threats, it wil] noriccablv slow the clean-up and redevelopment of contaminated lands Further n ductions to pcrl111tting ~1;1fr especially ill regional offices, will siow reviews and approvals of industrial, .omrncrt.ial. and rcsidcn.ial development projects. Tn addition, priority infrastructure initiatives such as a rcplacerncru l"(lr the Tappan Zee Bridge, a second Peace Bridge it'. buffaio. high speed rail c .rrridors and majo: rene W(l hie CTI erg)' proj ccts ", .. ill be adversel y affected by rcducti ()I1S in permitting staff.

        We strongly recommend that given the context and consequences, DEC's workforce reduct on target be reconsidered. In the meantime, we intend to proceed to develop a plan consistent with the straiegi c principles set forth above, as instructed.

        7

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