Restructurin

PUBLIC DOCUMENTS

" DEPOSITORY ITEM

FEB 17 W95

CLEMSON 4% 4 4\ /> ulciviovjm

U LIBRARY

Plan

for

the National Park Service

FzJ November 1994

United States Department of the Interior

Roger G. Kennedy, Director
QArt Printed on Recycled Paper
This Restructuring Plan has been approved by the

National Park Service and the U. S. Department of

the Interior. Implementation is subject to

submission under applicable reprogramming

guidelines, with the concurrence of the Office of

Management and Budget, to the United States

Congress.

ACKNOWLEDGEMENTS

Developed under the leadership and guidance of:

Developed by:

George T. Frampton, Jr., Assistant Secretary for Fish and Wildlife and Parks

Roger G. Kennedy, Director, National Park Service

John J. Reynolds, Deputy Director, National Park Service

The National Park Service Reorganization Work Group

Maureen Finnerty, Supt. Olympic NP - Chair

Rob Arnberger, Supt. Big Bend NP

Bob Baker, Regional Director, Rocky Mountain Region

Marcia Blaszak, Administrative Officer, Yellowstone NP

Kevin Cann, Chief of Maintenance, Yosemite NP

Cal Cooper, Deputy Assistant Director, Denver Service Center Dave Given, Assoc. Regional Director, Planning & Resource Preservation, Midwest Region

David Haskell, Resource Specialist, Shenandoah NP

Nancy Nelson, Supt. Minute Man NHP

Alan O'Neill, Supt. Lake Mead NRA

Bill Paleck, Supt. North Cascades NP

Robert Stanton, Regional Director, National Capital Region

Kate Stevenson, Assoc. Regional Director, Cultural Resources, Mid-Atlantic Region

John J. Reynolds, Deputy Director, NPS - ex officio

Advisory to Work Group :

Maria Burks, Special Asst. to the Director, WASO

John Gingles, Deputy Chief, NPS Facility Management, WASO

Heather A. Huyck, Director, NPS Office of Strategic Planning, Denver Mary Martin, Personnel Officer, WASO

Bruce Sheaffer, Comptroller, WASO

&

John F. Kennedy School of Government, Harvard University, Cambridge, Massachusetts

Final compilation & editing by:

NPS Reorganization Steering Committee

John J. Reynolds, Deputy Director, NPS

John Gingles, Deputy Chief, NPS Facility Mgt., WASO

Mary Martin, Personnel Officer, WASO

Cal Cooper, Deputy Asst. Director, Denver Service Center Maureen Finnerty, Associate Director, Operations, WASO

Kate Stevenson, Associate Regional Director, Cultural Resources, Mid-Atlantic Region

Anne Badgley, NPS Chief of Staff, WASO - ex officio
Digitized by the Internet Archive

in 2012 with funding from

LYRASIS Members and Sloan Foundation

http://archive.org/details/restructuringplaOOnati
PREFACE

Purpose: The National Park Service plans to restructure organizationally in response to diverse

changes that have confronted us over the past several decades, to the National Performance

Review, and to legally mandated FTE reductions. The resultant Restructuring Plan for the

National Park Service builds upon earlier efforts within the Service — the 21st Century Task

Force Report, the Vail Agenda, the NPS Strategic Plan, and the Recommendations of the

Reorganization Work Group — all of which have proposed significant, substantive improvements

in the organization.

Benefits: When fully implemented, beneficial outcomes of this plan will include reducing central

office overhead structure, empowering employees, broadening the base of agency decision

making, enhancing partnerships and partnership programs, providing increased emphasis on

natural and cultural resource management and science, moving to ecosystem and cultural

geographical context management, eliminating unnecessary regulations and reporting, removing

non-value-added layers of review and oversight, improving educational capacity and delivering

more support services to park and program managers. This is in line with both National

Performance Review and National Park Service efforts to enhance resource management and

move optimal levels of available resources closest to the need.

Proposal: NPS units and partners will be organized into 16 ecological-cultural-geographical

based clusters of 10-35 park units each. Each cluster will be staffed to maximize support to the

units in the cluster, with a system support office providing technical, administrative and

professional support. Each cluster will report to one of seven Field Directors, who are

responsible for an average of 50 park units each. Clusters will also receive services and support

from national program support centers. Field Directors will report to the Deputy Director, who

with the Director and Associate Directors will constitute the NPS National Leadership Council.

The headquarters office in WASO and existing regional offices will be significantly flattened

organizationally and downsized, removing programmaticfunctions, but leaving policy, leadership

and communication functions. Programmatic functions will be reassigned to parks, system

support offices, or program centers.

In summary, the basic tenets of the proposal:

A Washington headquarters office that is substantially smaller.

Program management moved out of WASO and Regional Offices.

Seven Field Directors (Alaska, Western, Intermountain West,

Central, Southeast, Northeast, & National Capital).

in
A "National Leadership Council" comprised of the Director,

Deputy, WASO Associates, and Field Directors to provide

Servicewide direction and leadership.

An "NPS Management Council " comprised of second-tier NPS

management to support the National Leadership Council.

A desk officerfor each Field Director duty-stationed in Washington

to provide vital day-to-day organizational communication linkage.

16 "System Support Offices". These offices and park

superintendents will report to Field Directors.

Parks and System Support Offices to share services with one

another.

Partnership programs generally managed from System Support

Offices to provide services closer to the customer (e.g. Rivers &

Trails) and greater integration of all NPS programs.

Several new national program centers established to house services

that should remain centralized (e.g. administration of historic

preservation and grants programs, and tax act certification.)

Field managers more empowered in decision-making process and

through additional delegations of authorities and elimination of

reporting and review requirements.

Management overhead structure significantly reduced to facilitate

moving FTE's and authorities to parks.

Reengineering throughout NPS to increase our effectiveness at all

levels.

Transition: Great efforts already have been and will continue to be undertaken by the Service

to minimize disruption in programs and in employees ' lives to the extent possible. The plan was

carefully designed to avoid reductions-in-force (RIF) or extensive dislocation of employees. The

organizational chart will change significantly, but all existing central office locations will be

retained. Both short term cost and long term savings are being considered in implementing this

proposal, and a comprehensive transition plan has been developed under a process the Service

has undertaken called "Operation Future.

IV
Table of Contents

Acknowledgements i Preface Hi

EXECUTIVE SUMMARY 1

THE NATIONAL PARK SERVICES PLACE IN A CHANGING WORLD 4

GUIDING PRINCIPLES 5

MEETING THE GOALS OF THE NPS STRATEGIC PLAN 6

WILL THE PRESENT SYSTEM ALLOW US TO ACHIEVE THIS VISION? ... 10

TERMINOLOGY 15

RESTRUCTURING PLAN 17

ORGANIZATIONAL CONCEPT

BASIC ORGANIZATIONAL UNITS

RELATIONSHIPS BETWEEN FIELD UNITS

MANAGEMENT OVERVIEW

FIELD UNITS (parks, recreational areas, sites, monuments, etc.) 22

SYSTEM SUPPORT OFFICES 22

FIELD DIRECTORATE 31

NATIONAL PROGRAM SUPPORT CENTERS 34

HEADQUARTERS OFFICE (WASO) 40

NATIONAL LEADERSHIP COUNCIL 48

NPS MANAGEMENT COUNCIL 48

FIELD OFFICE /FIELD UNIT CLUSTER BOUNDARIES 49

TOPICAL AREAS 52

IMMEDIATE ACTION

HUMAN RESOURCES

PARTNERSHIP PROGRAMS

PROFESSIONAL PEER REVIEW AND ACCOUNTABILITY

HOW ARE PRIORITIES SET AND RESOURCES ALLOCATED

AND SHARED?

INFORMATION MANAGEMENT AND TELECOMMUNICATIONS

CONTRACTING

EMPLOYEE DEVELOPMENT AND CONTINUING EDUCATION

APPENDIX A: FTE ANALYSIS 60

APPENDIX B: SOURCE DOCUMENTS 65

Plan For Organizational Restructuring

EXECUTIVE SUMMARY

This new organizational structure for the National Park Service responds to the

Administration's National Performance Review — a bold attempt to make the federal service

more effective, responsive and innovative. In addition, the plan outlined here derives from

and builds upon earlier efforts of the National Park Service — the 21st Century Task Force,

the Vail Agenda and the Strategic Plan — to make substantive improvements in the

organization.

This plan represents an opportunity to position the Service to meet assertively the difficult

challenges of the future. Successfully fulfilling our mission of resource protection and public

service in spite of declining resources and increasing needs will require adapting to innovative ways of accomplishing critical work.

While the plan meets mandated FTE reallocation and reduction requirements, it also meets

the test of fundamental fairness. It does not affect specific offices, regions or States unduly,

but spreads the impacts of reorganization in a fair and balanced manner, without imposing an

unduly harsh impact on any State or region.

Because the National Park System has changed substantially since the current regional office

based organization was implemented in the 1930's, because the nature of our mission has

been dramatically expanded over time by Congress, because the threats to the National Park

System are increasing at an alarming rate and because financial resources cannot be expected

to increase dramatically in the foreseeable future, assertive action to change fundamentally

the way the Service accomplishes work is essential. A renewed organization is required if we are to protect America's heritage resources — what Americans value most about our common history and experience — in the future.

This plan dramatically reduces organizational overhead and places more adequate levels of

personnel and funding closer to the resources and customers being served. Personnel and

dollars will be distributed to ensure retention of the Service's professional capacity and to provide for its future improvement. This plan clusters field units and partnership programs

into ecosystem and cultural geographic groupings. It stresses team work and releases senior

executives from the distractions of daily operational management to focus upon providing

national direction and leadership. It broadens the responsibility for participation and

involvement in intra-agency decision-making. It shifts people and resources from central

offices to field units, partnership programs, and the system support offices that directly serve

clusters of parks.

The plan is designed to organizationally foster and to institutionalize the highly successful

inter-park, even region-wide, cooperative management methods already being practiced

informally by various managers in the National Park System. For example, the Service's

Western Region (WRO) has realized notable successes with various parks cooperating and
Plan For Organizational Restructuring

sharing resources (even across agency lines in some instances) in dealing with numerous

common operational responsibilities, problems and incidents, and in cooperatively planning

strategies for various operational programs and workloads, such as that accomplished by

WRO's Maintenance Advisory Committee. Other examples include the Olmsted Center for

Landscape Preservation in the Service's North Atlantic Region, which draws upon and

utilizes various regional and field unit professionals who pool their talents in addressing

cultural landscape issues throughout the Northeastern United States, and the Pacific

Northwest Region's multi-disciplinary, multi-park committees on GIS and wilderness

management. Other parks and regions have also benefitted from similarly notable successes by employing such cooperative approaches.

Under this plan National Park Service field units will be grouped into 16 clusters of

10-35 units apiece. Each cluster will be served by a system support office. The field units

and partnership programs staffs within each cluster are expected to maximize support for

each other in a cooperative, inter-dependent fashion. The 16 system support offices have

two primary roles: 1) to provide support for field unit operations and partnership programs,

and 2) to engage on a clusterwide basis in planning, cooperative management activities, and

technical assistance to field units and in carrying out partnership programs. System support

offices will vary in size depending on particular cluster needs and the types and extent of

services provided, but on average they will consist of 60 to 85 FTEs.

This plan is designed to ensure the retention of a strong force of professionals and technical

experts (such as scientists, engineers, architects, landscape architects, archaeologists and

historians) not only in parks but in system support offices as well. While park support will

be the main function of systems support office staff, they will benefit from ongoing

affiliation with their peers and will retain an important degree of objectivity and

independence from the line authority of park superintendents.

Each system support office will be supervised by a superintendent who reports to one of seven field directors. Five of theses field directors will each be responsible for two-three

clusters, with two additional field directors responsible for Alaska and for National Capital

Parks. Field directors will have line authority over each field unit Superintendent and system

support office superintendent within their area of responsibility. Their immediate staffs will

range from 20 to 25 FTEs each.

National program support centers will be maintained or established where it is determined

that a center meets three tests for consolidation of services: 1) the center would establish (or

maintain) a critical mass of specialized expertise for Servicewide use, 2) it would be

uneconomical to decentralize, and 3) better service to customers will result from centralized

service. If these tests are not met, the services will be decentralized to field units and/or

system support offices. All program centers will be under a managed system in which

customers have the option of choosing where some services are obtained in order to ensure high quality and accountability. The total number of FTEs in the national program centers

will be approximately 1500.
Plan For Organizational Restructuring

The National Park Service Headquarters Office will emphasize agency and program

leadership, policy and regulatory direction, and liaison with the Congress, the Department,

other federal agencies, and affiliated national level organizations. The Washington Office will

exercise less control and day-to-day direction of field offices by delegating key

responsibilities and accountability to organizational levels closer to field operations, while

maintaining overall, Servicewide accountability.

The Headquarters Office will be streamlined and will operate with a significantly reduced

staff. In addition to the Director and Deputy, there are five Associate Directors

(Administration, Cultural Resource Stewardship & Partnerships, Natural Resource

Stewardship & Science, Park Operations & Education, and Professional Services.) It is envisioned that the Headquarters Office will be comprised of between 250 to 300 FTEs.

The Director, Deputy Director, Headquarters associates, and Field Directors will serve on a newly constituted National Park Service National Leadership Council.

A comprehensive functional analysis, based on an extensive re-engineering and workload

analysis process developed for the Service under the auspices of "Operation Future," will be

completed during implementation to further define the specifics of this plan. Consequently,

the FTE ranges presented in this document are intended to provide a conceptual guide to the

level of staffing envisioned for the various organizational levels and entities. These should

be interpreted as typical, or average, and will be refined and determined more precisely for

each specific location during the workload re-engineering process undertaken during

implementation, within the overall FTE constraints on the Service.

Individual system support offices, for example, will vary considerably in size, from quite

small in the case of the Pacific Area office in Honolulu, to substantially larger in other

instances. Additionally, managers at all levels of the organization working collaboratively

will have considerable latitude and discretion on how best to utilize available FTE and other resources to meet their particular needs. More definitive answers to questions relating to particular program functions will also emerge during the implementation re-engineering

process, but the proposal generally contemplates that most programs will be managed at the

cluster level, with the cluster deciding how best to do so. Program management at the Field

Director and WASO Headquarters levels will be limited to policy and national and regional

budget strategy and accomplishment considerations. Overall accountability for field

operations will lie with the Field Director; Servicewide program accountability will lie with

the appropriate Associate Director.

Conceptually this plan provides a broad outline for a renewed National Park Service - for an organization deeply and firmly grounded in the strength of its employees which represent our greatest strength. The organization envisioned here will be built on professionalism,

competence, trust and respect and will enable the Service to move to new levels of

excellence in meeting the challenges of the 21st Century.
Plan For Organizational Restructuring

THE NATIONAL PARK SERVICES PLACE IN A CHANGING WORLD

For many years, the National Park Service has recognized the need to adapt to the new

demands and increasing challenges of a rapidly changing world. The 21st Century Task

Force Report, the Vail Agenda, the Strategic Plan and other National Park Service

documents and reports prepared in the past decade all echo common themes and reflect the

Service's growing desire to meet those challenges.

The National Performance Review explicitly supports many of the same themes and rationale

for change that provided the foundation of earlier National Park Service efforts. Current

requirements for streamlining and restructuring in the Federal sector give the National Park

Service a unique opportunity to improve its ability to accomplish its preservation and

protection mission into the future.

This plan responds to conditions that are vastly different from those that existed when the

basic current organizational structure was established. Today, throughout the country, public

and private financial resources are becoming increasingly scarce and preservation and

protection issues more complex and expensive. Attracting the skilled employees we will need

in the future to ensure the protection and vitality of the National Park System and the

surrounding landscape will be a continual challenge in an environment where competition to secure human and financial resources is intense. Success in this difficult environment

requires that the National Park Service develop new skills and different ways to accomplish

work. Effective cooperation and collaboration with an expanded array of partners and

constituents are essential survival strategies, requiring artful collaboration and negotiation

with various community organizations, agencies and other "stakeholders."

To further complicate the problem, there is more pressure from a contemporary population to use the national parks in ways that often conflict with the purposes for which the parks were

created. There is an ever increasing array of potentially competing uses. It will take a strong

and focused organization to keep the National Park Service vision vibrant and active into the

future.

The current national concern for the environmental and social health of the nation has made

us consider how the National Park Service can provide stronger leadership and vision. The

need for Americans to know and understand the natural and cultural foundations of national

unity becomes more essential as socio-economic diversity and complexity increase. The

National Park Service has the potential to exert a very positive educational influence in these

areas, a potential as yet largely unfulfilled.

Our organization's responsibilities are also changing. Major system additions have not been

accompanied by adequate management resources. An aging field unit infrastructure

compounds the problems associated with inadequate base funds. The complexity of managing

a highly diverse National Park System, associated programs, and partnerships has stressed our traditional organizational structure to its limits.
Plan For Organizational Restructuring

At the same time, a growing population moves community and industrial development closer

to previously isolated field units, bringing with them threats to field unit resources in the

form of increased air and water pollution and increased use and abuse of park resources. This encroachment raises questions regarding the proper utilization of field unit land and the

appropriate level of protection that should be achieved.

External threats to field units have made the Service acutely aware of the gaps in its information concerning threatened field unit resources and avenues of protection. The need

for solid scientific knowledge requires focused collaboration with universities and other land

managing and scientific agencies.

To reflect our national diversity the National Park Service will expand its vision to include a much more diverse population of Americans. The Service must address a different mix of

visitor values and needs. It is equally imperative that the Service work toward accomplishing

more diversity in its own workforce, and we have pledged that the process of downsizing and

restructuring results in no net loss in diversity during implementation.

Within this changing external and internal context, the National Park Service has already

been asking the right questions. How can the National Park Service become a more vital,

dynamic, and effective organization? How can the employees of the National Park Service

participate more in strengthening their organization as well as their own futures? How can

the National Park Service achieve the level of excellence in all areas that will enable us to meet future challenges?

This plan proposes a way to achieve those changes and improvements, which already are supported broadly within the National Park Service. It is an attempt to bring definition to our

future.

GUIDING PRINCIPLES

This newly defined organizational structure for the National Park Service will: 1) be

EFFECTIVE, 2) be RESOURCE-BASED, 3) enhance our EDUCATIONAL capacity, 4)

strengthen PARTNERSHIPS, 5) be REALISTIC in establishing priorities in the face of

declining resources and increasing park management demands for expanded services, 6)

meet FTE REDUCTION & REALLOCATION requirements, 7) develop and utilize

EMPLOYEE potential and foster employee diversity, 8) enhance PROFESSIONALISM

within the Service, 9) improve MANAGEMENT by reducing overhead structure and placing resources at the lowest practical level in the organization, and 10) be IMPLEMENTABLE,

i.e., the plan can be explained, justified, and understood. These are the guiding principles

under which this plan was developed and tested. Undoubtedly, it will be changed and

improved in some of its details during the implementation phase, but subsequent

modifications should hold true to these guiding principles.
Plan For Organizational Restructuring

The principles of the National Park Service Strategic Plan provide a powerful vision of our

future, and provided direction for decisions made in this plan.

The plan is also designed to be fair and effective and to strengthen National Park Service

management. The plan ensures that certain states or regions of the country were not unduly

affected and that the impacts of FTE reductions were spread equitably. Leading

professionals, such as landscape architects, architects, engineers, historians, archaeologists,

tourism specialists, and rivers and trails planners, will generally remain in existing office

locations to provide services critical to adequately protecting historic and natural resources in

all areas of the United States. A central goal of this plan is to create an organization that can better champion field unit

values and programs in the broad and increasingly competitive arena of public opinion and

policy now and in the future, while maintaining an adequate "critical mass" of professionals

at systems office and central office locations.

The plan reflects the National Park Service's mission of service to the American people and

to people from around the world who come to the parks and participate in our programs.

This plan is intended to improve the quality of service we provide by enhancing the resources

available to field units and related programs.

The National Park Service must allocate as much as possible of our human and financial resources to those parts of the organization where "public value" is created and where

services are delivered. As a part of his approval of this plan, the Secretary of the Interior

stipulated that the Service will have to reduce its central office staff by about 1300 FTE, and

that as a result of doing so the Service will be relieved of future FTE reductions so long as those FTE are placed in the field or directly support field or partnership programs.

MEETING THE GOALS OF THE NPS STRATEGIC PLAN

The National Park Service strategic plan (Creating Our Future, published in August 1994)

envisions the National Park Service as

• an exemplary steward, safeguarding the nation's most significant natural and cultural resources for the benefit of this and future generations

•

•

a guide and teacher, fostering a broad national constituency for protecting the nation's

natural and cultural heritage

an advocate and partner, helping extend the benefits of healthy natural and cultural

systems to all of society
Plan For Organizational Restructuring

The strategic plan recognizes that the public issues related to the mission of the National

Park Service are becoming increasingly complex and demanding greater integration of the

agency's three roles as steward, teacher, and partner. While calling for renewed efforts in

dealing with unprecedented threats, the plan also acknowledges that the agency is facing severe fiscal limitations, which are driving additional changes in the way the National Park

Service operates its parks and programs. Within this context the plan identifies seven broad

goals for the National Park Service for the foreseeable future:

• Establish a scientific/scholarly basis for resource management decisions.

• Strengthen protection of park resources.

• Achieve sustainability in all park operations and development.

• Help people forge emotional, intellectual, and recreational ties with their natural and

cultural heritage.

• Lead in a national initiative to strengthen the recognition and perpetuation of heritage resources and their public benefits.

• Become a more responsive, efficient, and accountable organization.

• Pursue maximum public benefit through contracts, cooperative agreements,

contributions, and other alternative approaches to support park operations.

The proposal for restructuring the National Park Service focuses on changing the agency's

structure and culture to align them with the vision set forth in the strategic plan. As such, it

is a direct response to the sixth goal of the strategic plan: to become a more responsive,

efficient, and accountable organization. The restructured organization that will result from

this activity will be better positioned to achieve all the agency's strategic goals. The

proposal will strengthen our capability for teamwork, both within the organization and

between the National Park Service and others, which will be critical to improving our

effectiveness as steward, educator, and partner and to maximizing our efficiency in providing

public value. More specifically, the restructuring proposal will help the National Park

Service achieve its full set of strategic goals as follows:

Establish a scientific/scholarly basis for resource management decisions.

The National Park Service is organized along ecosystem and historical lines, with

resources broadly grouped together. Expertise about particular kinds of resources is concentrated in park clusters.
Plan For Organizational Restructuring

Enhanced employee training and career development opportunities, including

assistance with completion of undergraduate and graduate degrees, increases staff

professionalism and familiarity with state-of-the-art concepts in resource management.

Additional specialized professional capability is available through the system support

offices and through mutually beneficial partnerships with other agencies, universities,

and professional organizations.

Visiting senior scientists will help the Service forge closer collaborative efforts with

the National Biological Survey and other national research programs.

Development of national program centers for natural and cultural resource programs

provide expert scientific and research assistance to parks and partners.

Strengthen protection of park resources.

Jointly setting short-term goals and long-term strategic objectives for whole systems

and park clusters enhances opportunities for protecting park resources in their full ecological and cultural contexts.

Stewardship teams of natural and cultural resource specialists, scientists, and

researchers integrate research, resource management, resource protection,

interpretation, concessions, and maintenance activities.

Placing more professional staff in parks puts them where many important decisions

are encountered and made.

Greater integration with external partnership programs enlarges the "tool kit"

available to help parks with regional or ecosystem management approaches.

Achieve sustainability in all park operations and development.

Jointly setting short-range goals and long-term strategic objectives for whole systems

and park clusters enhances opportunities for achieving sustainable operations and

development.

Employee training helps ensure that sustainability is fully considered in all aspects of

operations and development.

Help people forge emotional, intellectual, and recreational ties with their natural and

cultural heritage.

Added emphasis on the Service's education programs leads to a wide variety of on- and off-site educational activities.
Plan For Organizational Restructuring

Hiring additional education specialists and working cooperatively with academic

institutions creates greater capability to develop educational programs and services.

Sharing educational staff and ideas across field unit, program, and system boundaries

creates a greater pool of talent to support the development of educational programs.

Enhanced employee training and career development opportunities, including

assistance with completion of undergraduate and graduate degrees, increases staff

professionalism and familiarity with state-of-the-art concepts in education.

Lead in a national initiative to strengthen the recognition and perpetuation of heritage resources and their public benefits.

Integration of external partnership programs into system offices and park clusters

strengthens the ability of programs and parks to work together and to provide better

service to the public.

Field leadership is responsible for developing and fostering partnerships. Field

superintendents become field representatives for all NPS programs, not just for park

management.

Become a more responsive, efficient, and accountable organization.

Placing more employees in field units enhances capability to respond to visitor and

resource issues, thus improving service to visitors and protection of resources.

Sharing expert staff and other resources within clusters and with other agencies and

academic institutions brings a greater diversity of expertise to each park or field unit

than would otherwise be possible if parks were managed on a one-by-one basis. (Such

support will be especially helpful for small parks.)

Because employees represent and support all parks and programs, not simply their

own work units, accountability is both lateral (among peers) and vertical (between

employees and supervisors), instead of simply vertical.

An expanded program of managerial training, team-building, collaborative decision

making, and customer-focused management provides employees with the skills they

need to work cooperatively to resolve complex issues.

An "exemplary employee" concept recognizes and fosters expertise in specific

subjects.
Plan For Organizational Restructuring

Pursue maximum public benefit through contracts, cooperative agreements,

contributions, and other alternative approaches to support park operations.

Greater emphasis on working with partners, and placing the corresponding

organizational elements in system offices and park clusters, increases opportunities to develop relationships and to improve existing alternative approaches to support park

operations.

Increased cooperation and coordination with other federal, state, and local agencies

and organizations enhances opportunities to carry out the NPS mission.

WILL THE PRESENT SYSTEM ALLOW US TO ACHIEVE THIS VISION?

The basic model of our present organizational structure was established in 1934. Today the

National Park Service has grown to 367 field units organized into 10 regions, each with a regional

director, a Washington Office with both policy and programmatic functions, and various

professional and technical centers located across the country. Authority and resources generally

move in a hierarchical fashion from central offices to field units. This system served the Service

and its mission well over many decades. Over time, however, it has become outmoded and

increasingly incapable of responding to today's difficult fiscal constraints and the Service's vastly

expanded mission and responsibilities.

The American public now has different expectations about the role of government in a democracy.

An organization that encourages greater involvement and participation in public issues is required.

In addition, the public requires more responsive services and more efficient use of public tax

dollars.

National Park Service employees at all levels have worked with dedication and energy for many

years within a system that needs now to adapt to changed times and circumstances. This agency

has a dedicated cadre of management and staff in headquarters and other central offices who have

worked over many years in support of frontline field managers. This plan attempts to encourage

and organizationally strengthen the benefits of their talents and capabilities.

Undoubtedly, much improvement could be made by "downsizing in place" and significant change

might well be achieved by simply re-engineering specific processes within our existing

organizational structure. There are certainly less difficult and less challenging paths than the one

presented in this plan. However, the fundamental changes required to create a responsive dynamic

agency would not occur.

If the current structure remains essentially unchanged, internal and external collaboration will

remain haphazard, decision making and authority will continue to be overcentralized, and

responsibility and accountability will continue to be unacceptably diffused. Enormous amounts of

time, money, and effort will continue to be expended on work that does not enhance our ability to

10
Plan For Organizational Restructuring

protect field unit resources, promote field unit and conservation values, and provide visitor and

constituent services.

For real change to occur, empowerment, influence, and increased authority must be transferred to the elements of the organization closest to "customers" and resources. Without a substantially

altered means of sharing authority and broadening participation and involvement in fundamental

decisions, the momentum for change and improvement will not be generated.

In today's extremely competitive environment the inefficiencies of the current organization detract

from our ability to accomplish our mission. Because resources are not likely to increase in the

foreseeable future, the National Park Service must make major changes in how it accomplishes its essential work or risk failing in the vital mission to protect National Park System resources and

values. Much of the current dissatisfaction within the Service is related to this frustration with our

inability to meet increasingly difficult and complex challenges and responsibilities. We do not

believe this inability can be adequately addressed within the current structure. How does this proposal further National Park Service goals and increase our

ability to meet future challenges?

The proposed plan meets the tests of the 10 GUIDING PRINCIPLES established by the

Reorganization Work Group in very specific ways. Some of the most important are summarized

below.

1 . How is EFFECTIVENESS enhanced?

• By connecting field units and programs more closely to encourage collaboration and

cooperation.

• By linking the success of each field unit within a cluster to the success of the others.

• By explicitly expanding the role of field units to be national park field stations with

broad external responsibilities and responsibility for National Park System advocacy.

• By placing control of more resources and services with field units and programs at the

local level.

• By providing field units and programs with market options to secure services if they

cannot be obtained from central service providers efficiently or economically.

• By placing "doing" functions closer to the point of delivery and removing them from

central offices when practical and appropriate.

• By shifting the responsibilities of senior management from day-to-day operational

activities to strategic challenges such as external relationships, development of partnerships

11
Plan For Organizational Restructuring

and constituencies, policy development, goal and direction setting and National Park System

advocacy.

• By providing flexibility for field units to respond to changing needs and challenges

through the "cluster" organization which can quickly marshal shared resources to respond to changes and requirements.

2. How is the Service's EDUCATION capacity increased?

• By encouraging educational work across field unit, program, and system boundaries,

which will create greater pools of talent to support the development of educational

programs.

• By specifying broader responsibility and increasing staff at local levels, which will create a greater ability to develop educational programs and services and to fulfill our role as "educators."

• By specifically emphasizing educational activities in all facets of park operations.

3. How will the development of PARTNERSHIPS be encouraged?

• By integrating partnership programs and activities with field units in the clusters.

• By making superintendents, systems support office superintendents, and field directors

explicitly responsible for developing and fostering partnerships and external relationships.

• By increasing capacity (additional staff) to pursue partnerships in the system support

offices, partnership program offices and field units.

• By reducing partnership regulation functions to the extent feasible.

4. How is a RESOURCE-BASED organization strengthened?

• By retaining Associate Directors specifically responsible for natural and for cultural resources management and stewardship.

• By organizing systems support offices on the basis of natural ecosystems and associations

of prehistoric, historic, and contemporary cultures.

• By retaining and simplifying strong vertical lines of authority.

• By strengthening lateral accountability and the involvement of peers in field unit

oversight role.

12
Plan For Organizational Restructuring

• By establishing specific responsibilities in each field director's office and each system

support office for both natural and cultural resource management.

• By retaining strong professional capacity in the systems support offices and increasing

accountability to field units and programs.

• By increasing professional staff at the field unit level where most resource issues are encountered and decisions are made.

• By requiring superintendents to be actively involved with external partners and issues.

5. Is the plan REALISTIC in providing a set of priorities that will reflect real needs in a climate of declining resources and increasing demands and complexity?

• Establishes a process of "field generated" priorities that will more accurately reflect the

need to provide key services to the public and to protect resources.

• Defines a structure that places decision-making authority and accountability closer to customers and resources.

• Creates strong horizontal accountability within clusters for carrying out mutually

established priorities.

6. How will the plan meet FTE REDUCTION requirements?

• By shifting human and financial resources as close to the point of delivery as possible,

moving "doing" functions from central offices to field offices and field units whenever

possible.

• By reducing unnecessary and duplicative layers of review and control.

• By moving significant numbers of FTE from central offices to the field when fully

implemented.

7. How does the plan improve the development and utilization of EMPLOYEES and foster

diversity within the Service?

• By emphasizing the critical role all employees will play in the success of this plan and

the critical need for enhanced employee training.

• By providing broader exposure and opportunity for all employees to work across field

unit, program, and office boundaries, thus providing for greater employee development and

involvement at all levels.

13
Plan For Organizational Restructuring

• By providing more human and financial resources at the field unit and cluster levels,

increasing opportunities to draw upon the diversity of local areas nationwide.

How is PROFESSIONALISM enhanced?

• By encouraging a team approach to decision making at all levels which will involve a broad range of managers and specialists.

• By charging the clusters' stewardship teams to provide professional collaboration and

support through universities and outside organizations.

• By placing strong emphasis on ongoing employee education, training and development.

• By requiring increased interaction and collaboration among a broad array of National

Park Service staff and managers as well as external organizations.

• By utilizing capabilities of systems support office superintendents and field directors to obtain expertise and support from universities and other agencies and organizations.

• By providing increased capacity (people) to pursue partnerships with sources of

professional and technical expertise.

• By integrating more professional/technical staff into field unit and program offices,

closer to customers and resources.

• By consolidating and strengthening the professional information management function

and emphasizing its critical role in future effectiveness.

9. How is MANAGEMENT improved and accountability ensured?

• By removing extraneous layers of control and review and refocusing work on mission

accomplishment, within reduced associated organizational overhead costs.

• By urging, as quickly as possible, the adoption of the recommendations prepared by the

Service concerning delegations of authority and the reduction and elimination of

unnecessary reports and regulations.

• By retaining strong "field directors" responsible for the supervision and direction of

managers within the clusters and by retaining resource allocation authority at that level.

• By employing a participative system for setting priorities within the clusters which

ensures that all interests have been fully considered.

14
Plan For Organizational Restructuring

• By building strong lateral relationships including peer evaluation and project reviews

within clusters which will be based on more intimate knowledge and understanding of

resources, area issues, management actions and decisions.

• By strengthening vertical lines of authority and more clearly isolating accountability for

appropriate performance.

• By retaining strong professional capacity in the systems support offices to provide project

review and evaluation as well as direct services.

10. Can the plan be IMPLEMENTED? Can it be explained, justified, understood, and acted

upon?

• Presents a defensible plan with developed FTE reductions and reallocations, costs,

organizational boundaries, functional definitions and organization charts, and

implementation concepts.

• Incorporates and/or responds to substantial feedback from throughout the organization;

substantial changes have been made in the final document to address concerns of all levels

of the organization.

TERMINOLOGY

What is Entrepreneurial Management?

This plan will place great reliance upon entrepreneurial Park Service management. While

"entrepreneurial" typically applies to private, for-profit ventures, the term is not used in that

context in this document. For purposes of this presentation the term embraces the application of

effective management skills in two arenas.

First, entrepreneurial managers understand and productively utilize the established National Park

Service structure and its capabilities to promote the goals of the management field unit. They

clearly understand and accurately articulate their needs and effectively access all available sources of assistance within the agency to address those needs. They understand that getting things done in collaboration with others is a more sustainable approach than accomplishing things through

independent, authoritarian approaches.

Secondly, entrepreneurial managers learn the structure and capabilities of other government, non- governmental organizations, private industry and interest group structures. They identify where the

missions or motivations of those groups intersect with the unsatisfied needs of their management

field unit. Where these groups can support field units and park service programs and satisfy their

own interests without compromising National Park Service resources or resource values a successful entrepreneurial match is activated.

15
Plan For Organizational Restructuring

Examples of successes in entrepreneurial management are available throughout the National Park

Service. They range from a modest donation of climbing rescue equipment in lieu of efforts to place a commemorative plaque on a mountain ledge, to the "Park Foundations" which generate

millions of dollars in donated support to specific field units.

What is Brokering?

For the purposes of this plan, brokering involves the application of personal diplomacy and

expertise in mobilizing human and financial resources from disparate sources to accomplish a shared objective.

Historically, brokering involved exchanges where each party attempted to secure an advantage over

the other. A good "horse trader" advanced their personal interest while convincing the other party

that they got the better deal. This is not the paradigm advanced here. It is not sustainable over

time.

The concept of brokering involves very active ambassadorial efforts to ensure that all parties

within a cluster of field units, as well as potential cooperators outside the National Park Service,

work to understand the values and interests of one another. As that understanding is established, an

effective broker links the capabilities of one party with the needs of another in a manner which

demonstrates that shared interests can be advanced through mutual support while independent

values remain respected.

Clearly, there is an element of "horse trading" in these dynamics. However, the key to sustainable

brokering is understanding that temporary transfers of capability from one party to another can

yield long term benefits to the group - and all individual parties within that group. These concepts

are fundamental to this proposed reorganization. The performance appraisal of future managers

will include their demonstration of entrepreneurial management and brokering skills as a key

element.

Exemplary Employees

While this plan focuses heavily upon the relationships and responsibilities of superintendents and

directors, it is particularly important to recognize that the real work of the organization is performed by employees who have other organizational titles. The skilled craftsman, the expert

civil war historian, the botanist conducting pioneering work in alpine revegetation, the adept

contracting officer, the particularly sensitive planner or designer, the experienced maintenance

person, and many, many, others are the vital forces of the National Park Service. The

interdependent cluster organization is a vehicle for broader and more open application of the talents

of these exceptional "champions" beyond their individual field unit and office. With the increased

opportunity to identify and apply these individual sources of special expertise and skill comes a greater ability to utilize, support and celebrate their contributions to the organization.

16
Plan For Organizational Restructuring

RESTRUCTURING PLAN

ORGANIZATIONAL CONCEPT

This plan will significantly reduce organizational overhead and place more personnel and funding

closer to the resources and customers being served. Personnel and dollars will be distributed in

such a manner, however, to ensure retention of the National Park Service's professional capacity

and to provide for its future improvement. This plan clusters field units and partnership programs

along ecosystem and cultural/geographic context lines. It stresses team work and releases senior

executives from the distractions of daily operational management to focus upon developing and

effecting national policy. It shifts people and resources from central offices to field units,

partnership programs and the systems support offices that serve clusters. It recognizes that

specialization and an ever-increasing variety of expertise is needed to successfully carry out field

unit and partnership programs.

Under this organizational structure, WASO will focus on providing program direction, policy

guidance, and communication with the Congress, OMB and other agencies. Clusters of park units

will be responsible for setting their own project priorities within the cluster and for program

management. Budgets will flow from WASO through Field Directors to parks and System Support

Offices, as applicable. Funds for national program offices will be allocated from WASO in some

cases and from other offices requesting work in other cases. Location of technical program

specialists will vary from program to program (and from cluster to cluster) dependent upon the

need, with possible locations being in the parks, System Support Offices and/or national program

support centers. Generally, national program centers will be staffed to provide

technical/professional expertise and program support and execution for clusters and parks upon

request as necessary or appropriate to supplement capabilities available or not available in a

cluster's System Support Office or otherwise in the cluster. In some instances, specialty work for

which that office was created will go directly to that office.

BASIC ORGANIZATIONAL UNITS

National Park System field units will be grouped into 16 clusters of 10-35 field units each based on

ecological, cultural and geographical relationships. All park units will be included in a cluster.

The dashed lines on the map included with this plan, however, indicate only generally

conceptualized ecological/cultural/geographic cluster boundaries, with precise boundaries and park

groupings to be determined by Field Directors and field units themselves during implementation.

Each cluster will be served by a systems support office. The field units and partnership programs

within each cluster will be staffed and expected to maximize support for each other in an interdependent fashion.

Field unit and system support office superintendents will report to one of seven field directors.

Five field directors are each responsible for 2-3 clusters, with two additional field directors

17
Plan For Organizational Restructuring

responsible for the Alaska and National Capital clusters. Field directors will report to the Deputy

Director. National program support centers report to WASO associate directors. Together with the

Director, Deputy Director and the associate directors, the field directors form the National

Leadership Council for the National Park Service.

This proposal envisions a great deal of latitude and flexibility with respect to precise organizational

design for individual Field Directorates, System Support Offices and clusters in line with the

overall concepts and FTE constraints of this plan.

The contemplated desk officer positions in the Field Directors' offices and in WASO are intended

to provide for day-to-day organizational linkage through a keyperson or "desk officer. " The

cluster desk officers provide a representative or point of contact for each cluster duty-stationed in

the Field Director's office. The Field Director's desk officer provides a representative for that

field director duty-stationed in WASO Headquarters. As the plan indicates (see "Employee

Development" section) these positions are also intended to be rotational and utilized in line with

career development of prospective managers. The National Leadership Council will determine the

precise functions of these desk officer positions.

RELATIONSHIP BETWEEN FIELD UNITS

System support offices will serve field units by directly providing and brokering professional,

technical and administrative services; by providing technical assistance to conservation partners

interested in the preservation of natural, cultural, and recreational resources; by acting as a liaison

with other agencies and interests; and by participating in ecosystem management planning and

partnerships throughout the cluster.

Wherever appropriate, staff providing direct service to field units will be located in field units.

System support office staff will spend much of their time working both inside and outside the

National Park Service to obtain those services which are beyond the capabilities of field unit staff.

The system support office superintendent and field unit superintendents working under the guidance

of the field director form the decision-making group for their cluster. Interdisciplinary groups of

managers and specialists in field units and system support offices will assemble frequently to handle both crises and major cluster issues in order to strengthen the decision-making process and

stewardship programs. This plan does not prescribe a particular way for the system support office

superintendents and the field unit superintendents to organize and conduct their collective affairs.

Neither does the plan necessarily contemplate disruption of successful existing arrangements for

groupings of sites or site unit managers, where appropriate, under an area superintendent for

economy or efficiency (e.g. Flagstaff group, Canyonlands group, Gateway, NCR groupings, etc.)

Those decisions would ultimately reside with the clusters themselves and their respective Field

Directors.

18
zoH

«<NZoowu>

asw

fit- -1zoHZQWO

ft. O

ft. *a

w

aTM

r E - « Q Z c _ ft,

•JuC c o u

u- 9*

UE£

ex£ £ ei u - C - 1

II

CO

u

C-Eu

q e- o 1

(J

jjj 5

ft.

w-i 6

'5

U o g | § c E5 1 E

<£ 8

ii g £

T3 5 e B i

DCi £ a

n e a i c O E a u a U § g §

00

'-» •o 5 ^ u u. o

S3 ii 1

ft. u. ft, J -J
Plan For Organizational Restructuring

The specific nature and mix of field units within a cluster as well as the nature of the specific

decisions being made (e.g., prioritizing requests, allocating resources) ensure variability. However,

some of the responsibilities common to all clusters will include:

• Jointly setting short-range (1-5 year) goals and more long-term strategic objectives for the

cluster as a whole, assigning responsibility and monitoring progress.

• Managing a written, dynamic contract for the distribution of support services within the

cluster, as well as between clusters. This involves routine evaluation and, where

appropriate, reallocation or reassignment of resources. Inherent in accepting an allocation of

shared resources is the responsibility to provide services to others.

• Proactive "brokering" by all parties to find and/or supply support for all field units within

the cluster, for field units and offices in other clusters, and among all external cooperators,

neighbors, interest groups, non-governmental organizations, and other governmental

agencies or jurisdictions, both federal and local.

In this plan the 16 clusters are also supported by national program centers for those functions that

require a Servicewide focus or are most efficiently performed in a centralized location. The

Washington Office provides agency leadership, policy direction, program advocacy, and other

appropriate "steering" functions.

Under the proposed cluster concept, small field units will be active participants in the self-directed

cluster and their associated system support office. While it is unrealistic to expect that the majority

of small field units will be able to contribute as much in the way of staff or equipment as larger

field units, small field units will benefit from the association in the following ways:

• Field unit managers and key staff will be more easily mentored by senior managers and

specialists.

• Small field units will be part of an interactive, collaborative group rather than an isolated

entity. Their role as "field units of the National Park Service" will be enhanced.

• New field unit managers will enter as full partners with an equal voice into an established

support network rather than having to develop one over time.

• There will be an increased chance for personal growth by watching, interacting with, and

accepting group assignments and activities within this collaborative partnership.

• Managers of small field units will realize increased influence and exposure due to rotating

membership on cluster "steering committees". Small field units will have an equal voice in

distribution of cluster resources.

20
Plan For Organizational Restructuring

More structured opportunities will exist to "sell" the needs of a small area and gather

support and help.

Access to sources of support, both inside and outside the National Park Service, will be

more direct and less ambiguous.

Managers within a cluster will be more knowledgeable of the relative needs and capabilities

of each other, increasing recognition of the values and importance of smaller areas.

The support role of larger field units to smaller ones and each other will be more

formalized, and all managers will be evaluated upon their efforts to support and help others

succeed

.

21
Plan For Organizational Restructuring

MANAGEMENT OVERVIEW

FIELD UNITS

This plan proposes that more staff and dollars be moved to the field unit level from redirected resources resulting from consolidation and streamlining efforts.

Not all field units have the same needs and capabilities. This plan places different functions and

specialists in field units based on their various primary needs with functions and specialists shared

among the field units within the cluster. Brokering will take place among field units and also

between field units and the system support office, because they will be dependent on each for

different services. Each field unit manager must operate as a team player within the cluster.

Managers will be evaluated based on performance in supporting the whole cluster through sharing resources and expertise as well as on field unit-specific performance.

The role of field units will be expanded to encompass the broader National Park Service mandate,

with each field unit actively supporting the larger system. Each field unit headquarters is viewed

as a field office for the entire National Park Service. Field unit managers will be responsible for

both field unit stewardship and a more comprehensive understanding of broader National Park

Service programs.

Under this plan field unit managers have four interrelated responsibilities — within the field unit,

adjacent to the field unit, environmental leadership within their field unit's area of influence, and

heritage education. This approach matches the roles of steward, guide/teacher and advocate/partner

as defined in the National Park Service Strategic Plan. Active involvement in local decision-making

processes gives the National Park Service a higher profile and leadership presence in adjacent

communities and provides the agency with a stronger voice on various land use and sustainability

issues. Working at the community level also helps build a national conservation ethic and creates a greater sense of ownership and commitment to protecting natural, cultural, and recreational

values while participating in economic viability issues. To achieve this goal, the National Park

Service must redefine and retrain our field managers to play expanded leadership roles.

SYSTEMS SUPPORT OFFICES

The 16 system support offices have two primary roles: 1) to provide support for field unit

operations and partnership programs, and 2) to engage on a clusterwide basis in planning,

cooperative management activities, and technical assistance to field units and in carrying out

partnership programs. In the support role, the Systems Office only directly provides those services

not reasonably available in the field units or secured from other sources. Each field unit will

contribute its particular resources to the cluster as it can. All field units will depend upon the other

field units in the cluster for mutual assistance — even large field units will not be independent of

the cluster. Such structured dependence maximizes sustained organizational efficiencies within the

cluster, particularly in support of smaller field units.

22
Plan For Organizational Restructuring

Each system support office is headed by a system support office superintendent, who reports to the

field director, with line authority over a staff of approximately 60-85 people on average. Most of

these staff are located in the primary system support office, but there may be small satellite offices

(e.g. - Caribbean) if it would increase efficiency. This may be particularly true where a cluster covers a large geographic area.

System support office superintendents will not have line authority over the field units but have

equal status with field unit superintendents. In some situations, a system support office or one of

its satellites may be co-located with a field unit office. Although a "typical" systems support office

staffing scenario is provided in this report, the actual size and staffing composition of each system

support office will depend on cluster size, availability of specialists on field unit staffs, and the

management approach of the cluster. Nor can any system support office "stand alone." Each will

depend upon staff assigned to field units and national program centers for certain support

functions. Under this plan, field units will specialize in different areas of expertise depending on where each respective specialty adds the most to the cluster as a whole.

Under the system support office concept, many administrative functions could be located in field

units, with considerable sharing of administrative services on a multi-unit or cluster- wide basis.

Some administrative functions could be consolidated in system support offices or in administrative

centers, or, where efficiency could be improved without diminishing customer service,

consolidated on a multi-agency basis.

There will also be a strong presence of external partnership programs in each cluster in order for

historic preservation, recreation, and conservation assistance to be meaningfully incorporated with

other National Park Service programs.

Each cluster integrates the following external partnership programs:

• Rivers, Trails and Conservation Assistance

• National Heritage Area Assistance

• Heritage Education and Outreach Activities

• Long-Distance Trail Studies

• National Historic and National Natural Landmarks Identification, Monitoring, Reporting,

and Providing Technical Assistance to Owners of National Historic Landmarks and National

Natural Landmarks Government Program

• Archeological Public Education and Outreach

• Technical Assistance/Training in Preservation Management Methods and Techniques

• Section 110 and Programmatic Assistance to the Public Agencies and Indian Tribes for the

Development of their Cultural Resources Management Programs

• Land and Water Conservation Fund and Urban Park And Recreation Recovery Act grants

(a determination will be made during implementation on whether LWCF and UPARR

should be centralized in one location, consolidated in three clusters, or further

decentralized)

23
Plan For Organizational Restructuring

This integrated field partnership programs concept will provide "a tool kit" with all the techniques

appropriate for providing National Park Service assistance in regional planning and ecosystem

management. The partnership programs seek to assist citizen groups and all levels of government

in community-based conservation, preservation and recreation programs. Where partnership

conservation/preservation assistance work demands that staff be available directly within a community, small satellite partnership offices may be temporarily established, similar to those the

Rivers, Trails, and Conservation Assistance program has now. This plan distinguishes between

partnership programs that are formal and mandated and other numerous and diverse partnerships

that occur throughout the organization with varying degrees of formality.

As an interim measure, the Service's existing cultural preservation centers (North Atlantic Cultural

Resource Center, Midwest Archeological Center, Western Archeological and Conservation Center,

Southwest Cultural Resources Center, and Southeast Archeological Center) will remain in their

current locations, but will be combined organizationally with and will report to the System Support

Office established for the respective cluster where each center currently exists. They will likely,

however, continue to provide support more broadly, beyond that particular cluster's boundaries, as determined by field units who wish to seek their services. Some project level archaeologists and

other professionals may be best located in field units to provide day-to-day support to field unit

operations and projects. The decision on the specific role, function, and perhaps specialty, of the

archaeological and preservation centers will be determined after the completion of functional

reviews of each organization during the implementation process.

The Service has been determined that each System Support Office that serves a cluster containing

parks with wilderness designations (or proposed designations) should have a designated wilderness

coordinator, either an employee duty-stationed in the System Support Office, or a parks wilderness

coordinator designated to serve in that capacity for the cluster as a whole.

The NPS Lands Task Force has recommended that the Service's land resources program be

organizationally located in a national program center, with eight full service land resources support

offices to be co-located with eight System Support Offices for administrative support. In addition,

project offices would continue to be located as necessary at parks, where warranted by active land

acquisition programs. The eight lands program support offices and any project offices would

provide land acquisition and lands related support and advice to parks. Land protection planning

will be conducted by field units.

The following section describes in more detail the specific functions that will exist within a typical

system support office. All system support offices will adhere to a standard organization with

respect to establishing three "Team Coordinator" positions to supervise three teams as described

below. Staffing and FTEs indicated for the make-up of those teams, however, are intended to be

illustrative rather than prescriptive, since each cluster's management team will have the flexibility to organize and staff the mix and delivery of services to meet the particular needs of that cluster's

field units and partnership programs.

24
o U

fa.

fa. OHO

a.

o-sH

>-09

tu

y ° wH<5

too

oooI—3o E C e C o .2 o | § > g on cd <D > K £ WJ *- *-

<u £ o

c/) u. b* < H <

t9 ?Tn

—i o -a ft ^ ttl ^ ;- £ £ cj " S? d I 3 c o o -3 £ .£ «

<U on 3 oo Ph |Jh oi— U cw

b" • = a 1 | u u

CQ c II

%?,

I"

I?o H

reO 2

oo oo

00 o
Plan For Organizational Restructuring

The contemplated system support office teams are envisioned as "flat" organizationally, but can be

structured as each cluster sees fit, in keeping with the overall goal of achieving a 1:15 supervisory

ratio.

Management Direction: The system support office superintendent will supervise the system

support office and participate fully with other superintendents in the cluster as a member of the

cluster management team. The superintendent will directly supervise: an assistant superintendent, or a management assistant, or office manager, if such positions are utilized by the office; three

team coordinators (stewardship & partnerships team, education & visitor services team, and

administrative support team); necessary clerical support; and, if needed, a public affairs staff

capability in the office. (4 FTEs)

Public Affairs: The need for public information officers (PIOs) will vary by cluster. Each cluster

will generally require at least two full-time PIOs. These individuals should maintain a Servicewide

perspective, but can be duty stationed wherever the particular cluster determines they will be most

effective, either in field units or in the system support office. (0-2 FTEs)

STEWARDSHIP AND PARTNERSHIPS TEAM

The stewardship and partnership team will provide resource management expertise and assistance

in support of field operations, and will focus on field unit and ecosystem planning as well as providing technical assistance to conservation partners.

Team Coordinator and Clerical Staff: The team coordinator will facilitate delivery of services to

field units and conservation partners. Staff will provide administrative and clerical services for the

team. (3-5 FTEs)

Natural Resources and Science: Staff educated and experienced in fields relevant to natural resources of ecosystems will assist parks in providing liaison, expertise and coordination in pursuit

of ecosystem management objectives, facilitate the conduct of natural resource and social science

research within the ecosystem's field units, and coordinate assembly of cluster-wide priorities and

data. This expert staff will also provide advice and assistance to field unit superintendents and

resource managers, represent field units' research needs by serving as the liaison, as required, with

academic institutions and other agencies such as the National Biological Survey, the Forest

Service, and U.S. Geological Survey, and orchestrate technical assistance among field units or from sources within or outside the National Park Service. Further guidance for the composition of

this component of system support offices will be determined by National Leadership Council based

on recommendations made by work group convened by the Service to update the 1992 Strategic

Plan for Natural Resources Management. (4-6 FTEs)

Cultural Resources and Research: Full-time cultural resources staff educated and experienced in

each of the six recognized specialized areas of anthropology, archeology, cultural landscapes,

curation, historical architecture, and history will be present within each cluster. Some disciplines

will be located in field units but have Systemwide responsibilities, while others will be located in

26
Plan For Organizational Restructuring

the systems support office. (In those cases where existing cultrual preservation centers are to be

combined with system support offices, they will be aligned organizationally with this team at each

respective location.) The systems office staff will coordinate Section 106 compliance clearances.

This expert staff will also provide advice and assistance to field unit superintendents and resource managers, represent the National Park Service on interagency ecosystem management efforts,

facilitate research within the ecosystem's field units, coordinate assembly of information for

establishing Systemwide priorities and data, and orchestrate technical assistance among field units or from sources within or outside the National Park Service. Systems office staff will also assist in

facilitating training. (4-6 FTEs)

Partnership Programs: Systems support offices or, in the case of RTCA, satellite offices located

either in field units or near major projects will be the "field offices" providing direct client

services in partnership programs such as the Rivers and Trails Conservation Assistance Program

and the National Historic Landmark and National Natural Landmark programs. The National

Heritage Area legislation, if enacted, will be administered by this office. Where dictated by

economies of scale, cultural program technical assistance staff may be consolidated in one of each

field director's system support offices. Administration of the LWCF and UPARR grants programs

will also be located in one system support office per field director unless economies of scale

dictate further consolidation; if this is the case, location in three systems offices was recommended

by the Reorganization Work Group, with locations to be chosen based on both geographic and

workload considerations. (10-15 FTEs)

Planning and Legislation: Systems support office teams will provide expertise to parks in field

unit planning efforts, participate in regional and ecosystem planning efforts, and conduct special resource studies, including those which evaluate potential additions to the National Park System.

Rather than conducting field unit planning projects themselves, highly skilled staff will more often

facilitate the planning process and will be available to field units to lead them through a planning

process and public involvement techniques. The Planning, Design, and Construction Center will

conduct major planning endeavors with Servicewide implications or those that require complex

environmental documentation or large interdisciplinary teams that can best be coordinated by that

office. System support office staff assist field units in legislative efforts and help coordinate the

preparation of legislative support data packages. System support office staff might also provide

advice to field units on land use issues, although it is recommended that all larger field units have

a land use planner on staff. Field unit managers will have approval authority for unit-related

planning efforts, and the field director will have approval authority for special resource studies. (5

FTEs)

Environmental Quality and Review: System support office staff will provide advice and

assistance to field units in complying with the National Environmental Policy Act (NEPA) and

ensuring environmental quality in all operational activities. Large field units will prepare their own

NEPA documents; system support office staff will assist smaller field units in obtaining the

necessary expertise to prepare documents that are beyond their capabilities. Field unit managers

will have significant approval authority. The systems office will coordinate the review of all documents and reports submitted to the Department for official review and comment within the

27
Plan For Organizational Restructuring

cluster's ecosystem and cultural geographic area (e.g., FERC applications, Section 4(f)

transportation determinations, and environmental statements). The system support office might, on

occasion, be assigned lead responsibility for consolidating the comments of all DOI agencies. (2

FTEs)

Geographic Information System: Consideration will be given to providing systemwide GIS

support for the field units from a combination of lead field units and systems offices, to be

determined during the re-engineering analysis phase of implementation. (0-2 FTEs)

EDUCATION AND VISITOR SERVICES TEAM

The education and visitor services team will provide expertise and assistance in the areas of

education and field unit operation.

Team Coordinator and Clerical Staff: The team coordinator will facilitate delivery of

education/ interpretive and field operation services to field offices and conservation partners. Staff

will provide administrative and clerical services to the team. (3-5 FTEs)

Education and Interpretation: The systems support office staff will facilitate effective sharing of

field unit interpretive expertise and external education programs. Staff will also coordinate

interpretation of multi-unit resource issues and assist in obtaining minor exhibit rehabilitation.

Individual field units might have subject matter "champions" who apply their talents throughout the

cluster. Major exhibit and media development will be done through the Harpers Ferry Center,

while minor projects will be conducted by staff drawn from within the cluster. (2 FTEs)

Visitor and Resource Protection: Systems office staff will provide for law enforcement

investigation and training and will facilitate activities that benefit from Systemwide coordination,

such as Special Event Teams, fire dispatch, resource protection, and liaison with other agencies to coordinate and facilitate emergency response. (2 FTEs)

Maintenance, Design, and Engineering: Systems support office staff with expertise and

experience in areas such as facility management, engineering, architecture, and landscape

architecture will facilitate the contracting of design and construction work for repair/rehabilitation

projects, cyclic maintenance projects, and other funded projects that are within the technical

capability of cluster staff to oversee. System support office staff, as necessary, can assist parks in

brokering equipment needs between parks and other sources. They will also broker and supply

other technical advice and support to field units and assist with program coordination and assembly

of cluster- and regionwide priorities and data. In order to meet the needs of its field units, system

support office staff will orchestrate technical assistance among field units or from sources within or outside the National Park Service as well as assisting field units who lack appropriate expertise to review large design/construction projects conducted by the Planning, Design, and Construction

Center. Sustainable design will be emphasized in all work. (5-10 FTEs)

28
Plan For Organizational Restructuring

Safety: Field support for safety will be provided from each Systems Support Office. A roving

professional safety manager in each cluster will work with field safety officers and operations

staffs to identify safety concerns and to facilitate correction of deficiencies in all field units.

(1 FTE)

Concessions: Concessions management will be sufficiently centralized to meet the needs the

Service has identified in acquiring expertise in business planning and until adequate procedures and

operating regulations are developed under the new Concessions Management Reform Act. In line

with this, a detailed concessions management plan is being developed by the Service, which will

outline a proposed structure for concessions management. The Reorganization Work Group

recommended that a concessions management assistance team of up to six FTE be located in one

of each field director's systems support offices to provide concessions management assistance for

that field director's purview. The Field Operations Support Technical Center in Denver discussed

later could provide technical support for the financial, contracting, and planning aspects of

concession management. Final decisions on the concessions management organizational structure

will be made after the work of the Service's concessions management planning group is completed.

ADMINISTRATIVE SUPPORT TEAM

The administrative support team will provide administrative services for the system support office.

Team Coordinator and Clerical Staff: Team coordinator will facilitate delivery of services to system support office. Staff will provide administrative and clerical services to team. (2-4 FTEs)

General Administrative Services: Services such as property accountability, purchasing, supplies,

forms, mail, etc. will be provided for the immediate office. (2 FTEs)

Budget Coordination, Formulation, and Funds Control: Budget formulation and execution

services will be provided for the systems office. Expertise in "creative" financing will be

maintained to assist office staff in facilitating multi-partner projects and other efforts funded in

non-traditional ways. (2 FTEs)

Contracting and Cooperative Agreements: Contracting warrant levels in all field units will be

raised, including raising at least one field unit in each cluster to level four. Field units will provide

contracting for system support offices, while system support office staff will maintain expertise in

cooperative agreements and other vehicles necessary to facilitate creative cost and work sharing

with partners. (1-2 FTEs) [See further discussion of contracting in "Topical Areas" section.]

Information Management: Ecosystem-wide information management, including areawide

communications management for telephones and electronic communications, video equipment, and

computer network coordination and management, etc., will be provided. Consideration will be

given during the Service's re-engineering process to how most efficiently provide this support— in each system support office, in one system support office per field director, or in one centralized

location. (0-4 FTEs)

29
Plan For Organizational Restructuring

Human Resources Management: Servicing ratios of 1:100 in human resources and 1:500 for

equal opportunity counselors will be largely supplied in field units. System support office staff will serve systems office needs and may serve smaller nearby field units. Advisory and support

capability in specialized areas such as labor unions and employee relations will be provided as necessary in the cluster. (2-5 FTEs)

30
Plan For Organizational Restructuring

FIELD DIRECTORATE

Each field director will staff an office located in the managed area. Seven field directors will

provide line supervision for from one to three system support office superintendents and all field

unit superintendents within the managed geographical area. Field directors will provide strategic

planning; direction, oversight, and assistance in media relations and strategies; and serve as an

appellant in the appeals and grievance process for the clusters supervised. The field director's

office will serve as the principal political interface for the area as a whole, and ensure consistency

with national priorities.

As line manager, the field director will also have budget program coordination and formulation and

financial management responsibilities, with appropriate staff.

The field directors will be SES managers who serve on the National Park Service National

Leadership Council with the Washington Office associate directors and the Director and Deputy

Director. As such, this group will set overall policy and direction for the Service and form the

executive group for making decisions involving the National Park Service as a whole. They will

also set the tone for teamwork, facilitation, and collaboration within the National Park Service,

with the Service's partners, and with the public in striving to carry out the mission of the National

Park Service. The field directors will implement Servicewide goals and objectives. They will have

key responsibility to establish a partnership with the Congress and to clusters. Field directors

complete the "management circle" by evaluating National Park Service employees based upon

these new and broadened criteria.

The typical field director's office will consist of 20 to 25 FTEs organized to provide the best

Servicewide interface, coordination and management direction and oversight for from one to three

clusters of field units within the assigned geographical area. Typical anticipated staffing needs

would be as follows.

FTE Position

2 Director, Deputy

2-5 Clerical/general admin, support

1-4 Management asst(s)/public information coordinator

1 "WASO liaison officer" (field director's representative in WASO)

1-3 Cluster "desk officers" (one per cluster)

5-6 Budget analysts and finance specialists

1-2 Personnelist/appellant/grievance resolution support staff

2-3 FTEs dedicated to use for employee development/continuing education trainees

31
FIELD DIRECTOR OFFICE

(TYPICAL)*

20-25 FTE'S

DESK OFFICER

(WASO)

FIELD DIRECTOR

DEPUTY

PIO

MANAGEMENT

ASSISTANT(S)

CLERICAL

GEN. ADMIN. SUPPORT

CLUSTER

"DESK OFFICERS" (1-3)

BUDGET ANALYSTS,

FINANCE SPECIALISTS

HUMAN RESOURCE STAFF

Precise staffing & clerical support for office to be determined by individual field directors within assigned FTE constraints.
Plan For Organizational Restructuring

Individual Field Directors will have considerable latitude and flexibility within a total ceiling of

from 20 to 25 FTEs in precisely how they choose to organize their immediate office staff - in line

with overall concepts of this plan.

The cluster "desk officers" duty-stationed in the Field Director's office (one per cluster) will form

a bridge between each specific cluster and its systems support office and the field director for both

operational and management concerns and can also assist in providing liaison for parks in the

cluster with national program support centers as necessary. They may also provide input on

performance appraisals. A similar "desk officer" position representing the multiple clusters under

the field director will be duty-stationed in the Washington Office. These "desk officer" positions

provide crucial two-way communication channels between the field director and WASO

Headquarters, the Department, other Federal agencies at the national level, and the Congress.

Field Directors will be charged with placing renewed emphasis on the enhancement of scientifically

based resource management. The precise nature of the resource management coordination function

at Field Director offices and at system support offices will be determined by the National

Leadership Council based on recommendations from the Service's work group on natural resources management and completion of the NPS re-engineering workload analysis. Field Directors will

also be charged with developing new initiatives and appropriate ongoing training for park safety

officers and maintenance staffs to identify safety concerns and facilitate correction of OWCP

deficiencies in field units. The Field Director's management assistant position(s) could be utilized

in coordinating development of added emphasis in these program areas in field units.

Each field director's office will allocate two to three fully-funded FTEs as trainee slots dedicated

to employee development and continuing education. These FTEs are made available to each Field

Directorate as trainee positions. This is to permanently identify FTEs for the management or

professional training needs of the Service. These employee trainees could be assigned anywhere in

the System, or in assignments such as Congressional fellowships. Dedication of FTEs for this

purpose is in line with the Service's new emphasis on employee development/continuing education.

If it were determined that a cluster needed employee development staff, their duty station in parks

or a system support office would be determined by the cluster.

Although the span of control for some field directors will be substantially increased over that of

the traditional regional directors, most of the operational and programmatic responsibility and

coordination functions will have been moved down to the "cluster" level. Recognizing that

evaluation and counseling will, in accordance with the National Performance Review, become a more continual and ongoing process, adoption of a simplified process for formal appraisals will be

developed to reduce the workload associated with the increased number of positions supervised.

The key to success of the field directors will be leveraging and leading the work of others rather

than doing it themselves.

33
Plan For Organizational Restructuring

NATIONAL PROGRAM SUPPORT CENTERS

National program support centers will be maintained or established where it is determined that

such a center would meet three tests of consolidated services: 1) the center would establish and

maintain a critical mass of specialized expertise for Servicewide use, 2) it will be uneconomical to decentralize, and 3) better service to customers will result from a centralized service. If these tests are not met, the services will be decentralized to field units and/or system support offices. All

program centers will be under a managed system where customers have the option for most

activities of choosing where some services are obtained in order to ensure high quality and

accountability.

Some of the proposed centers result from moving the "doing" work out of the Washington Office

into centers, based upon the three factors mentioned above. Physical relocation of existing centers

is not proposed unless a future analysis clearly indicates a substantial benefit in cost-effectiveness or customer service will result from consolidation or relocation. Program support center operations

will be supervised by center managers who will report to appropriate headquarters associate

directors. Responsiveness and performance of these centers will be ensured by formal,

institutionalized customer feedback surveys and performance measures, which will be provided to center managers and to the National Leadership Council of the Service. A managed system of

choice in some program areas will be developed to allow customers to choose where services can

best be obtained. This will have to be carefully crafted to meet the objective of keeping centers

efficient, competitive, and responsive without resulting in unacceptable disruption and loss of

Servicewide quality and accountability. All centers will guarantee their products in terms of

meeting management requirements and/or operating properly.

Both the Denver Service Center and the Harpers Ferry Center will be streamlined consistent with

their previously submitted plans, recognizing that the resultant cuts may affect the delivery of

products and services.

It is generally intended that system support offices and field units will have staff to increase the

number of locally prepared general management, ecosystem, and special resource plans over

current levels, in addition to facilitating and coordinating planning efforts done by the centers. In

the development area, field units and systems offices will generally concentrate on accomplishment

of repair/ rehab, housing, cyclic maintenance, and other projects oriented towards field unit

operations, similar to the functions of those groups now in regional offices. They will also have

the capability to accomplish some construction projects.

Because the appropriation levels, complexities, professional disciplines required, schedules to be

met, and other factors will continuously vary from year to year, it is proposed that the division of

work between the "field" (including system support offices) and centers be determined by good

faith discussions between all parties as early in the budget cycle as possible. The overriding

principle to be applied is "what is the best and most efficient way for the Service to get this work

done in a quality manner and to most effectively use our limited resources in these program

areas?"

34
Plan For Organizational Restructuring

Administrative Support Centers

Accounting Operations Center (AOD): This center provides finance and accounting support

services Servicewide and will remain in Reston. The inclusion of other administrative functions in an administrative center, or centers, will also be considered; for example, centralized contract

warrant administration (alternatively, this function could be located in Denver) and large

Servicewide contract administration (R&R uniforms, campground reservations system, etc.).

Current regional office contracting officers will be reassigned to serve a cluster of field units or

centers. Centralized Equipment Replacement Program management would also provide greater

opportunities to obtain excess property and sharing of critical equipment resources.

Information & Telecommunications Center (ITD): The Servicewide Information and

Telecommunications function that provides computer systems design, network support, customized

software development, and systems management such as CC:Mail, Internet, connectivity with other

bureaus, universities, libraries, etc., will be consolidated with the ITM component located in

Denver, Colorado, and established as a national administrative support center co-located with the

other Denver-based centers. This new Information & Telecommunications Center will provide

professional and technical support for modernizing the information and telecommunications

functions of the Service, which is critical to a more efficient, modernized operations. Most

employees currently located in Washington, D.C., will be transferred to Denver, although it may

be determined during the implementation workload analysis process that a small WASO support

component should be retained.

Administrative support centers will report to the Associate Director for Administration.

Employee Development Centers

The National Park Service of the future will require much higher levels of employee and

management development. The technical, managerial and interpersonal expertise required are far

beyond today's ability to provide. Reduced levels of oversight and control and the increasing

professionalization of the workforce are essential. In line with recommendations developed by the

Service's Task Force on Employee Development, training will be provided at specialized

Employee Development Centers (Mather, Albright, FLETC, Presidio).

Expanded programs in special emphasis areas, such as but not limited to partnerships, leadership, resource stewardship, and sustainable design, will require an intensive developmental effort. The

National Park Service must draw upon other agencies, private business and academia to provide

the most efficient, cost-effective programs geared to developing employees capable of performing

in substantially expanded roles at all levels. Consolidation of facilities and training resources with

other agencies will be considered, especially where excellent facilities are currently available

(BLM, Bureau of Mines, etc.)

Employee development centers will report to the Associate Director, Administration.

35
Plan For Organizational Restructuring

Natural Resources Program Support Center

The Natural Resource Program Support Center will provide national program support functions for

air quality management, water quality management, resource management, mining and minerals,

earth sciences, and inventory and monitoring. These support functions will continue to be located

primarily in Lakewood and Ft. Collins, Colorado.

Center personnel will assist field units in contributing to the protection of National Park System

resources and the accomplishment of inter-agency and partnership stewardship efforts by providing

support for national level leadership, engaging in strategic planning for natural resource management and protection, assisting in establishment of National Park Service standards and

priorities, and providing professional advice and assistance. The contributions made by this center,

working in concert with cultural resources management, will be combined with those made by field

units, system support offices, and partners to achieve the Service's overall resource stewardship

goals.

The center will report to the Associate Director for Natural Resource Stewardship and Science.

Cultural Resources Program Support Center

The Cultural Resources Program Center will provide national program support functions for park

archeological and ethnographic resources, cultural landscapes, historic and prehistoric structures,

history, and museum objects. Where it will not be economical to decentralize further, these

functions will remain centralized in this center located primarily in Washington, D.C.

Cultural Resources Program Center personnel will assist field units in contributing to the protection

of National Park System cultural resources by providing support for national level leadership,

engaging in strategic planning for cultural resources management and protection, assisting in

establishment of NPS standards and priorities, and providing professional advice and assistance.

The contributions made by this center, working in concert with natural resources management, will

be combined with those made by field units, system support offices, and partners to achieve the

Service's overall resource stewardship goals.

As an interim measure, existing NPS cultural preservation centers (North Atlantic Cultural

Resource Center, Midwest Archeological Center, Western Archeological and Conservation Center,

Southwest Cultural Resources Center, and Southeast Archeological Center) will remain in their

current locations and will report to the System Support Office serving the area where the

respective centers are located. A determination on whether to organizationally combine these

centers with the national Cultural Resources Program Support Center will be made following

functional reviews of each organization to be conducted during the Service's re-engineering

workload analysis process.

The Cultural Resources Program Support Center will report to the Associate Director for Cultural

Resource Stewardship and Partnerships.

36
Plan For Organizational Restructuring

Partnership Programs Service Center

Where it will be more efficient to handle work in one location rather than in numerous locations,

certain partnership programs will be centralized in a national partnership programs service center. Following the relevant major recommendations of the "National Performance Review of the

Historic Preservation Partnerships" report, the National Park Service will establish a single center

for Historic Preservation Fund Administration, State Program Review, the National Register of

Historic Places, Historic Rehabilitation Tax Incentives, and Technical Assistance to Tax Act

Applicants. Streamlining of processes and regulations will be undertaken to ensure that the

minimum appropriate level of oversight is provided to meet legal requirements. Technical

programs, such as the Historic American Buildings Survey and the Historic American Engineering

Record (HABS/HAER) or the National Historic Landmarks designation program, will also be

examined for efficiency improvements (such as more extensive use of cooperative agreements).

Where it will not be economical to decentralize a program further, it will remain centralized in this

center located primarily in Washington, DC. Technical programs located in this program center

will gear themselves through re-engineering to being particularly responsive to field units, systems

support offices, and non-Federal users and partners.

It is intended that consolidation of certain functions previously performed in regional offices will

provide State and local partners with more direct access with these programs at the national level

and thereby will enable their more direct participation in the Federal "steering" component of such

programs, while hands-on program management will become more decentralized to partners

through the States and Certified Local Governments. System support offices and field units will

also participate in many of these programs, but will not be responsible for overseeing or judging

the acceptability of work performed by partners.

In a few cases, because of the integration of grants administration with program support activities

(such as those in the LWCF and Urban Parks and Recreation Recovery Act) it may be appropriate

to reduce the number of servicing offices from the current number to three, possibly co-located

within system support offices, to provide greater efficiencies while leaving the delivery of quality

services to States closer to the customers.

This center will report to the Associate Director for Cultural Resources Stewardship and

Partnerships.

Professional Service Centers

Denver Service Center (DSC): The Service's planning, design and construction center located in Denver will continue to provide services to accomplish major planning, design, construction

management, transportation systems planning, information/telecommunications systems planning &

development, and other related functions that are best centralized for the reasons outlined earlier in

this section. An important consideration in the centralization decision will be the program

variability across the System from year to year as well as the numbers and types of professional

specialists required to accomplish these major projects.

37
Plan For Organizational Restructuring

The Denver Service Center will include:

• A full range of technical and professional knowledge and expertise for major, multiphase,

interdisciplinary planning, design, and construction programs and projects, including

responsibility for major planning projects, especially projects that have Servicewide

implications. The center will concentrate on the accomplishment of complex line-item

design and construction projects.

• A full range of technical services, including A/E and construction contracting, drafting,

editing, estimating, geographic information systems, graphic design and printing, as-built

plans and operations & maintenance manuals, specifications, surveying, transportation

planning, value engineering, and visual simulation, as well as a Servicewide repository for

storage and retrieval of planning, design, construction and research documents.

Land Resources Program Support Center: The NPS Lands Task Force has recommended that

the Service's land resources program functions be established organizationally as a national

program center, with eight satellite lands resources support offices co-located with System Support

Offices to provide services to the 16 clusters. These eight land resources support offices will be

co-located with System Support Offices for administrative support and to interface with other SSO

personnel. In addition, lands project offices will continue to be located at parks with very active

land acquisition programs as necessary, with personnel and resources allocated among clusters and

parks as workload dictates.

The Land Resources Program Support Center functions will include:

• Arranging for title evidence, mapping, surveys and appraisals of land identified for

acquisition in land protection plans; reviewing appraisals and establishing amounts of just

compensation, negotiating with landowners, arranging for closings, preparing condemnation

assemblies, and providing relocation services to owners; and performing all other technical

aspects of land acquisition. In addition, center personnel will provide support and advice to park managers and the directorate on planning, reservations in deeds, interpretation of

rights-of-way, review of native allotments in Alaska, trespass and boundary location

questions, and land protection plans; and will undertake work for other program areas on a reimbursable basis — e.g. appraisals of concessions, historic leasing, state grants, right-ofway permits, preparation of legislative cost estimates.

Professional Service Centers will report to the Associate Director for Professional Services.

Field Operations Technical Support Center

The Field Operations Technical Support Center will provide a full range of base-funded

professional and technical field operations support for functions that are best centralized for the reasons outlined earlier in this section. An important consideration in the centralization decision for

individual functional components will be the program variability across the Service from year to

38
Plan For Organizational Restructuring

year as well as the requirements for specialized professional engineers and other specialized

services. These generally will remain co-located with the Denver Service Center to facilitate

professional interaction, support and sharing and to provide objective peer review for designs,

although some personnel may be duty-stationed elsewhere as warranted by particular program

needs, and close liaison will be maintained with functional policy counterparts in Headquarters.

This center will include, but is not limited to:

• Operations Engineering-including all base funded, centralized engineering specialty

functions which provide technical assistance to field units in areas such as radio and

wireless communications engineering, frequency management and licensing; public utility

engineering and contract management; electrical, mechanical, water and wastewater

engineering-plus traffic engineering, traffic safety, waste management, environmental

engineering, and risk management.

• Concessions planning and analysis; technical functions related to concession contract

planning, business analysis, and feasibility studies will be largely centralized and

consolidated in this center in order to maintain a critical mass of specialists with business

and accounting training and to efficiently manage a variable geographic workload. A

National Park Service workgroup is developing a comprehensive plan for structuring NPS

concessions management in line with the Service's concessions reform initiative.

This center will report to the Associate Director for Park Operations and Education.

Interpretive Design Center

This center will remain in its current location at Harpers Ferry and will provide technical support

in the development and use of audio/visual technology, exhibit design, and educational media.

Services will include interpretive and museum exhibit planning, exhibit design and production,

wayside exhibit design and production, production of films and other audio-visual media, and

production of publications related to visitor information and education. The center will also provide

audio-visual products for other Departmental bureaus.

This center will report to the Associate Director for Park Operations and Education.

National Interagency Fire Center

The National Park Service fire office at the National Interagency Fire Center in Boise will continue

to provide leadership and direction for the agency fire program and to coordinate National Park

Service efforts with those of other agencies. NIFC staff will coordinate fire programs with system

support offices and with fire protection staff in field units.

This center will report to the Associate Director for Park Operations and Education.

39
Plan For Organizational Restructuring

NATIONAL PARK SERVICE HEADQUARTERS OFFICE

The National Park Service Headquarters Office (WASO) will provide national level leadership and

advocacy, policy and regulatory formulation and direction, program guidance, budget formulation,

legislative support, and accountability for programs and activities managed by the field and key

program offices. Headquarters staff will directly manage Servicewide programs that by their

nature must be carried out in Washington, D.C.

The Headquarters Office will be streamlined and operate with significantly reduced staff positions,

with fewer staff involved in allocating, tracking, and managing small, special funding sources.

More emphasis will be placed on agency and program leadership, policy direction, and liaison with

the Congress, the Department, the national media, and other federal agencies and affiliated national

level organizations. The Headquarters Office will exercise less control and day-to-day direction of

field offices by delegating key responsibilities and accountability to organizational levels closer to field operations. Accomplishing both the efficient reorganization and downsizing of the current

Washington Office, in addition to reallocating staff closer to the resource and field operation, will

result in a substantial reduction of staff size.

Organizational enhancements to be gained by clarifying the role and function of the Headquarters

Office will include, but not be limited to:

• Creating a flexible and adaptive organization capable of reacting to the changing

management environments of the future.

• Providing more efficient use of specialized expertise to field managers and consolidation of

support services.

• Facilitating the effective discharge of the variety of partnership programs by effectively

focusing on the best level to provide the service to the customer.

• Eliminating excessive layers of review and approvals to deliver more efficient service to the

subordinate levels of the agency, allowing these offices to better use their resources.

• Developing employees that can better meet the operational and management parameters of

the future, developing both individual and agency leadership.

A key concept that must be a foundation of all endeavors is improved lateral and vertical

teamwork. The sense of "team" must form the core of analysis, review, deliberation, decisionmaking and implementation. Integration of effort and programs to the fullest extent possible will ensure greater effectiveness.

40
Plan For Organizational Restructuring

Director and Deputy Director

The Director and Deputy Director of the National Park Service set the strategic direction and

provide leadership to the organization as a whole.

The Director will provide immediate oversight to the Deputy Director, the Chief of Staff, the

Assistant Director for External Affairs, the Office of Congressional and Legislative Affairs, the

Office of Public Affairs, and, as appropriate, Schedule "C" employees.

The Deputy Director will provide immediate oversight to Associate Directors, Field Directors, and

the Office of International Affairs.

The Director, Deputy Director, Associate Directors, and Field Directors will comprise the

National Leadership Council of the National Park Service.

An NPS Management Council drawn from second-tier NPS management, center directors and SES

superintendents will serve as an advisory adjunct to the National Leadership Council and will

provide additional managerial support for communicating and accomplishing National Leadership

Council goals and objectives throughout the organization. The exact composition and role of this

management council will be determined by the National Leadership Council.

Assistant Director, External Affairs

This position will serve as team leader for the Service's public outreach and legislative

coordination efforts, working as a team with the respective heads of the Office of Legislative and

Congressional Affairs and the Office of Public Affairs.

Functions for which this team will be responsible will include:

• Legislative coordination/congressional liaison

• Public affairs/tourism

• Public outreach/external affairs

This plan makes provision for a desk officer for each field director to be duty-stationed in the

Washington Headquarters Office. These positions will provide vital day-to-day organizational

communication linkage for the greatly streamlined, new organizational structure by serving as a conduit for communications between headquarters and field offices. The precise role and function

of these positions will be determined by the National Leadership Council. Generally, however,

these seven desk officers (who will be selected & rated by the respective field directors) are intended to assist both their respective field directors and the Washington Office in coordinating

operational and management issues, policy, legislative and public affairs matters, and controlled

correspondence and briefings pertaining to that field directorate. They will also be available to represent the field directors in headquarters and departmental policy discussions, to brief the

41
(rt i_ •acIS< > e « ©

<S1 3 EeoU

(«Es E u ae £ H 3

&.

toa |Q

U T3 I s

aj 13-2 1 3 < u ^

•2 -a * 2 J? J fe • 1 1 c * C §

•1 55 § S.'a i e^ ; s o " 3 2 £ c1 £ " , ,» g a. 3 c = u .0 H c-.S 2 .> <J m ^ 3 i O oc 55 £ Z

-J c M < < C cQ S < Z I a hill Z £ U i- E e. < 15 y

ources

d

Minei

nccs eview 9Z

Air

Oualit

Water

Res

Mining

an

Earth

Scie

NEPA EIS,

EAP E -

a.

a s s Is §

.2 2 2.? g K S3 - - e-8 esfi c wSi£? = i|«3f c

V) o o J - 3 i £ " § a

it 4, = w =

.r ^5

CO

O

w 5

"3

a -2

4»3 = g>1 yc

'5 » ^ H -3 ao.M & o £ 2 » « C C « - • i: « Q J£ o

<C PC csm ou -

•-Q

a S < 2 £ 2 .5 £ s 5 § 2i> Ip ® — a s 9 —

t3 «

it

a 2 -q. e u 5 "5 2 §

j£ (9 z
Plan For Organizational Restructuring

WASO directorate on field issues and to coordinate headquarters review of matters pertaining to the respective field directorates.

In this role, the desk officers will coordinate closely with WASO staff performing the functions

comprising the external affairs team. In line with this, although they will formally report to their

respective field directors, the desk officers will be administratively report day-to-day to and will

coordinate their activities closely with the Assistant Director for External Affairs. One additional

position, similar in function to that of a desk officer, and reporting to the Assistant Director,

External Affairs, will coordinate cross-cutting issues and controlled correspondence of Servicewide

import and application.

A formal process will be established to rotate field employees and other personnel into these desk

officer positions to provide national level experience in line with employee development goals for

training of future managers. [See the discussion of "Employee Development and Continuing

Education" later in this report in the section entitled TOPICAL AREAS . 1

The other functions comprising the external affairs team will be staffed to the level necessary for

fulfilling a policy-level guidance and direction role. It is anticipated that approximately 20-25

FTEs will be associated with these functions in WASO.

Associate Director, Park Operations and Education

This Associate Directorship will provide national-level guidance and direction for visitor-related

functions; will devise the strategies and methods to provide educational and interpretive

information to the public, the field units and through other heritage education initiatives; and will

provide leadership and policy and regulatory direction for field unit operations and protective

functions.

Functions under this organization include:

Interpretation/education

Concessions

Ranger activities

Wilderness management

Park facilities management

Maintenance and engineering

Hazardous materials

Youth programs

Accessibility

Safety

Environmental sanitation

Appalachian Trail

43
Plan For Organizational Restructuring

Staffs for the functions listed above will be reduced to those necessary for a policy-level role. It is anticipated that approximately 40-50 FTEs will be associated with this function at the headquarters

level.

In addition, national program center functions reporting to the Associate Directorship for Park

Operations and Education include:

Field Operations Technical Support Center (Denver)

NPS Office, National Interagency Fire Center (Boise)

Interpretive Design Center (Harpers Ferry)

Associate Director, Cultural Resource Stewardship and Partnerships

This associate directorship will develop Servicewide policies for the protection and enhancement of

cultural and recreation resources inside and outside the field units; ensure that the concerns of the

partners and other "stakeholders" for these program areas are given serious consideration at the

policy level; and provide Servicewide program development and leadership. The headquarters role

with respect to all partnership programs will be assigned to this Associate Director, including the

National Historic Preservation Programs and the National Recreation Programs and Recreation

Grants Programs. It will be the responsibility of the Associate Director and a Deputy Associate

Director for Partnerships not only to provide leadership for existing partnership programs but to develop strategies for the Service to develop new partnerships at all levels.

Functions under this Associate Director will include:

PARTNERSHIP PROGRAMS

Grants administration (L&WCF, UPARR, and Historic Preservation Fund)

Rivers, Trails, & Conservation Assistance

State program review

Surplus property transfer and monitoring

National Register of Historic Places

National Archeological Assistance Program

Historic American Building Survey & Historic American Engineering Record

(HABS/HAER)

Tax incentives certification

American Battlefield Protection Program

Boards and commissions

CULTURAL RESOURCES MANAGEMENT

• Archeological resources

• Historical resources

44
Plan For Organizational Restructuring

Historic and prehistoric structures Museum objects

Ethnographic resources Native American liaison

Cultural landscapes

The majority of these programs will be executed in national program support centers, systems

support offices and field units. It is anticipated that approximately 15-25 policy level FTEs will be

maintained at the headquarters level.

The Associate Director for Cultural Resource Stewardship and Partnerships will also have line

authority over the following national program center functions:

• Cultural Resources Program Support Center (including any cultural preservation assistance

center functions centralized)

• Partnership Programs Service Center

• National Center for Preservation Technology and Training

Associate Director, Natural Resource Stewardship and Science

This associate directorship will develop Servicewide policies for the protection and enhancement of

natural resources inside and outside the field units, ensure that the concerns of other "stakeholders"

in these program areas are given serious consideration at the policy level, and provide Servicewide

program development and leadership in the natural resources area.

The Associate Director will also ensure that senior NPS management has readily accessible advice

from top-level scientists of national stature who understand the mission of the National Park

Service. One or more rotating, visiting senior scientist positions in the headquarters office, drawn

from candidates from top universities and scientific organizations, will be utilized to help

accomplish this.

To assist the Associate Director for Natural Resources Stewardship and Science, a work group has

been convened by the National Park Service and the Assistant Secretary for Fish and Wildlife and

Parks to update the 1992 Strategic Plan for Natural Resources Management and to review the role

of NPS natural science in relation to the new National Biological Sciences agency (NBS). The

work group will develop a work plan for closer collaboration with NBS, and will develop the role

and function statements for the visiting senior scientist(s).

Functions assigned to this Associate Director will include:

• Natural resources management

• Air quality (including acid rain research program)

• Water resources management

45
Plan For Organizational Restructuring

Damage assessment inventory and monitoring

Mining and minerals

Earth sciences

National Environmental Policy Act (NEPA)

Environmental Impact Statements (EIS)

Environmental Assessments (EA)

Science

The majority of these programs will be executed in systems support offices or field units, or

centralized in national program support centers. It is anticipated that approximately 10-20 policy

level FTEs will be maintained at the headquarters level.

This associate directorship will also have line authority over the following national program center:

• Natural Resources Program Support Center

Associate Director, Professional Services

This associate directorship will provide leadership, policy development, external and congressional

liaison, program accountability, and budget formulation for the following functional areas:

Strategic planning

Policy coordination

Lands

Long-range management planning and special resource studies

Design and construction

Much of this work will be performed in national centers, and considerable planning will be

executed in systems offices and field units. Most current headquarters land resources personnel,

with the exception of 3-4 positions, will be organizationally assigned to the national Land

Resources Program Support Center. It is anticipated that approximately 15-25 policy level FTEs

will be maintained within this associate directorate at the headquarters level.

This associate directorship will have line authority over the following national program center

functions:

• Planning, Design and Construction (DSC)

• Land Resources Program Center

46
Plan For Organizational Restructuring

Associate Director, Administration

This associate directorship will provide leadership, policy development and national level direction,

guidance and field support in the following functional areas:

Budget

Finance and accounting

Procurement

Contracting

Small business administration

Property management

Internal control/management systems

Correspondence control

Servicewide information management policy, development & coordination

Human resources/personnel operations

Employee development/training

Equal opportunity

Minority and small business

Historically black colleges and universities, Hispanic Association of Colleges and

University and Native American Colleges

• Challenge Cost Share Program

In light of the Service's need to ensure financial integrity and prevent financial accountability

weaknesses, and in view of the Department's emphasis on full integration of the finance, budget

and procurement functions within one reporting unit in each bureau, final determinations will be

made after the National Leadership Council is inaugurated on the precise organizational alignment

and reporting lines of these functions.

The Servicewide information and telecommunications function (including computer systems design,

network support, customized software development, and systems management such as CC:Mail,

Internet, connectivity with other bureaus, universities, libraries, etc.) will be consolidated in

Denver.

It is anticipated that this associate directorship will have approximately 40-50 FTEs at the

headquarters level.

In addition, national program center functions reporting to this associate directorship will include:

• Administrative center(s)

• Accounting operations center (Reston)

• Servicewide information and telecommunications management (Denver)

• Employee development centers (Mather, Albright, FLETC, Presidio)

47
Plan For Organizational Restructuring

NATIONAL LEADERSHIP COUNCIL

The field directors as the senior managers of the Service will serve with the Headquarters Office

associate directors and the Director and Deputy Director on a newly constituted National Park

Service National Leadership Council (NLC). As such, this group will set overall policy, priorities

and direction for the Service and form the executive group for developing strategic direction and

making decisions involving the National Park Service as a whole. It is anticipated that they will

devote as much as 25% of their time assembled as the NLC in fulfilling of that role. They will

also collectively set the tone for teamwork, facilitation, and collaboration within the National Park

Service, with the Service's partners, and with the public in carrying out the mission of the National

Park Service. They will lead the Service's "management circle" by providing the "steering" for

implementing Servicewide goals and objectives, and will collectively determine the Service's

overall legislative goals and strategies.

The policy making, leadership and decisions of the NLC will be implemented through the line NPS

officials in the respective operational and program areas of the restructured organization. In this

regard, an "NPS Management Council" comprised of second-tier NPS management will advise and

support the National Leadership Council in carrying out its goals and objectives.

NPS MANAGEMENT COUNCIL

An NPS Management Council composed of second-tier National Park Service management, center

directors and SES superintendents will be formed to serve as an advisory adjunct to the National

Leadership Council. The NPS Management Council will be generally constituted from among

officials such as, but not limited to, the following:

Deputy Field Directors

SES Superintendents

Deputy Associate Directors

Center Directors

Comptroller

Training Director

The exact composition and role of the NPS Management Council will be determined by the

National Leadership Council. The NLC will also determine a clearly defined and distinct role for

the Management Council. Individual members of the Management Council, or the entire group,

will participate in sessions with the NLC from time to time as deemed appropriate or necessary by

the NLC. The NPS Management Council will also meet independently as a group on occasion as determined appropriate. A primary focus of this group will be to provide managerial support and

to develop strategies for communicating and accomplishing throughout the line organization the

overall policy, priorities, strategic direction and Servicewide goals and objectives set by the

National Leadership Council.

48
Plan For Organizational Restructuring

FIELD OFFICE/FIELD UNIT CLUSTER BOUNDARIES

Both field office boundaries and field unit and partnership cluster boundaries are delineated in this

proposal based on the following criteria:

• Ecologically-based information including physiographic divisions and classes of land-surface

forms.

• Information on historic, prehistoric, and contemporary cultures. Consideration was given to the industrial heritage of the northeast and midwest, the agricultural heritage of the

midwest, and both Native American and European settlement patterns.

• An assumption that approximately 60 field units would be an acceptable span of control for

each field director. The number of field units per cluster will vary from approximately 10

to 35 with concomitant variation in the size of the system support office staff.

• Field Directorate, but not field unit cluster boundaries, were set along State boundaries to

facilitate interaction and effective liaison with Congressional delegations and State

governments. Field directors will represent the National Park Service in dealings with State

governments and the Congress; they will manage field unit clusters that may transcend state boundaries due to similarities in natural and cultural resources. Much as field unit clusters

share information and resources, field directors will need to be especially attentive to the

need to share information and resources where cluster boundaries cross field directorate

and/or State boundaries.

All park units will be included in a cluster. The dashed lines on the map included with this report

delineate generally conceptualized ecological-cultural-geographic cluster boundaries, with more

precise boundaries and park groupings to be determined by Field Directors and field units

themselves during implementation. The plan should not be interpreted as proposing disruption of

successful existing arrangements for groupings of sites or site unit managers, where appropriate,

under an area superintendent (e.g. Flagstaff group, Canyonlands group, Gateway, NCR groupings,

etc.) Such decisions will be made by the clusters themselves and their respective Field Directors.

Additionally, it is important that readers of this report understand that the map proposed is not an

"ecosystem map," per se. It does not, for example, match the proposed National Biological

Survey (NBS) map. The National Park Service deals with many other park management

considerations in addition to biological science matters — thus, our map must accommodate the

entire mix of NPS eco-cultural-geographic missions, programs and partnerships. The Department

of the Interior and other agencies have acknowledged that various agency maps (FWS, BLM,

USFS, etc.) will not "match" each other, but will be adapted in each case to best enhance the

individual missions of the individual agency.

49
5 'i
Plan For Organizational Restructuring

Field Directorates

Under this proposal the ten existing NPS regions will be consolidated into seven field directorates.

The field directorates and their associated field unit clusters (see map) are as follows:

Northeast.

Southeast.

Central.

New England/Adirondack cluster,

Chesapeake cluster,

Allegheny cluster;

Atlantic Coastal Plain cluster,

Appalachian cluster,

Gulf Coast cluster (incl. Caribbean);

Great Lakes cluster,

Great Plains cluster;

Intermountain West: Rocky Mountain cluster,

Desert Southwest cluster,

Colorado Plateau cluster;

Western

:

Alaska:

7 - National Capital:

Columbia/Cascades cluster,

Pacific Islands cluster,

Pacific Coast/Great Basin/California Desert cluster;

Alaska parks cluster;

National Capital Area parks cluster.

To minimize employee and operational disruption, the locations of the ten existing regional offices

have been selected to house ten of the proposed system support offices. Initially, system support

office functions for all clusters will be performed out of these ten existing regional office locations

and the Pacific Area Office. As funding permits, new system support offices will be established.

Locations for additional system support offices have not yet been selected. They will likely be colocated with field units, with universities, or with other Federal agencies to minimize overhead

costs.

Field directors and their immediate staff will be co-located with a systems support office to

facilitate sharing general support services, mails and files, etc.

51
Plan For Organizational Restructuring

TOPICAL AREAS

IMMEDIATE ACTION

Significant reductions in reporting and review requirements and in delegating authority to the

lowest appropriate level in the organization must be achieved. Adoption of the recommendations to reduce/eliminate unnecessary reports should be made as quickly as possible, including a determination if National Park Service Guidelines, Special Directives and Staff Directives provide

benefit and clarity, or if they hinder rather than empower managers to carry out their

responsibilities. The NPS proposal currently in draft concerning new delegation of authority should

be completed and issued as soon as possible, as a key ingredient to the success of this proposal.

Examples of things currently done that have been proposed to be eliminated include: abolishing

committees that primarily review responsibilities now delegated to field managers (e.g. Incentive

Awards Committee, Safety Committee, Position Management Review Boards, etc.) The National

Leadership Council will make final determinations on which such committees or functions should

be retained or discontinued.

Field units will not be excluded from the re-engineering process. They will undergo the same

value added, functional review/re-engineering processes proposed for other layers in the

organization to ensure that personnel, financial and other resources are appropriately allocated and

that unnecessary layers of supervision are eliminated. Field units will be encouraged and supported

to be entrepreneurial in their management and organization.

HUMAN RESOURCES

An essential element of this organization is the full delegation of personnel management authority

to managers to the fullest extent possible. Field directors, system support office superintendents,

and field unit superintendents will be given the authority to manage fully the human resources of

their respective organizations. The authority to hire (appoint/staff), pay (classify), reward,

discipline and remove, and partner with employee organizations will be delegated to field unit

managers. Full authority to grant awards to employees will be delegated to the

supervisory/managerial level commensurate with budget authority. In carrying out this

responsibility, all servicing personnel offices supporting the manager, will have the full authority

for personnel actions up to the grade level of the superintendent. For instance, GS-15

superintendents will be delegated authority through the GS-14 level.

The current human resources structure at the field level will be redirected with the following

emphasis:

• Staffing and classification

• Employee assistance and benefits program/quality of life

52
Plan For Organizational Restructuring

Performance management

Labor relations (negotiations)

Appellate review

- Administrative grievances

- Negotiated grievances

- Third-party appeals (MSPB, Fed. Cir., etc.)

- Discrimination complaints (EEO)

- Employee investigations (EEO, OIG, OSC, Background, etc.)

Affirmative action

- Workforce diversity

- Reasonable accommodation

- Special emphasis programs

- Careers enhancement (dual careers)

- Workforce analysis

- Special employment programs (co-op, disabled employment programs)

All servicing personnel/equal employment offices will develop structures similar to that described

above.

Personnel support for small parks, without servicing personnel offices, will be received at the

discretion of the park's superintendent from the systems support office or from another park's

servicing office located near the small park.

This structure is consistent with the current Department proposal for personnel streamlining. The

personnel policy function, currently at the National Park Service headquarters level, will be

transferred to the Departmental-level. Remaining personnel staffs will be reduced to achieve a ratio

of 1 personnel (GS-200 employee) for every 100 employees serviced. Efficiencies of operations for

personnel support will be realized wherever possible. For instance, personnel offices currently

geographically co-located (e.g. in the Washington, D.C., area) will be consolidated.

PARTNERSHIP PROGRAMS

A primary reason that NPS partnership programs exist is because of Congressional recognition of

the expertise within the National Park Service for assisting others to achieve national conservation,

heritage and recreation priorities. These movements are gaining increased importance in the

development of our national ethic and fabric. They are at the root of the creation of a sustainable

society.

53
Plan For Organizational Restructuring

Partnership Programs serve functions of 1) direct processing service for state grant recipients, 2)

technical support to a variety of users outside the Service, 3) technical support to field units, and

4) the development of and dissemination of educational material for use inside and outside the

National Park Service. These functions will be located where they can provide the best service to the users of the service, understanding that all field work will be delegated to field units unless

there is a clear justification for centralizing based on economies of scale or need for technical

support. The majority of the programs will be administered within the cluster offices. Where

partnership/conservation technical support work demands that staff be available directly within a community, small temporary partnership satellite offices will be established. Sustained working

relationships built on frequent communication and shared identification of mutually beneficial goals

will be maintained, established, or enhanced with universities, other Federal agencies, state,

private, and public organizations. The NPS will work not only to improve the administration of

existing partnership programs, but to develop strategies for developing new partnership skills at all levels of the organization.

PROFESSIONAL PEER REVIEW AND ACCOUNTABILITY

The present structure aligns nearly all aspects of review and accountability vertically. Field units are accountable to regional offices, which are accountable to the Washington Office. Subject matter

experts, acting on behalf of the regional director, review the plans and actions of field unit

superintendents and their subordinate staff experts. For many plans and actions, subject matter

experts from the Washington Office and service centers, acting on behalf of the Director, review

the plans and actions after the field unit and regional office review process. They also directly

review regional offices' plans and actions for either the regional office or the field units within

their region. These multiple levels of review are lengthy and do not always add value to the

product. However, they almost always add ambiguity to the search for accountability.

Lateral accountability is virtually non-existent in the present organization. Lateral peer review

happens on a limited basis through informal consultations and specialized regional advisory groups.

Except for the accepted practice of including field unit subject matter experts on field unit

operations evaluation teams and outside regional office staff on regional office operations,

evaluations teams' lateral peer review is not a clear element of the present structure.

This plan simplifies and strengthens vertical lines of accountability, connecting field units and

support offices to one another through lateral accountability. Superintendents are accountable to

field directors, who are accountable to the Deputy Director. Superintendents are clearly

empowered to plan and to act while securing the resources they need collaboratively. Along with

that empowerment to plan and act comes a clear isolation of accountability to the field director for

appropriate performance and operation by the field unit or support office.

The field units and system support office collaborate in securing resources for themselves and one

another. In so doing, they become familiar with the capabilities, needs, and limitations of one

another. And they become accountable to one another for the appropriate use of the resources they

54
Plan For Organizational Restructuring

secure or provide to one another. Field units not only help one another, they hold one another

accountable.

Vertical review remains available at the request, or imposition, of a superintendent, field director or the Director. Applying peer review on a case-by-case basis (as opposed to automatically

applying it in combination with lines of accountability) can ensure that the review genuinely adds

value to the product or process.

Formal horizontal peer review will help ensure that genuine collaboration exists among parks and

will build a much stronger sense of mutual accountability. As employees become accustomed to

lateral accountability, they will not only become accustomed to lateral peer review, but will also

solicit it as a way to improve plans and actions.

HOW ARE PRIORITIES SET AND RESOURCES ALLOCATED AND SHARED?

Sharing of resources between field units and providing technical service to neighboring field units

is not a new idea or phenomenon. Notable examples already exist; the Olmsted Center for

Landscape Preservation utilizes regional and field unit professionals to address cultural landscape

issues throughout the North Atlantic Area. However, this is rarely a recognized or rewarded

management behavior. There are few incentives, nor is there a formal institutional expectation of

serving broader Service and System interests and providing the rewards for such action. Incentives

to encourage and reward such collaborative and supportive behavior will be developed. These

incentives might include performance-based requirements, budget rewards, merit awards, and an

individual realization that cooperation will be more appropriate. Examples of shared services may

include field unit specialists loaned to another field unit or to the cluster for special studies or

projects, equipment and operator loans, reallocation of field unit base funds for emergencies, etc. Sharing technical experts who have specialized expertise in issues such as hazardous materials,

lead paint, and underground storage tanks programs will provide for greater efficiencies and

institutionalized and required collaborative support. These specialists will be placed in the location

most appropriate to provide services, based upon a functional analysis of these special program

areas.

The Headquarters Office will provide direction and criteria and identify final reporting format for

various national program budget calls. These national priority requests (i.e., ONPS, construction,

etc.) will be directed to each field unit superintendent without any unnecessary intermediate steps.

Formulations of the System support office and field unit budgets will originate at those levels with

review and approval at the field director level. A consolidated budget request will then be sent to the Headquarters Office for the budget call.

Priorities for programs or budgets that are non-base funded or involve special fund sources will be

formulated by the cluster using criteria and format established by the Washington Office.

Individual field units will join and act as a coordinating and supporting body evaluating the needs

of all field units and taking actions that support the most critical needs of the field units within the

55
Plan For Organizational Restructuring

cluster. The recommendations from the cluster will be submitted to the field director's office for

review and concurrence. Superintendents will conform to pre-determined methods set by the

Washington Office when developing priorities within the cluster in order to ensure consistency

throughout the Service. Each cluster's system support office will coordinate this process for that

cluster. The field director will assemble multi-cluster priority lists for consideration with other

field director's submissions. The field director should use representatives from all the clusters to

assist in the development of the multi-cluster priority list. The National Leadership Council will

compile the final Servicewide priority list.

Advantages and efficiencies of this system include reducing the number of offices submitting

priority lists from 10 to 7, eliminating at least one step in the review process, and providing the

field units with the opportunity to identify and assign resources where they are needed the most.

The process will be "field" driven and responsive to field needs. Field units will act as a collaborative union in meeting cluster needs. Accountability for the decisions of how priorities

have been set and the orderly accomplishment of priorities will rest upon individual

superintendents enforced through lateral peer review and accountability to the field director.

Additionally, system support office directors may play a part in not only assisting clusters but in

providing input to both the cluster and the field director. The field director still retains line

authority over the superintendents, cluster decisions and actions, and the systems office

Superintendent responsible for support functions.

Allocation of financial resources will flow through the field director's office from the Headquarters

Office. Assessments taken against the field budget will be limited to those which will be

standardized throughout the service such as for uniforms or other national initiatives. The clusters

will determine the use of Repair/Rehab or other special project funds or funds generated from

individual field unit bases to be allocated voluntarily for specialty or technical service positions that

will assist field units. Professional and peer review of technical projects will ensure conformity to design standards, policy, planning criteria, etc. Clusters and field directors may use subject matter

experts or form advisory groups (i.e. Maintenance Advisory Group, etc.) for priority setting,

program reviews and tracking special program annual allocations. Accomplishments made through

the use of these funds will be part of an annual reporting process.

Budget execution at all levels will be according to common practice that provides for necessary

flexibility and accountability. Budget analysis will be performed in the field director's Office,

determining trends, evaluating for further cooperative efficiencies, and providing feedback to the

cluster offices for their consideration in future operational planning efforts. Simplification and

efficiency of the budget programming/tracking processes will be enhanced with the final version of

AFSII. Managers will be encouraged to limit use of the current account structure to that which is absolutely necessary to provide evaluation of how their dollars have been spent.

56
Plan For Organizational Restructuring

INFORMATION MANAGEMENT AND TELECOMMUNICATIONS

The National Park Service requires advanced state of-the-art systems integration and connectivity

to support its mission. This is required at all levels within the organization. More attention to full integration of systems, such as administrative applications, is essential to successfully reduce

workload and corresponding FTEs. We continue to ignore what is "broken" in terms of existing

systems as we direct our efforts to new processes. No new administrative systems will be adopted

that do not interface with current ADP applications. GIS technology will be maintained as close to the user as possible. Ecosystem GIS database management may be organized at the system support

office as defined to meet the needs of the cluster. In line with achieving these goals, Servicewide

Information and Telecommunications policy and support functions now performed in both

Washington, D.C., and in Denver, will be organizationally consolidated and centralized in Denver.

This will not only allow for more efficient management of the program, but will locate the

Service's program where it can more effectively compete in the recruitment of necessary personnel

and will be combined with an existing professional organization that provides an atmosphere for

excellence.

CONTRACTING

While this proposal does not necessarily contemplate greatly increasing the amount of contracting

out, it does reduce existing central/regional office contracting capabilities and acknowledges the

prospect of more contracting out as a result of downsizing. This could require more personnel to manage contracts in other locations, which will be determined during the workload functional

analysis phase of implementation.

The discussion of "Administrative Support Centers" in this report indicates that administration of

warrants (i.e. ensuring that people are properly qualified) would be handled in an Administrative

Center, and that current regional office CO's would likely be assigned to clusters or field units or Centers. In such cases they might be duty stationed in large parks (such as Yosemite), in a System

Support Office, or in DSC, as appropriate.

In the model organizational structure presented, contracting would be located primarily at the

cluster level (with the cluster determining whether to house the function in a park or system office)

with contracting warrant levels significantly increased. To adequately accommodate this,

contracting capability at the cluster/system office level might for certain clusters have to exceed

that contemplated as typical in this proposal.

Clearly, some contracting would also be handled out of National Program Centers. WASO

contracting staff would likely be moved out of headquarters into an Admin Center, much like AOD

in Reston will be taken off the WASO roles and reassigned as a National Program Center without

necessarily any change in geographic location. In addition to managing contract warrant

qualifications/ certifications, they would also administer several national contracts, such as Uniforms, Reservation Systems, etc.

57
Plan For Organizational Restructuring

Until regulatory requirements are modified, it is recognized that the contracting workload will not

decrease; however, higher warrant authority delegated to field CO's will better distribute the

workload and minimize the impact of a reduced central/regional office contracting staff.

Generally, the proposal envisions that contracting will be consolidated where feasible and where

co-located offices lend themselves to that prospect (e.g. in Denver, Washington, D.C., etc.) In

line with this, organizational reassignment and/or relocations of regional office contracting officers

to parks or National Program Centers might occur as implementation proceeds over time, and as funding permits or when jobs are vacated and refilled. Regional CO's could be reassigned to System Support Offices or to parks, depending on the needs of the respective clusters of parks or programs being served — which would largely be left to the discretion of individual Field Directors

and clusters.

EMPLOYEE DEVELOPMENT AND CONTINUING EDUCATION

A vitally important component of this future organization is the continuing improvement of the

knowledge, skills and abilities of each and every National Park Service employee. We recognize

that, in order to make the fundamental cultural change envisioned by the plan, this crucial

component must be organized and prioritized at the highest levels of the organization. Such

employees will be strongly supported to develop and maintain their particular expertise.

The National Leadership Council will be charged with the responsibility for ensuring that all National Park Service employees receive continuing development to excel in carrying out the

mission of our organization. In accomplishing this commitment to continuing education, each field

director will dedicate a minimum of 2 FTEs to be used solely for continuing education. Such

emphasis on this critical function best serves the organizational transition to change in culture.

These cultural changes are based on higher levels of delegation of authority and significantly

increased collaboration and cooperation at all levels. This shift in culture also envisions the

assessment of performance emphasizing collegial successes at least as much as individual

performance.

Expanded programs for all employees will include, but not be limited to, collaborative decision

making, total quality management, customer focused management, legislative affairs, critical

nature of partnerships, leadership vs. management, resource preservation activities, sustainable

practices, ecosystem management and human resource development (including cultural diversity).

Managerial training must be given urgent priority.

Continuing formal education will be emphasized and facilitated. Employees will be encouraged and

assisted in the completion of undergraduate degrees and certification programs; advanced degree

completion will be advocated and supported by the organization.

58
Plan For Organizational Restructuring

In carrying out this program, the National Park Service will draw upon other agencies, the private

sector, and academia to provide the most efficient, effective programs geared to providing the

highest quality employee development for our all employees.

Formal education and training will be supplemented by individual developmental activities.

Managers and supervisors will be encouraged to provide leadership and mentoring activities,

shadow assignments, employee details, cross-training, and other careers enhancement activities.

Employees in all disciplines will be encouraged to broaden their experiences and growth by

exposure, through a variety of ways, to other career fields.

In the near term the National Park Service training program must be focused on managerial,

leadership skills and adapting organizational change to ensure the acquisition of effective skills

needed to lead and manage the NPS so that it can effectively protect parks, serve visitors and

utilize partners in response to the dramatic changes in demands and pressures that are in our

future.

The National Park Service will initiate a formal mentoring program at all levels in the

organization. Particular emphasis will be placed on matching new, first-time Superintendents with an experienced Superintendent.

An essential key to the development of well qualified and able senior managers is work exposure

to the full variety of organizational levels found in the National Park Service. Rotational

assignments of central office staff to systems offices or field units is essential. Similar assignments

of field staff to central offices is equally essential, and will develop employees with more complete

understanding of the organization. Before an individual assumes a field unit superintendency, they

should have completed an assignment in a central office and for a major superintendency, a headquarters assignment. Before an individual assumes a system support office superintendency

they should also have completed a variety of rotational assignments. Before an individual assumes

a field directorship they should have completed various field unit and central office assignments.

The regional desk officer positions proposed for the Headquarters Office in this plan are envisioned as rotational, two to three year assignments, which will provide an ideal opportunity for

exposing future managers from the field to the headquarters, public affairs and legislative arenas.

Equally important is that central office managers complete rotational assignments or details at field

office locations as management assistants or in other responsible positions to become more fully

and directly knowledgeable of field problems and operations.

59
Plan For Organizational Restructuring

Appendix A: FTE ANALYSIS

Proposed Reductions/Reallocations

The chart on the next page shows general estimates of FTE reallocations that would result as this

plan is executed. Many of the working program offices currently assigned to the Washington

Headquarters Office structure will be reassigned organizationally to appropriate national program

centers (e.g. the Accounting Operations Division.) While approximately 403 FTEs will in this

manner be organizationally moved out of the Headquarters Office, only about 60 positions will be

physically relocated out of the Washington, D.C., area.

The current ten regional offices will be restructured into the seven new field director offices and

16 system support offices, five of which will be established at new locations. By identifying the

functions to be performed by the field director and system support offices, FTE levels have been

estimated based on anticipated leadership and service locations as defined in the plan. (FTE totals for the five new system support offices are fewer than for the ten system support offices located in

existing regional office cities. This approach reflects the transitional nature of setting up new

offices and downsizing others.)

This reorganized model for the National Park Service was designed to meet the mandated reduction

in central offices of 1325 FTEs, and to reallocate to field positions the FTE reductions in central

offices beyond those needed to meet the Service's overall reduction allocation. The accompanying

chart indicates the preliminary FTE analysis made in conjunction with development of this plan.

The Department has greatly assisted in mitigating the implications of mandated FTE cuts on the

field operations of the National Park Service. This has allowed minimizing the total number of

required NPS FTE reductions to facilitate reallocation of central office FTE to park units. In

keeping with the philosophy of this plan and Departmental direction, all central office FTE

reductions in excess of those FTEs to be eliminated from the NPS will be reallocated to field units

and functions directly supporting field or partnership programs.

The Service has determined that the need for RIF actions can be greatly reduced by adopting

management practices which do not require immediate transfers to staff offices, but which rely on modern workforce utilization strategies to allow people to work in a location other than their

official organizational office location.

60
coo3

-a

CD cr

.22 co o. n

rec<

UJ

a> to

(0 Q."5co

D) lo £ 00

.c 00

(J CD^ <tf LO

cu CD

0) T5

CD 3 "*

im r—

CD o 25

oo cn o r^ cn

00 co r^ CN CO

ro to

O CO 00 LO 00 «- r~ 00 co <- LO .- rr~ O oo O "* oo o lo

cm to <d CM <* «-

00 .- LO t- CM *

ro

00

CD CD 00 LO 00 CN CO

CO CN

O cn r~ "-; CN

CD CO * T— CN

«- _) <—

CD

LD

CN

oo"

CN

0000

<— LO CO

t-» <t oo

t- LO CN

ooo

00

CO

COO

LJ

U

IScu

u

u

m

LL. CO CI) 3 I Q tx U o

CO

COo

a.a3

COE

cu

CO>

00

CO

l_ o CN cu 00 00 c

00 <t cu o o

CDCL

CD00 o

cu >_ 6^

.!= "D

UC

CO

tr cd O CD U «-

-o > o u_ 2 c

CN

TM

O o

*~1 CO ,- c

en a3

CO 2 ^

*fr cu * a °l

-S

— > "> ra 2> ^ S o — iz Z C CO 1 CN

UJtl

P? o

ro =

h- <

2. lu

rT LL. 5

oo

00oCNco o0- CN oO

CN

CO

CD

IO

-3-

CD

LO

CD

LO

«*+ ooo+ o

LO

CN

00o

<*

LO

oo o

LO

co

O cn

00

CN

CN

COcuuo

"roc

cuoEo3

CJ UJ

(-

U-

"ro O

h- coo

cu

UJHu_XJ

cu '5

cr

cu CC

CO 'c3

T3

CUOacu

roo

_o

"rocu UJHLL

CDO ; CN o

00

co

COo

CD i o

LO

CN

5- o

CO<

CO

cuc

CU u

CD z5

cu Z u

LLX

cj

COQ

CO b

CC

CO b

CO

CO

CO 63u

"roo
Plan For Organizational Restructuring

Allocation of GS-14/15 Positions

One thrust of the National Performance Review is the reduction in the numbers of GS- 14/1 5 graded

positions. Analysis indicates that the National Park Service has already achieved excellent ratios of GS14/15 positions to total employees. Consequently, the Service advocates retaining existing allocations

of GS-14/15 positions, without further reductions, for utilization in support of scientific and other field level needs.

On its own initiative, and in response to earlier grade reduction efforts, the Service has over the past 1

5

years significantly reduced the numbers of GS-14/15 positions as a percentage of total employees from

3.4 percent in 1978 to 1.8 percent by the end of 1993, as illustrated by the following chart:

GS/GM-14s and 15s as a Percentage of Total NPS Employees, 1978-93

3.S

1878 1990 1993

This has put us well below the current land management agency average of 2.6 percent, and even

further below the DOI average of 4.5 percent, as illustrated in the chart on the next page, which

compares the Service's current percentage of GS-14/15's with those of BIA, BLM, USFS, and FWS.

62
Plan For Organizational Restructuring

GS/GM-14s and 15s as Percentage of Total Employees, by Bureau

2

-

DO! Average: 4.5%

Land Management Average: 2.6%

JXSgESSKgKfifl

.''.':

]

r NPS BIA BLM USFS USFWS

The National Park Service has already achieved a ratio of 1:166 in the number of GS-15's to total

employees, and ratio of 1:83 for GS-14's.

The NPS is faced with circumstances where GS-14/15 superintendent positions cannot be consolidated

or further reduced. Each national park unit, being a discrete entity, cannot be combined with others

with a view to reducing GS-14/15 park manager positions. Wherever such possibilities for joint

administration of proximate park units is feasible, the Service has already consolidated site management

responsibilities under one general park manager or area superintendent. Beyond those cases, we have

determined that the remaining parks cannot be managed without their own superintendent and,

consequently, that such positions cannot be cut. The remaining numbers of GS-14/15 superintendents

then become a classification issue, and are graded at the level the particular superintendency classifies

as. For GS-14/15 park superintendent positions the grade is not driven by supervisory responsibilities,

but by what it takes to manage that particular park. Additionally, new parks are coming on line (e.g.

East Mojave.)

It is anticipated that restructuring of the agency and re-engineering of workloads will result in additional

shifts of non-park GS-14/15 positions from central offices to positions directly in support of field operations in resource centers and the parks. These contemplated positions are critically needed there

to put our recruitment of various resource specialists, scientists and other professionals on a competitive

footing with other agencies, universities and the private sector in line with our goals for revitalizing the

National Park Service to meet the challenges of our mission in the 21st Century.

63
Hi

[JU3

in 01

g]

a

rx

H

fl

91

m

h

rl 0) 3 C u U

rH rl 3 m U a» T1 u Cm

4-1 u

a

ojH

rl XI H 01 Q TI

rl 0) 01

4-1 »

id 0) •H 4J

C) C/l

01n<

4-) c c

01 c o o cH

4-1 01

01 < 033 3 8 8

4-> -H

C

_

m

u ^ s

rdo n

•H tJ2§

0J oj 3 U-H

H (X) 'u -H Id

4-1 01

H

m •H

TM

n > u o J

u HI >, oj u u a: 4-1 4J

n c 01 oj aj 3* OJ r-( K F

ri

oj

01 ID t(

C oi IDa Oi o H > •u ,-h

H ^HU 0'

u >-l Ti tJ * a <d cn u a <

on. a;

OJ cms

h a< 01 ra ra 2 3 c c x 1 ll «H O ON

OJ 4J Qj-H -H CO > 10 rl 4J 4-> CQ •h 4J 3 id ra <t o;oiM22I

01c

in

rn -H

vj 1) 3 w

4-1 m J! 2

a, H hi

01

4-1 TJ

CI rl

111 ID

1-1 5 H cu U 4Jw

OJ

4-1 111 rd u H rl u a

(1 1) 01 01 01 01 < oi o3O

01 >-. (U 4-1 b; -h

r-i

<u

U OJ oj

l-i c o 3 -H C £ OJ

01 -h

a

ai 4 u

a: ui <

Dl td

u c A

OJ

H 4-1 < -

4-1 c >-i a< c/i

ffl -H 03 td

M s £ id z td

1-1 to «J C u

01

H

i-i 4-J -H id a rl

OJ

0)

a

4-1 I ) mH J* U M

IIm

01 Lb m<

OJ

OJ

OJC 01 H C

0] 01 o

OJ

C -H

•H td 4-1 4J rd riiJH > 3 H OJ Q* 4-100

a 01

l-i 01

oi o

4-1 c c o M u c

OJ6 CH C

u oj ra >. o

OJ 4-1

H -Uu

01 c o OJ -H c -H OJ IW >

TJ fcj Ci nj c

Oi £ CO c/l Id

C

OJ CO 6 rH

01 rd <H Ol-H -H

era j-i ro C OJ rl 01

rd 4J

H E £ rd cd S C ri 01 rd 01

01 01 -h

OJ 3 J3 ^4 c o a, U TJ rd

OJ >-i .-H SZ

TD rd rd 4J rH N a 3

-h

m ao 3 K < ><

CO 11 - OJ TI

1-1 3 H r,z ua

OJ 01

H

1-1 cn H 01 a rH t: rd

OJ c H

4-1U

rd -H

•H CO r: CO 3

OJ It! CO 14-1 01 < u

04

1-1

4J

C 0) TI

OJ -H 3

1-1 4-1 •h ro CJ Q V4 c

4J

H

OJ CO 4J -H 01 Id C c H -H 11 E H

T> 4J

0) < u

01 c < 3

(14 co

Ol-H C 4-1 •H O C 3 C M

id 4-1 rH CO 04 cO

OJ CJ 01C J

id Oi c >. I 1 01 o I Ol-H -H : C 01 rH I O OJ o 1 j a a4J 4-1 C S

OJ 01 6 £ a <

CO

OJ

CO 01

0] OJ

OJ rH C rH rH

•H

O

01 CJ >-l 3 4-1 m * c O o

rH 10 (J

Id rH OJ

C 01 10 PQ OJ rH OJ O Id 10 e u ji O > rl C C CO >< c C OJ 3 H 4J OI 10 rH OJ C

ro

a tv, c c s JIHTJ

C CO OJ

H ro

C -H

H OJ OJ 4 B 4J >, >-

O 4J

tn OJ 0: OJ

O 4-1 4J-H Dj (0 >, 4J rl 10 rl •H 14 CO 6

<ih

CV 3 rl OJ >-i ai

u aiH in oiu 4J o, 4J rl •naETJOCOO C CO rl 144 £ E 3 3MOnIil •H -H C UUXUtVUtkUSSUH

ex

CO OJ C V4 O rd H J3

4J 03

rdO 4J -H 01 C O 3 U Ie oj O 01 O C

OJ OJ

OJ f^

1-1

4JO

OJ

m

U

M

•H

m

am

rH TJ <

t-\OJ •H

lu

0) c

rl rl H 11 u 4-1 01 TI 0) rH S

lj » 01

rl 11 3

4-> U

C

(11 -H

rl

m

H 4-> 1 1 C3 0

rH

F

niu

•H

V

U. 4JcM O

OJ ^-1 rl m

-H Vl Q 4Jc

T) 01 rH u

rl

4J

CJ

u

(1) 01

rl

m

H 01 a -c

4J TJ 3

rH

OJ CO •H

Cb

rl

4Ju 4J

0) 01

IH ffl -rl 0) Q £

4-1 -n rl rH

OJ Z

•H

In

^-1

<. 10

rl 4-1 -rl 4J a u rd

111 (J

rl •H rH

idC

T)rH

H

OJ 4J H rd b. Z
Plan For Organizational Restructuring

Appendix B: SOURCE DOCUMENTS

"Administrative Careers Futures, Service-wide Administrative Occupation Survey Report, " National Park Service,

undated (April 1994).

"Administrative Service Centers, " Memorandum from Alex Young to Maureen Finnerty, May 5, 1994.

"Alternative Regional Office Configurations: 25% Reduction: Southwest Region, " April 12, 1994.

"Analysis of Regional Boundary Alternatives: Physiographic Divisions, " Midwest Regional Office, May 1994.

"Association of National Park Rangers, " Letter from Rick Gale, President, to the Honorable Bruce Babbitt, March 3, 1994.

"Creating a Government that Works Better and Costs Less, " National Performance Review, September 7, 1993.

"Denver Service Center Staffing: 37% Reduction, " DSC, April 1994.

"Denver Service Center Study, " Memorandum from Assistant Secretary, Policy, Management & Budget, DOI, to Deny Galvin, et al, February 17, 1994.

"Department of the Interior Streamlining Plan, " Letter from Tom Collier, Chief of Staff, to Honorable Leon Panetta, Director, OMB, January 26, 1994.

"Downsizing the Denver Service Center, " Memorandum from Assistant Director, Design & Construction, to Director,

April 29, 1994.

"Education Committee Report, " Vail Committee, May 11, 1994.

"EO Streamlining Proposal: Executive Summary, " National Park Service EO Office, undated.

"EO Streamlining Task Force Recommendation, " NPS, September 16, 1994.

"Equal Opportunity Issues Relative to Reorganization, " Memorandum from Regional Equal Opportunity Manager, NAR,

to Maureen Finnerty, May 26, 1994.

"Expectations, " Memorandum from Deputy Director to Streamlining Work Group, May 12, 1994.

"Field Comments on Organizational Alternatives, " Maria Burks and Mary Martin, June 13, 1994.

"Findings on Reports & Procedures, Delegation of Authority, & Other Streamline Recommendations, " Memorandum from

Reports & Delegation of Authority Streamlining Subcommittee to Deputy Director, April 15, 1994.

"FY 1996 Budget Planning Guidance: Memorandum for Heads of Executive Departments and Agencies, " Director, OMB,

April 21, 1994.

"National Federation of Federal Employees, " Letter from Robert G. Hyde, Acting President, Local 2015, to Director Roger G. Kennedy, July 13, 1994.

"National Parks and Conservation Association, " Letter from NPCA President Paul C. Pritchard to Director Roger G. Kennedy, July 20, 1994.

65
Plan For Organizational Restructuring

"National Park Service; Draft Strategic Plan, " April 19, 1994.

"National Park Service Strategic Plan: Creating Our Future" August 25, 1994.

"National Park Service Streamlining, " Briefing Paper, J. Gingles, Reorganization Steering Committee, August 1, 1994.

"National Performance Review of the Historic Preservation Fund Partnerships, " Historic Preservation Performance Review

Committee, National Park System Advisory Board, March 6, 1994.

"National Park Service Advisory Group on Streamlining: Full Meeting Notes, " April 21-22, 1994.

"NPS Reorganization Plan: Talking Points, " Robt. Stanton/J. Gingles, August 1, 1994.

"Organization: National Park Service, " DOI (145 DM 2, 4, and 9), April 20, 1989.

"Organizational Alignment of Financial Management Related Functions, " Memorandum from

Bonnie R. Cohen, Assistant Secretary, Policy, Management and Budget, DOI, to Assistant Secretaries and Heads of Bureaus and Offices, July 28, 1994.

"Organizational Alternatives from the Work Group on Reorganization, " Reorganization Work Group, Maureen Finnerty,

Chairman, June 4, 1994.

"Outcomes, " Deputy Director to Streamlining Work Group, May 1994.

"Partnership Streamlining Recommendations: Historic Preservation Programs, " WASO Historic Preservation Program Staff, May 5, 1994.

"Partnership Programs, " Memorandum from Destry Jarvis to John Reynolds & Roger Kennedy, May 19, 1994.

"Partnership Streamlining Recommendations, " WASO Preservation & Recreation Partnership Staff, undated.

"Proposal to Re-Engineer the National Park Service in the Northeast, " Marie Rust, Robert Stanton, B.J. Griffin,

April 18, 1994.

"Recommendation for Restructuring the National Park Service, " Reorganization Work Group, Maureen Finnerty, Chairman,

July 1994.

"Recommendation for Restructuring the National Park Service: Informational Summary, " J. Gingles, Reorganization Steering

Committee, August 1, 1994

"Recommendations on Streamlining Regional Offices, " Memorandum from Regional Director, Southeast Region,

to Director, April 15, 1994.

"Regional Realignment Discussions, " Memorandum from Acting Regional Director, Midwest Region, to Chairman,

Council of Regional Directors, undated (March 31, 1994).

"Regional Boundary & FTE Recommendation, " Memorandum from Regional Director, Rocky Mountain Region,

to Regional Director, Southeast Region, undated.

"Reinventing the National Park Service Organization, Proposal for, " Memorandum from Gerry Patten to Roger Kennedy,

et al, October 22, 1993.

66
Plan For Organizational Restructuring

"Reorganization of Planning Program Functions, " Memorandum from Chief, Division of Planning, Grants & Environmental

Quality, WRO, to Assistant Director, Planning, April 4, 1994.

"Report of Regional Consolidation Meeting, " Western Regional Office, March 21-22, 1994.

"Required FTE Reductions, " Memorandum from Director to Directorate, et al, April 29, 1994.

"Revised Data for National Park Service Streamlining Task Force, " Interagency Resources Division, WASO,

March 4, 1994.

"Role of Regional Maintenance Chief Offices - Draft, " Regional Chiefs of Maintenance, June 2, 1994.

"Science & the National Parks II: Adapting to Change, " National Park Service, 1993.

"Strategic Planning for the National Park Service, " Memorandum from Director to All Employees, April 21, 1994.

"Streamlining, " Memorandum National Capital Regional Director Robert Stanton to All National Capital Region Employees,

July 18, 1994.

"Streamlining Activities, " Memorandum from Theresa Trujeque and Jody Kusek to Interior Management Council,

April 21, 1994.

"Streamlining the Interagency Wildland Fire Program, " Memorandum from Director to Regional Directors, April 7, 1994.

"Streamlining the National Park Service; A Report from Director Roger Kennedy, " February 15, 1994.

"Streamlining Update, " Memorandum from Deputy Director to Directorate, May 3, 1994.

"Streamlining/Washington Office Organization, " Memorandum from Assistant Secretary George T. Frampton, Jr., to Director Roger G. Kennedy, September 21, 1994.

"Streamlining/Washington Office Organization, " Memorandum from Deputy Director John Reynolds to Regional Directors,

Associate Directors, et al, September 26, 1994.

"Strengthening & Streamlining the National Park Service, Direction for, " Office of Strategic Planning,

National Park Service, March 2, 1994.

"Sustainable Ecosystems Approach to Reorganization of the National Park Service, " Pacific Northwest Region,

National Park Service, May 17, 1994.

"Transition Accomplished, " Memorandum from Director to All Employees, November 3, 1993.

"U.S. Bureau of Reclamation, Pacific Northwest Region; Executive Summary: Findings & Recommendations from the Region's Organizational Assessment, " San Diego Consulting Group, Inc., May 17, 1994.

"Vail Agenda Partnership Committee Action Plan, " Vail Committee, undated.

"Vision Statement, " Memorandum from Bob Baker to Maureen Finnerty, May 17, 1994.

"Voice of Vail: National Park Service Report to the Field, " February 1994.

"772? West by Ecosystems; Current Field Organization: Idaho, " Bureau of Land Management, November 1993.

67

* U.S. GOVERNMENT PRINTING OFFICE: 1994 - 674-103 / M7588 REGION NO. 8

fls&fc,

DATE DUE

Ret'd.

fajj o

As the nation's principal conservation agency, the Department of the Inl nationally owned public lands and natural resources. This includes fost resources; protecting our fish, wildlife, and biological diversity; preservir

of our national parks and historical places; and providing for the enjoyi

The department assesses our energy and mineral resources and works tc best interests of all our people by encouraging stewardship and citizen p; also has a major responsibility for American Indian reservation commu

territories under U.S. administration.

NPS D-1006, December 1994

DEMCO, INC. 38-2931
United States Department of the Interior • National Park Service