June 19, 2002
The Honorable James
M. Jeffords, Chairperson
Environment and
Public Works Committee
The United States
Senate
410 Dirksen Senate
Office Building
Washington, DC 20510-6175
Re:
Written Testimony for Hearing of Committee on Environment and Public
Works – June 25, 2002
Dear
Senator Jeffords:
As President of the
United States Ombudsman Association (USOA), I am submitting this written
testimony in regard to S. 606, the bill which proposes the reauthorization of
the Office of the Ombudsman of the Environmental Protection Agency. As our Nation’s oldest and largest
organization of ombudsmen working in government to address citizen complaints,
the membership of the USOA includes practicing ombudsmen at all levels of
government, some of whom have general jurisdiction, and others who have
jurisdiction over a specified subject matter or agency. (Detailed information regarding the USOA can
be found at the Association’s website:
http://www.usombudsman.org/.) As
a matter of good public policy, the USOA supports the establishment of
independent ombudsman’s offices for the investigation and resolution of
complaints involving administrative agencies in government at all levels. An ombudsman can serve as an independent
office not only to address individual concerns, but also to identify systemic
problems and recommend improvements in policies, practices, and
procedures. An ombudsman can also help
in the important effort to provide public and, indeed, legislative oversight of
administrative agencies in government.
In view of recent
developments regarding the operation of the EPA’s Ombudsman’s Office, the USOA
believes that it is critical that Congress act now to reauthorize and
strengthen that office. To the extent
that S. 606 would accomplish this end, the USOA supports that bill, in
principle. However, the USOA also
believes that S. 606 will have to be substantially changed from its present
form, if the bill is to meet the need for a truly independent and effective
ombudsman in the EPA. Based upon our
collective years of experience as practicing ombudsmen in government, we are
writing today to offer our suggestions for improvements to that bill.
Our Association
believes that the most important element in the design an effective ombudsman’s
office in government is structural independence, that is, structurally
separating the ombudsman from the agency under the ombudsman’s
jurisdiction. Under S. 606 in its
current form, however, the EPA Ombudsman would continue be structurally
situated within the EPA. The EPA
Ombudsman would report directly to the EPA Administrator and would presumably
be subject to being hired and fired by that official. In addition, the Administrator would have oversight authority to
direct the work of the Ombudsman, including activities and decisions related to
investigations and reports. This
structure makes it extremely difficult for the Ombudsman to feel free to
criticize, when appropriate, the actions of the Administrator or other officials
under the Administrator’s supervision.
In light of these features, the USOA is concerned that S. 606 in its
current form would not provide the EPA Ombudsman with the independence
necessary for that office to function effectively.
It is widely
understood by students and practitioners of the ombudsman institution in
government that structural independence is a critical element in the design of
any effective ombudsman’s office. Our
experience has shown that it is crucial that the ombudsman be protected from
the potential of interference by officials who might be inconvenienced or
embarrassed by the ombudsman’s investigations and criticisms. Indeed, we believe that the recent events
involving the previous EPA Ombudsman offer a textbook example of how administrators
will interfere with the operation of internal agency ombudsmen. Thus, the USOA believes that, to the
greatest extent possible, an ombudsman in government should be structurally
separated from the entities that are subject to the ombudsman’s review or
investigations.
This independence allows the ombudsman to act, and to be viewed
by the public as acting, as an impartial official who reports findings and
recommendations based on an objective review of the facts and the applicable
law.
The USOA believes
that the best way to make an ombudsman truly independent is by situating the
ombudsman’s office in the legislative branch of government. Indeed, the model for an ombudsman’s office
in government that is internationally recognized as the preferred model is one
that situates the ombudsman in the legislative branch, as opposed to making the
ombudsman a part of the administrative agency itself. This model has worked remarkably well, not only in scores of
countries around the world, but also in our country in the states of Alaska,
Arizona, Hawaii, Iowa and Nebraska. In
light of this, the USOA would recommend
that Congress explore the possibility of changing S. 606 to create a truly
independent legislative ombudsman for the EPA, perhaps by situating the office
in the GAO.
If an arrangement
situating the ombudsman in the legislative branch is not viewed to be feasible,
then our Association would recommend that everything reasonably possible should
be done to maximize an ombudsman’s independence within the agency where the
office is situated. To that end, the
USOA would recommend that S. 606 be amended by making the following changes:
Appointment of the Ombudsman: We
would suggest that the Ombudsman should not be appointed by anyone within the
EPA, the EPA Administrator included.
With that in mind, our Association would recommend that the bill be
amended to provide that, similarly to Inspectors General, the EPA Ombudsman
“shall be appointed by the President, by and with the advice and consent of the
Senate.” We would also suggest that S.
606 be amended to specify that the EPA Ombudsman shall be appointed for a
specific term of years, as is typically done with ombudsmen in government.
Removal of the Ombudsman: We
would also suggest that S. 606 be amended to make it clear that neither the EPA
Administrator, nor any other officer in the EPA, for that matter, shall have
the authority to remove the Ombudsman from office. Specifically, we would recommend that S. 606 be amended to
provide that the Ombudsman “may be removed from office only by the President,”
and that the “President shall communicate the reasons for any such removal to
both Houses of Congress.”
Interference with the
Ombudsman: While S. 606 does require “cooperation” with
the EPA Ombudsman, the USOA believes that, consistent with provisions of
federal law relating to Inspectors General, there also needs to be a specific
clause in the bill forbidding interference with the Ombudsman. In that regard, we would recommend the
addition of a provision stipulating that “neither the Administrator nor any
other officer or employee of the Environmental Protection Agency shall prevent
or prohibit the Ombudsman from initiating, carrying out, or completing any
investigation, or from issuing any report, or from issuing any subpoena during
the course of any investigation.”
Again, our
Association would stress that we believe that the best approach to protecting
the independence of the Ombudsman is through situating the office in the
legislative branch of government. The
recommendations outlined above are offered only as an alternative, if it is
determined that a true legislative ombudsman for the EPA is not feasible.
In addition to
these recommendations on the subject of ombudsman independence, the USOA has a
few additional suggestions for changes that we feel would improve S. 606. Specifically, the USOA would further
recommend that S. 606 be amended by making the following changes:
Access to the Administrator: The
USOA believes that an agency ombudsman, like an agency inspector general,
should be guaranteed quick and easy access to the chief executive of the
agency. With that in mind, our
Association would suggest that a provision be added to S. 606 to specify “the
Ombudsman shall have direct and prompt access to the Administrator, when
necessary for any purpose pertaining to the performance of functions and
responsibilities under this Act.”
Subpoena Power: As
drafted, S. 606 requires the EPA Ombudsman to ask the EPA Inspector General for
the issuance of a subpoena needed in connection with an Ombudsman’s
investigation. Typically, ombudsmen in
government have unilateral subpoena power.
Our Association believes that requiring the EPA Ombudsman to go through
the Inspector General to obtain a subpoena would invite the IG’s office to
second guess and, perhaps, to interfere with Ombudsman investigations. As an alternative, the USOA would suggest
that Section 2008(d)(3) of S. 606 be amended to state that “in a case in which
the Ombudsman experiences difficulty in gathering information pertaining to an
investigation conducted by the Ombudsman, the Ombudsman may require by subpoena
the production of all information, documents, reports, answers, records,
papers, and other data and documentary evidence necessary in the performance of
the functions assigned to the Ombudsman by this Act, which subpoena, in the
case of contumacy or refusal to obey, shall be enforced by order of any
appropriate United States district court.”
Special Reports:
Section 2008(e)(4) of S. 606 requires the EPA Ombudsman “at least annually”
to publish a report “on the status of health and environmental concerns
addressed in complaints and cases brought before the Ombudsman.” Typically, ombudsman legislation also makes
it clear that the ombudsman is empowered to publish special or “critical”
reports, when the ombudsman deems it necessary to do so to bring an issue to
the attention of the public and the policy makers. With that in mind, the USOA would suggest that Section 2008(e)(4)
of S. 606 be amended to specify that “the Ombudsman shall also be authorized to
publish such special reports as are, in the judgment of the Ombudsman,
necessary or desirable.”
In summary, the
USOA enthusiastically supports action by Congress to reauthorize and strengthen
the EPA Ombudsman. In addition, the
USOA urges that, as S. 606 is being considered, Congress give particular
attention to changing the bill in ways that would maximize the independence of
the ombudsman to the extent feasible.
Our Association would suggest that this focus upon independence,
together with the other changes that we have outlined in this letter, would
give the EPA Ombudsman the best chance to function effectively.
If the USOA can
provide any information or assistance as your Committee considers and evaluates
S. 606, then please contact either Mr. Marshall Lux or me. The United States Ombudsman Association
appreciates and thanks you for the time and resources you are devoting to this
important issue.
Sincerely,
Robin K. Matsunaga,
President
United States
Ombudsman Association
c: Members – Environment & Public Works
Committee
Co-Sponsors – S. 606
Contact
Information:
Marshall Lux,
Ombudsman
State of Nebraska –
Office of the Ombudsman
Tel:
1-402-471-2035; Fax: 1-402-471-4277
E-mail:
mlux@unicam.state.ne.us
Robin K. Matsunaga,
Ombudsman
State of Hawaii –
Office of the Ombudsman
Tel:
1-808-587-0770; Fax: 1-808-587-0773
E-mail:
robin.matsunaga@ombudsman.state.hi.us