FY 2006 Performance Budget Justification
FY 2006 Budget Request Summary and Highlights
The
Federal Co-Chair requests $65.472 million in
direct appropriations for the Appalachian Regional Commission (ARC) to
implement the Appalachian Regional Development Act (ARDA) Amendments of
2002, which authorizes the Commission through 2006. (This
amount includes funds for 11 Federal full-time equivalent positions and
half the funding for 48 non-Federal Commission full-time equivalent positions.) This request is substantially
less than the authorized $92 million level and is vital for positioning
the Appalachian region for vigorous, self-sustaining growth. The request
is the same as the enacted appropriation for fiscal year 2005.
Appalachia's
socioeconomic problems are widespread and generational. The region still
does not enjoy the same economic vitality and living conditions as the
rest of the country. The region continues to battle economic distress
because its economy is disproportionately dependent on extractive industries
and manufacturing, infrastructure development lags, and human capital and
leadership deficits persist in many areas. Concentrated areas of high
poverty, persistent unemployment, and low incomes—exacerbated by inadequate
health care, educational disparities and out-migration—still prevent many
Appalachians from participating fully in the American economy. Although
the long-term problems of Appalachia have cost the nation dearly, the region
continues to receive less federal assistance per capita than the rest of
the country for economic development. (Analyses of the
Consolidated Federal Funds Report for 2002 by ARC and the Census Bureau
found that total direct federal expenditures and obligations in Appalachia
were $783 less per capita than in the rest of the country. The total difference
in federal grants alone is approximately $5.4 billion annually.)
Return on Investment
Historically, ARC projects have proven cost-beneficial. For example,
a recent outside study, Evaluation of the Appalachian Commission's
Infrastructure and Public Works Program Projects, examined 99 projects
initiated and completed between 1990 and 1997. It found that there
was a 33 to 1 return for every ARC dollar invested in terms of income
from jobs created. For a one-time public investment in these economic
development projects, there was approximately $9 of annual recurring
personal income per public dollar invested. The investment in the
Appalachian Development Highway System has resulted in efficiency
benefits of $1.10 for each $1 invested; and economic development
benefits of $1.32 for each $1 invested.
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ARC was created with the vision of closing the socioeconomic
gaps between the region and the rest of the U.S., and the agency has a
strategic plan in place with a mission to be a strategic partner and advocate
for sustainable community and economic development in Appalachia.
The
ARC mission builds on the important assets that Appalachia possesses: a
rich cultural heritage, substantial natural resources, a spirit of independence,
and a dedicated workforce. ARC seeks to capitalize on these assets.
ARC
achieves its mission by promoting economic and community development through
a framework of joint federal and state initiative. No other agency of government
is charged with addressing Appalachian problems and opportunities by simultaneously
being an advocate, knowledge builder, investor, and partner at the federal,
state, and local levels. Advocacy builds alliances among private and public
organizations to focus technical, financial, and policy resources to assist
the region. Knowledge building capitalizes on ARC's unique perspective
to study regional issues through research, regional forums, advisory councils,
and community meetings. Investing flexible funds provides seed capital,
gap funding, and support for innovation while leveraging about ten dollars
for each ARC dollar. The cumulative effect of this work over the years
has helped transform the region, although much remains to be done.
Because
of its partnership structure and flexible problem-solving approach, ARC
is often able to identify and help fund innovative grass roots initiatives
that might otherwise languish as missed opportunities, and to jumpstart
new projects that help communities develop regional economic development
opportunities. In many cases, ARC functions as a predevelopment agency,
providing modest amounts of initial funding that are unavailable from other
sources. ARC shares successes, so that initiatives like ARC's Appalachian
Higher Education Program can be replicated effectively across the region.
ARC's
grant funding is different than that of line federal agencies. For example,
ARC:
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Targets
50 percent of its funds to very narrowly defined distressed counties and/or
distressed areas;
-
Funds
small projects that would typically not meet the threshold of other federal
economic development agencies but are essential for addressing deeply rooted
regional problems,
-
Funds
projects that use new approaches to tackle local problems;
-
Provides
the critical dollars for many initiatives so that they qualify for other
public and private sources of funds; and
-
Provides
funding to assist distressed communities in conducting feasibility studies
for capitalizing on economic opportunities.
Through
the years, ARC has also effectively used its funds to help communities
make better use of limited resources from other federal agencies, as the
ARDA envisioned. ARC funds have been used to supplement and complement,
not duplicate, funding from 12 federal agencies over the years. Combined
federal, state, local, and private funds have provided a broad program
of assistance to the region. In 2004, the Interagency Coordinating Council
for Appalachia, chaired by the ARC Federal Co-Chair, has highlighted interagency
collaboration and shared funding opportunities, with the aim of increasing
attention to Appalachian problems among the line federal agencies.
There
has been substantial and enduring payoff for ARC grants. A recent study
of Commission infrastructure projects demonstrated that for every one-dollar
invested by ARC between 1990 and 1997 Appalachia gained 33 dollars in long-term
benefits.
ARC
is a performance-driven organization, evaluating progress and results on
an ongoing basis and relying on clearly defined priorities and strategies
for achieving them. Based on performance information, ARC adjusts its
strategies, emphasizing what works and discontinuing what does not, to
ensure maximum return for taxpayers.
During
FY 2004, the Commission completed a new Strategic Plan for 2005-2010 to
refocus its resources and activities, setting a new set of goals and strategies
for tackling Appalachian economic problems. The Plan envisions Appalachia
reaching socioeconomic parity with the rest of the country. It focuses
on the predominant inhibitors – regional isolation and preparedness for
being economically competitive. This logic specifically addresses Congress'
mandate set out in the Appalachian Regional Development Act of 1965, and
its rationale for creating a federal/state partnership model cutting across
traditional categorical federal programs. It ensures not only that the
large federal highway investment in Appalachia does not result in roads
to bypass or escape the region, but also provides the related investments
that can catalyze economic development benefiting both the region and the
U.S. economy as a whole. The four general goals are inter-related. Reducing
isolation is necessary but not sufficient to ensure regional competitiveness.
Investments in people, basic infrastructure, and job opportunities must
be made as well. The logic model for these important goals and the accompanying
set of critical strategies is included in the budget justification on page
24.
OMB has conducted a first PART review of the Commission program and issued
a score of Adequate. The PART assessment awarded high scores for clarity
of purpose, planning, and management. It also noted progress in developing
outcome-related measures, but acknowledged the difficulty of performance
measurement because ARC co-funds projects with other agencies. The Administration
plans to continue focusing ARC efforts on distressed areas, revising performance
measures, and sharing performance data and research results among federal
agencies to better understand the link between federal investment and community
change.
The
Commission will continue to designate the most severely distressed counties
and areas in the region as a strategy for targeting resources to the greatest
need and addressing the priority for funding those areas under its 2002
reauthorization statute. The severely distressed designations identify
the parts of the region that have substantial pre-developmental needs and
few resources to address them through traditional federal programs.
ARC's
four strategic goals will guide Area Development funding in FY 2006, enabling
the Commission to address compelling needs in the region and to build on
its assets:
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Increase Job Opportunities
and Per Capita Income. ARC will with its state, regional, and
local, partners, create and retain jobs. ARC will continue to promote
entrepreneurship
in strategies to diversify the economy of Appalachia by emphasizing
the region's unique assets such as its rich cultural heritage,
natural resources, and natural beauty of the region are unique
assets that can and should
be a basis for strategies to diversify the economy of Appalachia.
-
Strengthen Capacity of
the People to Compete in the Global Economy. Education and
health care are essential components for Appalachian residents
to compete in the world economy.
Skills and training must be upgraded, and health-related problems
must be reduced. Emphases will be placed on reducing the gap in
college-going
rates between Appalachia and the rest of the country. Additionally,
efforts will focus on vocational training and moderate- to long-term
on-the-job
training. Health care efforts will focus on reducing the disproportionately
high rates of chronic diseases such as cardiovascular disease,
cancer, and diabetes. Gains in education and health will contribute
to the region's workforce participation and productivity.
-
Develop and Improve Appalachia's
Infrastructure. Clean water is the most basic infrastructure
requirement for health and economic growth. Few Americans realize
that many distressed Appalachian communities still lack this
basic infrastructure.
The Commission will continue to focus on essential water and
sewer facilities. In addition, ARC will continue its emphasis
on expanding access to high-speed
telecommunications, which is critical to Appalachia's future.
Without adequate broadband communications, the region's businesses
and institutions
will continue to lag behind the rest of the nation, and the potential
for growth of technology-related industries will be impaired.
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Build the Appalachian
Development Highway System. Completion of the ADHS is critical to provide mobility and
access to markets for Appalachian communities and businesses and reducing
the historic geographic isolation of the region.
The
Commission is also committed to implementing the President's Management
Agenda. The ARC governance model is ideally suited for implementing it. Detailed
discussion regarding progress is included as Appendix A.
Table
1 shows the general goals in the Plan and the performance targets for each
goal in 2006. During FY 2006, ARC will achieve its goals by investing $15
million to increase job opportunities; $14 million to improve employability
of the Appalachian workforce; $36.5 million to improve infrastructure,
including $5 million for telecommunications; and approximately $450 million
from the Highway Trust Fund to build approximately 25 additional miles
of highway. The Commission will work with its partners in Appalachian states
and communities to identify specific local projects that address the Strategic
Plan. These investment areas will change over time as some problems are
solved and new issues and needs emerge.
The
performance plan anticipates that the 2006 ARC program would create or
retain 20,000 jobs; position 20,000 Appalachians for enhances employability;
provide basic infrastructure services to 20,000 households; provide broadband
service to 5 communities for each $1 million invested in telecommunications;
and build 25 miles of the ADHS. At least 50 percent of non-highway grant
funds would benefit distressed counties and areas. Target investment ratios
for grants would be 4 private sector dollars to each ARC dollar for economic
diversification projects; 1 non-ARC dollar to each ARC dollar in employability
projects; and at least 2 non-ARC dollars to each ARC dollar invested in
infrastructure projects.
Table
2 summarizes the request for FY 2006. The attached budget justification
explains and supports the Federal Co-Chair's request for resources to respond
to this mandate.
Table 1
ARC Goals and 2006 Targets
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General Goal
|
Targets for 2006
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Increase Job Opportunites and Per Capita Income
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- Create/retain
20,000 jobs for Appalachians
- Achieve a 4:1
investment ratio for economic diversification projects
- Direct 50% of
grant funds to benefit distressed counties/areas
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Strengthen Capacity of the People to Compete in the Global
Economy
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- Position 20,000
Appalachians for enhanced employability
- Achieve a 1:1
average investment ratio for employability projects
- Direct 50% of
grant funds to benefit distressed counties/areas
|
Develop and Improve Infrastructure
|
- Provide 20,000
households with basic infrastructure services
- Expand broadband
service to 5 communities for every $1M invested
- Achieve a 2:1
average investment ratio for infrastructure projects
- Direct 50% of
grant funds to benefit distressed counties/areas
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Build the Appalachian Development Highway System to Reduce
Isolation
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- Build 25 miles
of the ADHS
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Table 2
Summary of FY 2006 Request by Performance Goal ($ Millions)
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Program Funding
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Local Development District Planning
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Salaries & Expenses
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Total Request
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Goal 1: Increase Job Opportunities
and Per Capita Income
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12.8
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1.1
|
1.1
|
15
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Goal 2: Strengthen Capacity of the
People to Compete in the Global Economy
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11.9
|
1.1
|
1
|
14
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Goal 3: Develop and Improve Infrastructure
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30.1
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3.2
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3.2
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36.5
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Goal 4 Build the Appalachian Development
Highway System
|
|
|
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[450]*
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Total Current Request
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54.8
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5.4
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5.3
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65.5
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* Anticipated financing from the Highway Trust Fund under pending SAFE-TEA
legislation
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