Handbook

A Handbook for
Measuring
Employee
Performance:

Aligning Employee Performance Plans
with Organizational Goals

UnitedStatesOfficeof
Personnel Management PMD-13
WorkforceCompensation andPerformanceService RevisedJanuary2001

Table of Contents

Foreword . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Chapter 1 Performance Management: Background and Context . . . . . 3

Chapter 2 Distinguishing Activities From Accomplishments . . . . . . . . . 11
The Fable of the Beekeepers and Their Bees . . . . . . . . . . . . . . . . . . . 11
A Balanced Measuring System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
A Word About Categories of Work . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16

Chapter 3 Developing Employee Performance Plans . . . . . . . . . . . . . . . 19
Step 1 Look at the Overall Picture . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
Step 2 Determine Work Unit Accomplishments . . . . . . . . . . . . . . . . . 26
Method A: Goal Cascading Method . . . . . . . . . . . . . . 27
Method B: Customer-Focused Method . . . . . . . . . . 30
Method C: Work Flow Method . . . . . . . . . . . . . . . . . . 33
Step 3 Determine Individual Accomplishments . . . . . . . . . . . . . . . . . 37
Step 4 Convert Accomplishments Into Performance Elements . . . 41
Step 5 Determine Measures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45
Step 6 Develop Standards . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50
Step 7 Determine How to Monitor Performance . . . . . . . . . . . . . . . . . 58
Step 8 Check the Performance Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . 63

Chapter 4 Learning Aids . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 67
Performance Measurement Quiz With Answers . . . . . . . . . . . . . . . . . 67
Quick Reference for Developing Performance Plans
That Align With Organizational Goals . . . . . . . . . . . . . . . . . . 69

Appendix A: Examples of Standards Written at Five Levels . . . . . . . . . 73
Appendix B: Examples of Standards Written at Three Levels . . . . . . . . 77
Appendix C: Examples of Standards Written at Two Levels . . . . . . . . . 81

Foreword
This handbook is designed for Federal supervi- C Chapter 1 gives the background and context
sors and employees and presents an of performance management that you will
eight-step process for developing employee need to understand before beginning the
performance plans that are aligned with and eight-step process;
support organizational goals. It also provides C Chapter 2 defines accomplishments— which
guidelines for writing performance elements and is key to using this handbook successfully;
standards that not only meet regulatory require- C Chapter 3 includes a detailed description of
ments, but also maximize the capability that the eight-step process for developing em-
performance plans have for focusing employee ployee performance plans that are aligned
efforts on achieving organizational and group with and support organizational goals.
goals. C Chapter 4 provides study tools, including a
followup quiz and a quick reference for the
The methods presented here are designed to eight-step process.
develop elements and standards that measure C The appendices contain standards intended
employee and work unit accomplishments to serve as illustrations of standards written
rather than to develop other measures that are for appraisal programs that appraise perfor-
often used in appraising performance, such as mance on elements at five, three, and two
measuring behaviors or competencies. levels.
Although this handbook includes a discussion of
the importance of balancing measures, the main After reading the instructional material, studying
focus presented here is to measure accomplish- the examples, and completing the exercises in
ments. Consequently, much of the information this book, you should be able to:
presented in the first five steps of this eight-step C develop a performance plan that aligns indi-
process applies when supervisors and employ- vidual performance to organizational goals;
ees want to measure results. However, the C use a variety of methods to determine work
material presented in Steps 6 through 8—about unit and individual accomplishments;
developing standards, monitoring performance, C determine the difference between activities
and checking the performance plan—apply to and accomplishments; and
all measurement approaches. C explain regulatory requirements for
employee performance plans.
The handbook has four chapters and
appendices:

A Handbook for Measuring Employee Performance 1

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2 Performance Management Practitioner Series

Chapter 1
Performance Management:
Background and Context
Remember the story about the naive student Performance management is the systematic pro-
in his first English literature course who was cess of:
worried because he didn’t know what prose
was? When he found out that prose was • planning work and setting expectations,
ordinary speech, he exclaimed, “Wow! I’ve C continually monitoring performance,
been speaking prose all my life!” • developing the capacity to perform,
• periodically rating performance in a
Managing performance well is like speaking summary fashion, and
prose. Many managers have been “speaking”
• rewarding good performance.
and practicing effective performance manage-
ment naturally all their supervisory lives, but
The revisions made in 1995 to the Govern-
don’t know it!
mentwide performance appraisal and awards
regulations support “natural” performance man-
Some people mistakenly assume that perfor-
agement. Great care was taken to ensure that
mance management is concerned only with fol-
the requirements those regulations establish
lowing regulatory requirements to appraise and
would complement and not conflict with the
rate performance. Actually, assigning ratings of
kinds of activities and actions effective managers
record is only one part of the overall process
are practicing as a matter of course.
(and perhaps the least important part).

Performance Management’s Five Key Components


Performance Management: Background and Context

Planning. In an effective organization, work atic standards. By monitoring continually, su-
is planned out in advance. Planning means pervisors can identify unacceptable performance
setting performance expectations and goals for at any time during the appraisal period and pro-
groups and individuals to channel their efforts vide assistance to address such performance
toward achieving organizational objectives. rather than wait until the end of the period when
Getting employees involved in the planning pro- summary rating levels are assigned.
cess will help them understand the goals of the
organization, what needs to be done, why it Developing. In an effective organization,
needs to be done, and how well it should be employee developmental needs are evaluated
done. and addressed. Developing in this instance
means increasing the capacity to perform
The regulatory requirements for planning employ- through training, giving assignments that intro-
ees’ performance include establishing the ele- duce new skills or higher levels of responsibility,
ments and standards of their performance ap- improving work processes, or other methods.
praisal plans. Performance elements and stan- Providing employees with training and devel-
dards should be measurable, understandable, opmental opportunities encourages good per-
verifiable, equitable, and achievable. Through formance, strengthens job-related skills and
critical elements, employees are held account- competencies, and helps employees keep up
able as individuals for work assignments or with changes in the workplace, such as the in-
responsibilities. Employee performance plans troduction of new technology.
should be flexible so that they can be adjusted
for changing program objectives and work Carrying out the processes of performance
requirements. When used effectively, these management provides an excellent opportunity
plans can be beneficial working documents that for supervisors and employees to identify devel-
are discussed often, and not merely paperwork opmental needs. While planning and monitoring
that is filed in a drawer and seen only when work, deficiencies in performance become evi-
ratings of record are required. dent and should be addressed. Areas for
improving good performance also stand out,
Monitoring. In an effective organization, and action can be taken to help successful
assignments and projects are monitored contin- employees improve even further.
ually. Monitoring well means consistently meas-
uring performance and providing ongoing feed- Rating. From time to time, organizations find
back to employees and work groups on their it useful to summarize employee performance.
progress toward reaching their goals. This helps with comparing performance over
time or across a set of employees.
Regulatory requirements for monitoring perfor- Organizations need to know who their best
mance include conducting progress performers are.
reviews with employees where their perfor-
mance is compared against their elements and Within the context of formal performance ap-
standards. Ongoing monitoring provides the praisal requirements, rating means evaluating
supervisor the opportunity to check how well employee or group performance against the
employees are meeting predetermined standards elements and standards in an employee’s
and to make changes to unrealistic or problem- performance plan and assigning a summary rat-



ing of record. The rating of record is assigned dards, but they also take care to develop the
according to procedures included in the organiza- skills needed to reach them. They also use for-
tion’s appraisal program. It is based on work mal and informal rewards to recognize the be-
performed during an entire appraisal period. havior and results that accomplish their mission.
The rating of record has a bearing on various All five components working together and sup-
other personnel actions, such as granting within- porting each other achieve natural, effective
grade pay increases and determining additional performance management.
retention service credit in a reduction in force.
Employee Performance Plans
Rewarding. In an effective organization,
rewards are used well. Rewarding means rec- Employees must know what they need to do to
ognizing employees, individually and as mem- perform their jobs successfully. Expectations
bers of groups, for their performance and for employee performance are established in
acknowledging their contributions to the agen- employee performance plans. Employee per-
cy’s mission. A basic principle of effective formance plans are all of the written, or other-
management is that all behavior is controlled by wise recorded, performance elements that set
its consequences. Those consequences can
and should be both formal and informal and
both positive and negative. A Note About Performance Plans:
This handbook is about developing employee
Good managers don’t wait for their organi- performance plans. However, there is
zation to solicit nominations for formal another type of performance plan that you
awards before recognizing good perfor- need to be aware of. The Government Per-
mance. Recognition is an ongoing, natural formance and Results Act of 1993 requires
part of day-to-day experience. A lot of the each agency to prepare an annual perfor-
actions that reward good performance—like mance plan covering each program activity set
saying “Thank you”—don’t require a spe- forth in its budget. These organizational per-
cific regulatory authority. Nonetheless, formance plans:
awards regulations provide a broad range of C establish program-level performance goals
forms that more formal rewards can take, that are objective, quantifiable, and mea-
such as cash, time off, and many recognition surable;
items. The regulations also cover a variety C describe the operational resources needed
of contributions that can be rewarded, from to meet those goals; and
suggestions to group accomplishments. C establish performance indicators to be used
in measuring the outcomes of each pro-
Performance Management as gram.
Prose. Good managers have been speak-
ing and practicing effective performance We will be using organizational performance
management all their lives, executing each plans during Step 1 of the eight-step process
key component process well. They not only presented in this handbook. Organizational
set goals and plan work routinely, they mea- performance plans are key in the process of
sure progress toward those goals and give aligning employee performance with organi-
feedback to employees. They set high stan- zational goals.



forth expected performance. A plan must elements, which can result in the employee’s
include all critical and non-critical elements and reassignment, removal, or reduction in grade.
their performance standards. Consequently, critical elements must describe
work assignments and responsibilities that are
Performance elements tell employees what they within the employee’s control. For most
have to do and standards tell them how well employees this means that critical elements can-
they have to do it. Developing elements and not describe a group’s performance. How-
standards that are understandable, measurable, ever, a supervisor or manager can and should
attainable, fair, and challenging is vital to the be held accountable for seeing that results mea-
effectiveness of the performance appraisal pro- sured at the group or team level are achieved.
cess and is what this handbook is all about. Critical elements assessing group performance
may be appropriate to include in the perfor-
Federal regulations define three types of ele- mance plan of a supervisor, manager, or team
ments: critical elements, non-critical elements, leader who can reasonably be expected to
and additional performance elements. Agency command the production and resources neces-
appraisal programs are required to use critical sary to achieve the results (i.e., be held individu-
elements (although the agency may choose to ally accountable).
call them something else), but the other two
types can be used at the agency’s option. Non-critical Elements. A non-critical
Before continuing further with this handbook, element is a dimension or aspect of individual,
you should contact your human resources office team, or organizational performance, exclusive
to determine the types of elements your of a critical element, that is used in assigning a
appraisal program allows. summary level. Important aspects of non-criti-
cal elements include:
Critical Elements. A critical element is an
assignment or responsibility of such importance
that unacceptable performance in that element A Note about Group or Team
would result in a determination that the employ- Performance: The term “group or
ee’s overall performance is unacceptable. Reg- team performance” can be confusing
ulations require that each employee have at least sometimes. When we say that critical ele-
one critical element in his or her performance ments cannot describe group performance,
plan. Even though no maximum number is we are saying that the group’s perfor-
placed on the number of critical elements possi- mance as a whole cannot be used as a crit-
ble, most experts in the field of performance ical element. This does not preclude de-
management agree that between three and scribing an individual’s contribution to the
seven critical elements are appropriate for most group as a critical element. The key to
work situations. distinguishing between group performance
and an individual’s contribution to the
Critical elements are the cornerstone of individ- group is that group performance is mea-
ual accountability in employee performance sured at an aggregate level, not for a single
management. Unacceptable performance is employee. An individual’s contribution to
defined in section 4301(3) of title 5, United the group is measured at the individual em-
States Code, as failure on one or more critical ployee level.



how an appraisal program is designed, this
No Performance-based Actions. Failure on a need not be the case. Even though consider-
non-critical element cannot be used as the basis ation of non-critical elements cannot result in
for a performance-based adverse action, such assigning an Unacceptable summary level,
as a demotion or removal. Only critical ele- appraisal programs can be designed so that
ments may be used that way. Moreover, if an non-critical elements have as much weight or
employee fails on a non-critical element, the more weight than critical elements in deter-
employee’s performance cannot be summarized mining summary levels above Unacceptable.
as Unacceptable overall based on that failure. NOTE: Before you can use non-critical elements
in employee performance plans, you must deter-
C Group Performance. Non-critical mine if your appraisal program allows them.
elements are the only way an agency can
include the group’s or the team’s perfor- Additional Performance Elements. An
mance as an element in the performance plan additional performance element is a dimension
so that it counts in the summary level. For or aspect of individual, team, or organizational
example, team-structured organizations might performance that is not a critical element and is
use a non-critical element to plan, track, and not used in assigning a summary rating level.
appraise the team on achieving its goals. To The essential difference between a non-critical
do this, each team member’s performance element and an additional performance element
plan would include the “team” element (i.e., a is that non-critical elements do affect the sum-
non-critical element) and the rating for the mary level. Otherwise, the features and limita-
team on that element would be counted in the tions of non-critical elements discussed above
summary level of each team member. also apply to additional performance elements.
Opportunities for using additional performance
C When They Can’t Be Used. Non-critical elements include:
elements cannot be used in appraisal pro-
grams that use only two levels to summarize C New Work Assignment. Managers and
performance in the rating of record. This is employees may want to establish goals, track
because they would have no effect on the and measure performance, and develop
summary rating level and, by definition, they skills for an aspect of work that they do not
must affect the summary level. (That is, in a believe should count in the summary level.
two-level program, failure on non-critical ele- For example, if an employee volunteered to
ments cannot bring the summary level down work on a new project that
to Unacceptable, and assessments of non- requires new skills, an additional performance
critical elements cannot raise the summary element describing the new assignment pro-
level to Fully Successful if a critical element vides a non-threatening vehicle for planning,
is failed.) measuring, and giving feedback on the
employee’s performance without counting it in
C Can Greatly Affect the Summary Level. the summary level.
Sometimes the word “non-critical” is interpre-
ted to mean “not as important.” Prior to C Group Performance. In a two-level
1995, this interpretation was prescribed by appraisal program, additional performance
regulation. Now, however, depending on elements are the only way to include a discus-



sion of group performance in the appraisal Additional performance elements were intro-
process. Even though the element assessment duced in the September 1995 performance
does not count when determining the sum- appraisal regulations and have not been used
mary level, managers and employees could widely, yet. We foresee their popularity ris-ing
use it to manage the group’s performance. as agencies discover the possibilities they pres-
ent for managing performance.
C Awards. Additional performance elements
can be used to establish criteria for determin- NOTE: Check the rules of your program before
ing awards eligibility, especially in a two-level including additional performance elements in
program that no longer bases awards solely your plans.
on a summary level.

Element Characteristics
Required in
Employee Credited in the Can Describe
Performance Summary a Group’s
Plans Level Performance

Critical
yes yes no*
Elements

Non-critical
no yes yes
Elements

Additional
Performance no no yes
Elements

*except when written for a
supervisor or manager who has
individual management control
over a group’s production and
resources.



Know your program constraints U
Again, it is important to stress that before you continue with
this handbook, you need to find out the rules established by
your appraisal program; specifically, you will need to know:

C which kinds of elements your program allows you to use;
C at how many levels your program appraises employee perfor-
mance on elements;
C how many summary levels your program uses;
C if your program allows weighting of elements (see Step 4) ; and
• whether the program requires specific elements and/or uses
generic standards.

Before continuing:
This handbook uses an organization within OPM—the Support Branch in the
Adjudication Division of the Office of Retirement Programs—as an illustration for
developing measures at the group and individual level. To be able to understand
and work through the illustration, you need to know the features of the Support
Branch’s appraisal program (i.e., the same features listed above). The Support
Branch’s appraisal program:
C uses critical, non-critical, and additional performance elements;
C appraises employee performance on elements at five levels: Unacceptable,
Minimally Successful, Fully Successful, Exceeds Fully Successful, and
Outstanding;
C uses five summary levels, which are the same as the elements’ five levels listed
above;
C allows elements to be weighted according to importance to the organization;
and
C requires no specific or generic elements.


Chapter 2
Distinguishing Activities from
Accomplishments
Chapter 2 discusses what may be the most important concept in this handbook: the
difference between measuring activities and measuring accomplishments. The following
story illustrates this concept.

The Fable of the Beekeepers
and Their Bees
Once upon a time, approach communicated to each bee the goal of
there were two the hive—to produce more honey. The bee-
beekeepers who each keeper and his bees measured two aspects of
had a beehive. The beekeepers worked for a their performance: the amount of nectar each
company called Bees, Inc. The company’s bee brought back to the hive and the amount of
customers loved its honey and wanted the busi- honey the hive produced. The performance of
ness to produce more honey than it had the each bee and the hive’s overall performance
previous year. As a result, each beekeeper was were charted and posted on the hive’s bulletin
told to produce more honey at the same quality. board for all bees to see. The beekeeper cre-
With different ideas about how to do this, the ated a few awards for the bees that gathered the
beekeepers designed different approaches to most nectar, but he also established a hive
improve the performance of their hives. incentive program that rewarded each bee in the
hive based on the hive’s production of
The first beekeeper established a bee perfor- honey—the more honey produced the more
mance management approach that measured recognition each bee would receive.
how many flowers each bee visited. At consid-
erable cost to the beekeeper, an extensive mea- At the end of the season, the beekeepers evalu-
surement system was created to count the flow- ated their approaches. The first beekeeper
ers each bee visited. The beekeeper provided found that his hive had indeed increased the
feedback to each bee at midseason on his indi- number of flowers visited, but the amount of
vidual performance, but the bees were never honey produced by the hive had dropped. The
told about the hive’s goal to produce more Queen Bee reported that because the bees
honey so that the company could increase were so busy trying to visit as many flowers as
honey sales. The beekeeper created special possible, they limited the amount of nectar they
awards for the bees who visited the most flow- would carry so they could fly faster. Also, be-
ers. cause the bees felt they were competing against
each other for awards (since only the top per-
The second beekeeper also established a bee formers were recognized) they would not share
performance management approach, but this valuable information with each other (like the


Distinguishing Activities from Accomplishments

location of the flower-filled fields they’d spotted bees worked together to determine the highest
on the way back to the hive) that could have nectar-yielding flowers and to create quicker
helped improve the performance of all the bees. processes for depositing the nectar they’d gath-
(After all was said and done, one of the high- ered. They also worked together to help
performing bees told the beekeeper that if he’d increase the amount of nectar gathered by the
been told that the real goal was to make more poor performers. The Queen Bee of this hive
honey rather than to visit more flowers, he reported that the poor performers either
would have done his work completely differ- improved their performance or transferred to
ently.) As the beekeeper handed out the the other hive. Because the hive had reached its
awards to individual bees, unhappy buzzing was goal, the beekeeper awarded each bee his por-
heard in the background.
tion of the hive incentive payment. The bee-
keeper was also surprised to hear a loud, happy
The second beekeeper, however, had very
buzz and a jubilant flapping of wings as he
different results. Because each bee in his hive
rewarded the individual high-performing bees
was focused on the hive’s goal of producing
more honey, the bees had concentrated their with special recognition.
efforts on gathering more nectar in order to
produce more honey than ever before. The The moral of this story is:

Measuring and recognizing accomplish-
ments rather than activities—and giving
feedback to the worker bees—often
improves the results of the hive.



Although it somewhat simplifies performance C file documents;
management, the beekeepers’ story illustrates C develop software programs;
the importance of measuring and recognizing C answer customer questions; and
accomplishments (the amount of honey produc-
C write reports.
tion per hive) rather than activities (visiting flow-
ers). This handbook is designed to help you
develop elements and standards that center Accomplishments (or outputs) are the
around accomplishments, not activities. products or services (the results) of employee
The chart below depicts the type of measure- and work unit activities and are generally
ment that should occur at each organizational described using nouns. The examples of out-
level and includes measurements used by the puts used in the fable include the amount of
beekeepers. nectar each bee collected and the honey
production for the hive. Other examples
Activities are the actions taken to produce include:
results and are generally described using verbs. C files that are orderly and complete;
In the beekeeper fable, the activity being mea- C a software program that works;
sured was visiting flowers. Other examples of C accurate guidance to customers; and
activities include: C a report that is complete and accurate.



Outcomes are the final results of an agency’s Note on the performance pyramid shown on the
products and services (and other outside factors previous page that accomplishments can be
that may affect performance). The example of measured at two levels in the organization—the
an outcome used in the beekeeper story was employee level and the work unit level.
increased sales of honey for Bees, Inc. Other Employee accomplishments can be included in
examples of outcomes could include: employee performance plans using all three
C reduce the number of transportation-related types of performance elements. Work unit
deaths; accomplishments also can be included in the
C improved fish hatcheries; appraisal process—through non-critical ele-
C a decrease in the rate of teenage alcoholism; ments if the agency desires to have work unit
and performance affect ratings (and only if the
C clean air. appraisal program uses more than two summary
levels) or through additional performance
elements if work unit performance is not to af-
A Note about Federal Efforts to fect ratings. However they are used in perfor-
Measure Outcomes and Outputs: mance appraisal, work unit as well as employee
Because of the requirements set by the accomplishments can always be recognized
Government Performance and Results Act of through an awards program.
1993 (i.e., the Results Act), Federal agencies
are measuring their organizational outcomes If supervisors, team leaders, and employees
and outputs. The Results Act requires agen- want to develop performance plans that support
cies to have strategic plans, which include the achievement of organizational outcomes,
outcome-related goals and objectives for the they might try the second beekeeper’s approach
major functions and operations of the agency. of sharing organizational goals with the hive,
Those outcome goals must be objective, measuring and rewarding accomplishments
quantifiable, and measurable. The Results Act rather than activities, and providing feedback on
also requires agencies to develop annual per- performance.
formance plans that cover each one of their
programs. Performance plans must include
performance goals, which define the annual,
often incremental, progress in achieving the
outcome goals in the strategic plan. Perfor-
mance goals are often output oriented since
they address single-year performance. We
will talk about strategic plans with their out-
come goals, and performance plans with their
output goals, much more in Chapter 3.



A Balanced Measuring System
This handbook focuses on measuring accomplishments at the
work unit and employee levels. There may be situations,
however, when activities, behaviors, or processes may be
important to include in an employee’s performance plan. This
handbook does not focus on how to develop those kinds of
measures. However, we would be remiss not to include a
discussion about the importance of balancing measures in your
measurement system. Therefore, a short description of the
balanced scorecard approach to measuring performance
follows.

Using a Balanced Scorecard Approach to
Measure Performance
Traditionally, many agencies have measured plex task of flying an airplane, pilots need de-
their organizational performance by focusing on tailed information about fuel, air speed, altitude,
internal or process performance, looking at bearing, and other indicators that summarize the
factors such as the number of full-time equiv- current and predicted environment. Reliance on
alents (FTE) allotted, the number of programs one instrument can be fatal. Similarly, the com-
controlled by the agency, or the size of the bud- plexity of managing an organization requires that
get for the fiscal year. In contrast, private sec- managers be able to view performance in sev-
tor businesses usually focus on the financial eral areas simultaneously. A balanced score-
measures of their bottom line: return-on-invest- card—or a balanced set of measures— pro-
ment, market share, and earnings-per-share. vides that valuable information.
Alone, neither of these approaches provides
the full perspective on an organization’s perfor- Four Perspectives. Kaplan and Norton
mance that a manager needs to manage effec- recommend that managers gather information
tively. But by balancing internal and process from four important perspectives:
measures with results and financial measures,
managers will have a more complete picture and C The customer’s perspective. Managers
will know where to make improvements. must know if their organization is satisfying
customer needs. They must determine the
Balancing Measures. Robert S. Kaplan answer to the question: How do customers
and David P. Norton have developed a set of see us?
measures that they refer to as “a balanced
scorecard.” These measures give top managers C The internal business perspective.
a fast but comprehensive view of the organiza- Managers need to focus on those critical
tion’s performance and include both process internal operations that enable them to sat-
and results measures. Kaplan and Norton com- isfy customer needs. They must answer the
pare the balanced scorecard to the dials and question: What must we excel at?
indicators in an airplane cockpit. For the com-



C The innovation and learning perspec- appraisal is an effective way of getting a com-
tive. An organization’s ability to innovate, plete look at an employee’s work performance,
improve, and learn ties directly to its value not just a partial view. Too often, employee
as an organization. Managers must answer performance plans with their elements and stan-
the question: Can we continue to create dards measure behaviors,
and improve the value of our services? actions, or processes without also measuring the
results of employees’ work. By measuring only
C The financial perspective. In the private behaviors or actions in employee performance
sector, these measures have typically fo- plans, an organization might find that most of its
cused on profit and market share. For the employees are appraised as Outstanding when
public sector, financial measures could the organization as a whole has failed to meet its
include the results-oriented measures objectives.
required by the Government Performance
and Results Act of 1993 (i.e., the Results By using balanced measures at the organiza-
Act). Managers must answer the question: tional level, and by sharing the results with
How do we look to Congress, the Presi- supervisors, teams, and employees, managers
dent, and other stakeholders? are providing the information needed to align
employee performance plans with organizational
Tie-In to Employee Performance. The goals. By balancing the measures used in
balanced scorecard philosophy need not employee performance plans, the performance
apply only at the organizational level. A bal- picture becomes complete.
anced approach to employee performance

A Word About Categories of Work
Sometimes performance plans describe ele- C customer service (greets customers with a
ments using categories of work. Categories are smile, answers the phone promptly);
classifications of work types often used to orga- C teamwork (cooperates with others, shares
nize performance elements and standards. If, information);
for example, the first beekeeper in our fable had C communications (writes well, gives presen-
used categories of work for his elements, he tations); and
might have used the broad category of “making C office duties (files papers, types reports).
honey” as the element and then included a
grouping that described all the activities the bees This handbook does NOT explain
did to make the honey, such as gather nectar, how to describe and measure cate-
report to the drones, etc. Other examples of gories of work. Here you are
categories of work and the types of activities
that are often described under these categories
asked to concentrate on measuring
include: accomplishments.



Exercise:
It is time to check your understanding of the differences among activities, accomplish-
ments, and categories. Please check the column that best describes each item.

Accomplishment Activity Category

Trains employees

Supervision

A completed case
Public relations

Recommendations

Customer service

HR policy interpretations

Writes agency policy

Solutions to problems

Develops software programs
Ideas and innovations

Files paperwork

Writes memos

Computer systems that work

Teamwork

A completed project
Satisfied customers

Answers the phone

Assists team members

(The answers are on the next page.)



Answers to page 17 Exercise:

Accomplishment Activity Category

Trains employees U

Supervision U

A completed case U
Public relations U

Recommendations U

Customer service U

HR policy interpretations U

Writes agency policy U

Solutions to problems U
Develops software programs U

Ideas and innovations U

Files paperwork U

Writes memos U

Computer systems that work U

Teamwork U

A completed project U
Satisfied customers U

Answers the phone U

Assists team members U


Chapter 3
Developing Employee
Performance Plans
You are now going to begin an eight-step pro- and responsibilities in the position description all
cess for developing employee performance begin with a verb. They describe activities,
plans that support organizational goals. Before not accomplishments.
you begin, however, we want to briefly review a
process for developing performance plans that A performance plan for a Federal Retirement
you may have followed in the past but will NOT Benefits Specialist follows on page 21. It was
be learning here. written by copying the simplified position
description from the previous page onto the
Traditionally in some organizations, performance appraisal form. Note that by copying the activi-
plans have been developed by copying the ties from the position description onto the
activities described in an employee’s job appraisal form, the Support Branch has devel-
description onto the appraisal form. This hand- oped a performance plan that only measures
book asks that you NOT begin with the posi- activities, not accomplishments. Also, by
tion description. Even though a performance developing a performance plan without using a
plan must reflect the type of work described in process that links accomplishments to organiza-
the employee’s position description, the perfor- tional goals, the organization has lost the oppor-
mance plan does not have to mirror it. tunity to use the appraisal process to communi-
cate its goals to its employees and to align
The next two pages illustrate what happens employee efforts with its goals.
when you develop a performance plan solely
from a position description. Page 20 is a sim- (Remember that the Support Branch’s appraisal
plified position description for a Federal program appraises employee performance on
Retirement Benefits Specialist within our elements at five levels. The form on page 21
example organization—the Support Branch of shows five possible levels of performance:
the Adjudications Division, Office of Retirement Unsatisfactory (U), Minimally Successful
Programs, Retirement and Insurance Service, (MS), Fully Successful (FS), Exceeds Fully
OPM. Notice how the duties Successful (EFS), and Outstanding(O).)


Developing Employee Performance Plans

Position Description:

Notice how the duties and responsibilities in the position description all begin with a verb.
They describe activities.

Position Description: #JJJ666
Federal Retirement Benefits Specialist, GS-0270-12

Introduction
The incumbent of this position serves as a Senior Federal Retirement Benefits Specialist in the Office of
Retirement Programs (ORP), Retirement and Insurance Service, Office of Personnel Management (OPM).
This is a highly-responsible position in an office accountable for the adjudication of claims for retirement and
insurance benefits arising under the Federal retirement systems administered by OPM.

The work requires the skills of an experienced, fully-trained Federal Retirement Benefits Specialist who is
responsible for the adjudication of a broad range of assigned claims, project work which he or she may lead,
monitoring workloads, and assignments to solve retirement system-related problems.

Major Duties and Responsibilities
C Adjudicate cases of unusual technical difficulty.
C Review and approve recommendations and decisions made by other Specialists, and provide advice and
assistance.
C Respond to inquiries from various customer sources and provide clear, responsive explanations of
actions taken and the bases for them.
C Provide assistance in developing formal lesson plans. Ensures adequate training is offered.
C Serve as task force leader or project coordinator for team-related initiatives in processing retirement
claims, post-retirement actions, and for special activity in response to legislation, etc.

This simplified and edited position description
describes only a few of the major duties of the
GS-12 Federal Retirement Benefits Specialist
position in OPM’s Support Branch in the
Adjudication Division, Office of Retirement
Programs, Retirement and Insurance Service.

Approving Authority Signature: Date:



Performance Plan:
THIS IS NOT THE TYPE OF PERFORMANCE PLAN THAT YOU WILL DEVELOP
IF YOU FOLLOW THE METHOD PRESENTED IN THIS HANDBOOK.

Employee Performance Plan

Name Effective Date

Job Title, Series, and Grade Name of Organization
Federal Retirement Benefits Specialist Office of Retirement Programs

Elements Type Standards Rating

Technical and Policy Expert Critical Fully Successful: 9U
C Adjudicates cases of unusual Cases are usually completed correctly and 9 MS
technical difficulty. in a timely fashion. 9 FS
C Reviews and approves Customer inquiries are routinely addressed 9 EFS
recommendations made by timely. 9O
other Specialists. Provides
advice.
C Responds to customer inqui-
ries.

Training Critical Fully Successful: 9U
C Ensures adequate training is Arranges for or presents high-quality train- 9 MS
offered. ing as needed. Training is specific to 9 FS
C Develops formal lesson plans. employee needs. 9 EFS
9O

Branch ombudsperson Critical Fully Successful: 9U
C Serves as task force leader or As needed, regularly leads work teams to 9 MS
project coordinator. the accomplishment of their assignments. 9 FS
9 EFS
9O

Comments:

This is a fictional employee performance plan constructed for
this handbook. It was developed by using only the simplified
position description of the Federal Retirement Benefits
Specialist position shown on the previous page. It is included
here to represent a typical performance plan that might be
used in appraisal programs. Notice the similarity to the
position description on the previous page. Also notice how the
elements describe work activities, not work
accomplishments.

Appraising Official Signature Employee Signature



Having reviewed how to develop a performance plan that
focuses only on activities, we will now develop a performance
plan that establishes elements and standards
addressing accomplishments that lead to organizational goal
achievement.

Each step in the eight-step process we present in this hand-
book builds upon the previous step; you cannot skip a step
and end up with good results.



Step 1:
Look at the overall picture.

Instead of beginning at the bottom of the organi- goals are usually more specific and often
zation with the position description to develop more output-oriented than the general out-
employee performance plans, begin the process come goals found in the strategic plan. Since
by looking at your agency’s goals and objec- performance plan goals should be used by
tives. Gather the following information: managers as they direct and oversee how a
program is carried out, these are the goals to
C What are your agency’s general outcome which employee performance plans should be
goals as outlined in its strategic plan? linked.
The Government Performance and Results
Act of 1993 (i.e., the Results Act) requires all C What are your agency’s customer ser-
agencies to develop a strategic plan that vice standards? In September 1993, Presi-
includes objective, quantifiable, and measur- dent Clinton issued Executive Order 12862,
able performance goals. Agencies submitted “Setting Customer Service Standards,” which
their first strategic plans to Congress in Sep- requires each agency to establish customer
tember 1997. You will be referring to your service standards and to measure its perfor-
agency’s strategic plan while creating mance against those standards. In most
employee performance plans. cases, these goals and standards have been
folded into the agency’s strategic plan and
C What are the specific performance goals annual performance plan, but if they have not,
established for your program area as you will need to know what they are.
outlined in your agency’s annual perfor-
mance plan? The Results Act also requires C What performance measures are already
each agency to have an annual performance in place? You should be aware of the mea-
plan that sets out measurable goals that define surement systems that you can access for
what will be accomplished during a fiscal information on performance, including mea-
year. The goals in the annual performance sures used for determining progress towards
plan describe the incremental progress to- achieving Results Act goals and customer
wards achieving the general goals and objec- satisfaction surveys.
tives in the strategic plan. Performance plan



Example of Organizational Goals

Again, the main example used in this handbook refers to the Federal Retirement Benefits Specialist
position in the Office of Retirement Programs (ORP), Retirement and Insurance Service, of the
Office of Personnel Management (OPM). This position is found in the Support Branch of ORP’s
Adjudication Division and handles a combination of administrative and front-line assignments.
OPM strategic, outcome-oriented goals and two of the Office of Retirement Programs’ perfor-
mance goals established in OPM’s annual performance plan serve as examples of organizational
goals. You will use this information in the next step of our eight-step process.

OPM Strategic Goals:



OPM’s 199X Annual Performance Plan Goals for the
Retirement and Insurance Service (RIS)
RIS Goal #14: Maintain at previous year’s levels, customer satisfaction, processing
times, and accuracy rates pertinent to processing new claims for
annuity and survivor benefits. (Directly linked to OPM’s Goal #4)

Means: (Only two means are presented here.)
C Reduce claims processing error rates by providing increased training in workplace
competencies.
C Continue to streamline work processes when such opportunities occur in order to
reduce claims processing times and improve processing accuracy.

Outcome Indicators:
1. Customers who received their first payment either before or when they expected.
(The goal is to reach 90 percent.)
2. Annuitants who indicate overall satisfaction with the handling of their retirement claims.
(The goal is to reach 95 percent.)

Output Indicators
1. Interim payment processing time (The goal is 4 days.)
2. CSRS annuity processing time (The goal is 35 days.)
3. CSRS annuity claims accuracy (The goal is no more than 4.0 percent errors.)

RIS Goal #15: Maintain at previous year’s levels, customer satisfaction with RIS
teleservices and the timeliness of written responses to inquiries.
(Directly linked to OPM’s Goal #4)

Means: (Only one mean is presented here.)
Improve the accuracy and professional appearance of complex correspondence while
reducing staff effort by developing additional PC-based “smart” letters that can be tailored to
meet different fact patterns, and personalized by retrieving information from selected
databases.

Outcome Indicators:
1. Overall satisfaction with the content and timeliness of written responses. (The goal is
90 percent for each.)

Output Indicators:
1. Percent of priority correspondence answered within 8 days. (The goal is 95 percent.)
2. Percent of regular correspondence answered within 15 days. (The goal is 95 per-
cent.)



Step 2:
Determine the accomplishments at the work unit
level.
The next step in this eight-step method is to Because not all types of work situations and
determine the accomplishments (i.e., the prod- structures are the same, this handbook offers
ucts or services) of the work unit. Identifying three different ways to determine what to mea-
work unit accomplishments lets you identify sure at the work unit level:
appropriate measures in the following steps of
this process. C a goal cascading method;

A work unit is a small group of employees that, C a customer-focused method; and
in a traditional work structure, is supervised by
the same first-line supervisor. Work units are C a work flow charting method.
generally the smallest organizational group on
the organizational chart and usually include be- You can use one or all three methods, depend-
tween 3 and 15 people. A work unit can also ing on what fits your situation. Whichever you
be a team—permanent or temporary—where use, remember to describe accomplishments
the team members work interdependently (using nouns) rather than activities (using verbs).
towards a common goal.



Method A: Cascade the agency’s goals down to the work unit level.

The goal cascading method works best for C Which agency goal(s) can the work unit
agencies with clear organizational goals and affect? Often, work units may affect only
objectives, such as those established in the stra- one agency goal, but in some situations,
tegic plans and annual performance plans that agency goals are written so broadly that
agencies have prepared under the Government work units may affect more than one.
Performance and Results Act. This method
requires answers to each of the following ques- C What product or service does the work
tions: unit produce or provide to help the
agency reach its goals? Clearly tying work
C What are the agency’s specific goals and unit products and services to organizational
objectives? These can be found in the goals is key to this process. If a work unit
agency’s annual performance plan and cus- finds it generates a product or service that
tomer service standards. (Note that this does not affect organizational goals, the work
question repeats Step 1 of the eight-step unit needs to analyze the situation. It may
process.) decide to eliminate the product or service.

Cascading Agency Goals to Work Units



Example of Cascading Agency Goals to a Work Unit:

An OPM OPM Goal #4:
Strategic Goal: Deliver high-quality, cost-effective human resources services

9
to Federal agencies, employees, annuitants, and the public.

Some RIS Goal #14: Maintain at previous year’s levels, customer
Retirement and satisfaction, processing times, and accuracy rates pertinent to
Insurance Service (RIS) processing new claims for annuity and survivor benefits.
Annual Performance RIS Goal #15: Maintain at previous year’s levels, customer
Plan Goals that satisfaction with RIS teleservices and the timeliness of written
Cascade from responses to inquiries.
OPM Goal #4:
9
Some a. Continue to streamline work processes when such oppor-
Office of Retirement tunities occur in order to reduce claims processing times
Programs (ORP) and improve processing accuracy (re RIS Goal #14).
Goals: b. Reduce claims processing error rates by providing
9 increased training in workplace competencies (re RIS
Goal #14).

c. Improve the accuracy and professional appearance of
complex correspondence while reducing staff effort by
developing additional PC-based “smart” letters that can be
tailored to meet different fact patterns, and personalized
by retrieving information from selected databases (re RIS
Goal #15).

ORP’s Achieve the following accomplishments:
Adjudication C accurately settled claims (re “a” above);
Division’s C competent, well-trained employees (re “b” above); and
C accurate and professional written correspondence (re “c”
Support above).
Branch
Goals : (Note: The Branch supports Adjudication Division Benefits
Specialists in reviewing and settling retirement cases. Support
is in the form of clerical support, training, consultation, guid-



Exercise on Cascading Goals:

In the space below, begin mapping your agency’s strategic and performance goals and how those
goals cascade or “trickle down” through your organization. Try to show how your work unit’s
products or services link to your agency’s goals. Remember to describe work unit accomplishments
in terms of products or services (i.e., the end result of all the unit’s activities.)

Your Agency’s
Goals:

Your Organization’s
Goals:

Your Work Unit’s
Products or Services:



Method B: Determine the products and services the work
unit provides for its customers.

The customer-focused method works well when function, most of its customers may be inter-
there are no clear agency goals and when the nal to the agency.
work unit knows who its customers are and C What products and/or services do the
what they expect. Oftentimes, this method is customers expect? Remember to describe
easier to apply to administrative work units that accomplishments, not activities.
provide support functions, such as a human
resources unit, an acquisitions unit, or a facilities One way to approach this method is to build a
maintenance unit. This method focuses on map, as shown below. Place a box representing
achieving customer satisfaction and requires the work unit in the center of a blank piece of
answers to each of the following questions: paper. List the customer groups around the box
and descibe the products or services the cus-
C Who are the customers of the work unit? tomers expect in the blank space between the
If the work unit provides a support work unit and the customer groups.

Focusing on Customer Satisfaction



Example of Identifying Customers and Their Expectations:

The example below diagrams the accomplishments of the Office of Retirement Programs’ Adjudica-
tion Division’s Support Branch from a customer-focused approach. Note that the accomplishments
listed are the RESULTS of the team’s work.

Retiring
Correspondents

First annuity Solutions to
payment Problems,
Information
Support

Training,
Guidance

p



Exercise for Identifying Customers and Their Expectations:

Use method B—the customer-focused method—to develop the product(s) or service(s) that your
work unit provides. Begin with identifying your work unit’s customers. Next, determine what
product(s) or service(s) your work unit supplies or provides to its customers.

Your
Work Unit



Method C: Develop a work flow chart for the work unit,
establishing key steps in the work process.

The work flow charting method works well for a work process or project. It begins with the
work units that are responsible for a complete first step of the work process, maps out each
work process, such as the processing of a case, successive step, and ends with the final product
the writing of a report, or the production of a or service. To illustrate a simple work flow
customer information package. This method chart, the figure below depicts a work process
asks work units to develop work flow charts. A for building a house.
work flow chart is a picture of the major steps in

Some Key Steps in Building a House



To help you build your work flow chart, As you map out the process, you may find your-
answer these questions: self describing activities. Try to group the activi-
ties into key steps by describing the results of
C How does the work unit produce its those activities as one step in the process. As an
products or services? List the most basic example, the activities described in the following
steps in the process. For this purpose, you columns are all the activities that a publication
do not need to list all the activities required. team described when it was trying to create a
(If you were analyzing the work to find ways work flow chart for the process of developing a
of improving the process, you would need to newsletter. By grouping the related activities
list every activity.) into the same columns, it was easier for the team
to determine the results of those activities.
C Which are the most important steps in Those results are written at the top of the column
the process? By determining these steps, and became the key steps in the work flow
you highlight areas for performance measure- chart.
ment.

The plan for the The draft version of The edited version The camera-ready
next issue. the articles. of the articles. art mechanical.

--brainstorm ideas --interview contacts --review articles for --crop pictures
errors

--meet to discuss --get contact review --make suggestions --develop the original
ideas and edits of article for improvements graphics

--research various --get pictures or --make necessary --create layout
resources for ideas graphics, if used changes boards
--get management --write article --consider the overall --format issue
approval of proposed effect of the
plan entire issue

Plan for Draft Edited Art
Next Issue ¾ Articles ¾ Articles ¾ Mechanical



Another Example of Work Flow Charting:

This example of the results of method C—which focuses on the work flow and the key steps in the
work process—uses a work flow chart developed by the Office of Retirement Programs. The work
flow chart below maps the key steps in processing retirement claims. Notice that the steps are
described as products. In other words, all the activities to complete the steps are not listed
individually but have been grouped and described as products. These key steps are good candi-
dates for measurement.

Nondisability Annuity

û
Case Received Computation

ü
An authorized
1st annuity An updated
payment annuity roll

û
for master record
Treasury to
disperse

ü

A completed and
filed case



Exercise on Work Flow Charting:

Select a product or service that your work unit provides. As best you can, map out the work
process your unit uses. Focus on the major categories or steps of the work. You may need to first
list the smaller steps of the work and then group them into sub-products. Remember to describe
products and services when you can, not activities.



Step 3:
Determine individual accomplishments
that support work unit goals.
The performance elements that will be measured must produce to support the unit’s
in the overall employee performance plan can accomplishments. To build the matrix, list the
include both individual and group assignments work unit’s products or services across the top
and responsibilities. The most important, row of a table. List each member of the work
results-oriented aspects of a unit’s performance unit or each job position down the left column of
(which are its products or services) were identi- the matrix. For each cell of the table, ask this
fied in Step 2. (Other types of processes that question: What must this unit member produce
work units may want to measure and include as or perform (i.e., accomplish) in order to support
elements in their plans—but which are not prod- this particular work unit product or service? List
ucts or services and would not be identified those employee products or services (i.e.,
through Step 2— include internal group dynam- accomplishments) in the appropriate cell. The
ics processes, such as decision-making or products or service you list for each unit member
problem solving processes, or group/team are possible performance elements that might be
development.) included in the employee’s performance plan.
All performance elements should be either
Elements that address individual accomplish- quantifiable or verifiable and should be
ments can be identified using a role-results described as accomplishments (nouns), not
matrix. A role-results matrix is simply a table activities (verbs).
that identifies the results each work unit member

A Role-Results Matrix

Unit Unit Product Unit Product Unit Product Unit Product
Employees or Service or Service or Service or Service

Employee 1 Accomplishment Accomplishment Accomplishment Accomplishment

Employee 2 Accomplishment Accomplishment Accomplishment *N/A

Employee 3 Accomplishment *N/A Accomplishment Accomplishment

Employee 4 *N/A Accomplishment Accomplishment Accomplishment
*The employee had no part in this work unit product or service.



Example
An example of a role-results matrix is shown the work unit level or the individual level that you
below. It was built for a work team that pro- may not be able to measure (i.e, the effect a
duces a bimonthly policy newsletter. The team human resources program has on organizational
has five members: the editor, three writers, and performance) or over which the unit or the
a graphic artist. The final product or output is employee has no control (i.e., a portion of the
the newsletter. (The expected outcome is better product must be completed by someone outside
educated Federal employees.) The team cre- the work unit). Also, certain aspects of perfor-
ated a work flow chart, which identified four key mance may cost too much to measure or the
steps in the work process. The team then used agency may not have the resources to measure
these key steps to build the matrix and will use it them. You should not include these aspects of
to develop performance elements. performance as elements in the performance
plan but they are still legitimate parts of the role-
Note that the main steps of the work process results matrix.
are laid out along the top of the matrix. The
team members are listed down the left hand A role-results matrix is a valuable management
column. Accomplishments are listed for each tool. When supervisors involve employees in the
team member. Also, note that not all members process of completing the matrix, everyone’s
have assignments or responsibilities for every role in the work unit is very clear, which is
team accomplishment. (This often will occur in important to the successful performance of the
cross-functional work units that include a variety group. The whole process of determining work
of different job series.) unit products and services, and then completing
a role-results matrix, is a beneficial team-building
When building a role-results matrix, you may exercise.
identify certain aspects of performance at either

A Role-Results Matrix for a Newsletter Team:
Team Accomplishments±
The draft The edited The
Team The plan for the version of version of the camera-ready
Members next issue the articles articles mechanical

Editor Topics to be cov- Articles that have
ered been edited

Writer A Recommendations A draft
for articles article(s)

Writer B Recommendations A draft
Writer C Recommendations A draft

Graphic Recommendations A completed
Artist for layout mechanical



Another Example of a Role-Results Matrix:

The example below uses the data gathered the top of the matrix. Employees are listed
for the Office of Retirement Programs’ down the left side of the matrix. Work accom-
Adjudication Division Support Branch plishments are included in each cell. Notice that
using the cascading method as described on the work responsibilities are described (in ital-
pages 27-28. Note that the products or ser- ics) as accomplishments (i.e., products or ser-
vices (i.e., the accomplishments) identified vices) rather than activities or behaviors.
through the process of Step 2 are shown along

Role-Results Matrix for ORP’s Adjudication Division Support Branch

Employees Work Unit Products or Services $
Branch Accurate and Pro-
Chief Accurately Settled Competent Division fessional Corre-
Claims Employees spondence

Team C An efficient adjudi- C ORP training needs C A correspondence
Leader cation process. assessment. review and com-
C ORP training plan. plaint resolution
process.

Senior C Guidance and C Recommendations C Responses contain-
Federal technical assis- for training needs as- ing requested infor-
Retirement tance to lower- sessment. mation or solutions
Benefits graded Specialists. C Lesson plans that to customer
Specialists C Recommendations meet training needs. complaints.
for improvements to C Workbooks and
work process and course handouts.
ADP systems. C Effective training
C Cases of unusual course(s).
technical difficulty
that are completed.

Clerk C Decisions that are C Workbooks and C Correspondence
Typist formatted and handouts that are that is formatted,
typed. formatted, typed, and mailed, and filed.
C Case files that are xeroxed.
organized effec-
tively.



Exercise for Building a Role-Results Matrix

Fill in the role-results matrix for your work unit. Place the work unit products or services that you
developed in Step 2 along the top of the matrix. Fill in the names or the job titles of the work unit’s
employees in the left-hand column. Then fill in the employees’ accomplishments that contribute to
each work unit accomplishment.

Work Unit Products or Services
$
Employees

Organiza-
tional
Chief



Step 4:
Convert expected accomplishments into perfor-
mance elements, indicating type and priority.
In Steps 2 and 3 of the process presented in this the element would result in a determination that
handbook, you developed the expected accom- an employee’s overall performance is unaccept-
plishments for the work unit and the unit’s able. Defining critical elements must be done
employees. Now, in Step 4, you will: thoughtfully because an employee’s unaccept-
C identify which accomplishment(s) should be able performance on any critical element could
included as elements in the performance plan; be the basis for an adverse action. To help
C select which type of element to use; and decide whether an element should be classified
C assign weights or priorities. as critical or not, answer the following questions:

All employees must have at least one critical C Is the element a major component of the
element in their performance plan. Critical ele- work? If you answered “yes,” the element
ments must address individual performance only, might be critical.
except in the case of supervisors who may be C Does the element address individual per-
held responsible for a work unit’s products or formance only? Elements measuring group
services. Work unit performance can be performance cannot be critical
addressed through non-critical or additional elements, except as explained for supervisors
performance elements. In appraisal programs and only under certain circumstances.
with only two summary levels, work unit perfor- C If the employee performed unacceptably
mance can be addressed only through additional on the element, would there be serious
performance elements. consequences to completing the work of
the organization? If employee error on the
Once you have classified elements as either criti- element affects the work unit’s accomplish-
cal, non-critical, or additional, and if ments, the element may be critical.
your appraisal program allows, prioritize them so C Does the element require a significant
that work units and employees know which amount of the employee’s time? If you
elements are most important. One way to do answered “yes,” the element might be critical.
this is to distribute 100 percentage points across
the elements based upon each one’s importance
to the organization. (Programs usually allocate Unless prescribed by your appraisal program,
weights in 5 percent increments.) there is no fixed or uniform number of critical
elements to be included in the performance plan;
How can you determine which the number varies with the work assignments
elements are critical? and may vary from year to year in
response to changing program emphases. How-
Remember that critical elements are work ever, every employee must have at least one
assignments or responsibilities of such critical element.
importance that unacceptable performance on



Example of Identifying Elements:
The Support Branch of the Office of Retirement (2) Because the Branch decided to use the
Programs’ (ORP) Adjudication Division has non-critical group element for “Competent
been used on the following page as an example Division Employees,” it also decided not to
of identifying elements. (This example does include the individual accomplishments
not represent actual elements currently in under that cell of the matrix. It was not
use; it was developed for this handbook practical or logical to measure this perfor-
only.) The expected accomplishments of the mance at the individual level. The matrix
Senior Federal Retirement Benefits Specialist shows that those four elements have been
(as outlined in the role-results matrix on page crossed out and will therefore not be
39) are listed down the left-hand side of the included in the performance plan.
matrix on the next page. A work unit accom- (3) The Branch decided that “Recommenda-
plishment for the Support Branch is also listed. tions for Improvements” should not affect
The next column shows how the branch chief the summary level, but the Branch wanted
and employees designated elements as critical, to track and measure the value of the rec-
non-critical, or additional. Finally, priority points ommendations for awards purposes.
are assigned to each element to give them rela- Therefore, it was included as an additional
tive weights. (Remember that ORP’s appraisal element and given a weight of 0. The
program uses five levels to appraise employee Branch plans to use the results of perfor-
performance on elements and summarizes per- mance on this element as a criterion for
formance overall at five levels and that non-criti- awards recognizing innovation within ORP.
cal and additional performance elements are (4) The Branch determined the priority of each
allowed.) element by distributing 100 points across
the elements. The priority points let
Note the following in the matrix on page 43: employees know which elements are more
(1) The Branch concluded that the work important to the organization. Priority
accomplishment of “Competent Division points also are used in this example to
Employees” was so interdependent that it affect how the summary level will be deter-
was not practical or logical to measure per- mined. Note that the non-critical group
formance at the individual level for this element “Competent Division Employees”
accomplishment. As a result, the Branch was given more priority points (25) than the
decided to include “Competent Division critical “Adjudicated Cases” element (10),
Employees” as a group element and to even though failure on the critical element
measure performance at the group level causes performance to be determined to be
only. Since this Branch is under a five-level Unacceptable. Using this method allows
appraisal program and it wants to count this non-critical elements to count significantly in
element in the appraisal process, this group the summary level determination. (Failure
element will be a non-critical element. (If it on the non-critical element would not cause
were under a two-level appraisal program, performance to be Unacceptable; it would
the group element would have to be an merely count as 0 priority points and could
additional performance element.) The other lower the summary level—but not to
group products and services will not be Unacceptable.)
included in employee performance plans.



Example:

ORP Adjudication Division Support Branch
Senior Federal Retirement Benefits Specialist

Employee Assignments and Priority
Responsibilities Type of Element Points

C Guidance and technical assis-
tance to lower-graded Special- Critical (CE) 40
ists.

C Recommendations for
improvements to work process Additional (AE) 0
and ADP systems.

• Cases of unusual technical diffi- Critical (CE) 10
culty that were completed.

C Recommendations for training
needs assessment.
C Lesson plans that meet training
needs.

C Workbooks and course hand-
outs.

C Effective training course(s).

C Responses containing requested Critical (CE) 25
information or solutions to cus-
tomer complaints.

Support Branch Work Products
or Services:

Accurately settled claims
Competent Division Employees Non-critical (NC) 25

Accurate and Professional Corre-
spondence



Exercise on Identifying Elements:

Based on the accomplishments that you identified for your job in the role-results matrix that you
made on page 40, and working within the rules established by your appraisal program, identify
appropriate elements and categorize them as critical, non-critical, and, if appropriate, additional
performance elements. (If you have a two-level appraisal program—that is, a pass/fail pro-
gram—you can not use non-critical elements.) If applicable, prioritize the elements by distributing
100 points among the elements, giving more points to elements that are more important.

Individual or Group Products or
Services Type of Element Priority Points



Step 5:
Determine work unit and individual measures.
In Step 4 of this process, you designated the cific measures, you will be able to develop the
critical, non-critical, and additional performance standards for your elements, which you will do in
elements you will include in your performance Step 6 of this process. Your standards will be
plan. In Step 5, you will determine how to mea- worded in terms of the specific measures devel-
sure performance of those elements. oped in this step.

Measures are the yardsticks used to determine The performance pyramid below shows the
how well work units and employees produced types of general measures that are used at differ-
or provided products or services. To develop ent levels in the organization. Note at the bot-
specific measures of performance for each ele- tom of the pyramid, the four general measures
ment in your performance plan, you first must used for measuring work unit and employee
determine the general measures that apply to performance: quality, quantity, timeliness, and
each. Once you determine the general and spe- cost effectiveness.

Adapted from Richard Lynch and Kelvin Cross, Measure Up!
Yardsticks for Continuous Improvement, 1991.



General Measures

Quality addresses how well the employee or duced the work. You need to make sure to
work unit performed the work and/or the accu- include timeliness measures when applicable;
racy or effectiveness of the final product. Qual- otherwise, it is implied that the element must
ity refers to accuracy, appearance, usefulness, or always be done and there is no margin for error.
effectiveness. Quality measures can include (See page 52 for a discussion on absolute stan-
error rates (such as the number or percentage of dards.)
errors allowable per unit of work) and customer
satisfaction rates (determined through a cus- Cost-Effectiveness addresses dollar savings
tomer survey). to the Government. You should develop mea-
sures that address cost-effectiveness on specific
Quantity addresses how much work the em- resource levels (money, personnel, or time) that
ployee or work unit produced. Quantity mea- you can generally document and measure in
sures are expressed as a number of products agency annual fiscal year budgets. Cost-effec-
produced or services provided, or as a general tiveness measures may include such aspects of
result to achieve. performance as maintaining or reducing unit
costs, reducing the time it takes to produce or
Timeliness addresses how quickly, when, or provide a product or service, or reducing waste.
by what date the employee or work unit pro-



Developing Specific Measures

To develop specific measures, you first C Is it important to accomplish the element
must determine the general measure(s) that are within certain cost limits?
important for each element (i.e., quantity, quality, C What measures are already available?
timeliness, or cost-effectiveness). Then, deter-
mine how to measure the quantity, quality, timeli- Second:
ness, and/or cost-effectiveness for the element.
If you can measure an accomplishment with For each general measure, ask:
numbers, record the form of measurement. If C How could [quality, quantity, timeliness,
you can only describe performance (i.e., ob- and/or cost-effectiveness] be measured?
serve and verify), clarify who will appraise the C Is there some number or percent that could
performance and the factors they will appraise. be tracked?

The kinds of questions you should ask in this If the element does not lend itself to being
process include the following: measured with numbers and can only be
described, ask:
First: C Who could judge that the element was done
well? What factors would they look for?
For each element, decide which general mea-
sures apply. Finally:
C Is quality important? Does the stakeholder
or customer care how well the work is Write down or otherwise record the specific
done? measures. If the measure is numeric, list the
C Is quantity important? Does the stakeholder units that you will track. If the measure is de-
or customer care how many are produced? scriptive, identify the judge and list the factors
C Is it important to accomplish the element by that the judge will look for to observe and verify
a certain time or date? performance.



Example of General and Specific Measures:
Note that general and specific measures have been added to the elements. Also note that
only the measures have been identified, not the standard that describes how well the
element should be done. (Standards are addressed in the next step in the process.)

Prior-
ity General
Points Element Type Measure Specific Measure

40 Guidance and technical assistance CE Quality The accuracy of the informa-
to lower-graded Specialists. tion, as determined by supervi-
sor.
The perceptions of lower-
graded Specialists that the
incumbent is willing to assist
and that feedback is helpful.
Timeliness The number of hours it takes
for the incumbent to respond to
lower-graded Specialists’
requests for assistance.

0 Recommendations for AE Quality The supervisor’s and review-
improvements to work process and ers’ judgement that the recom-
ADP systems. mendation(s) improves effi-
ciency, productivity, flexibility,
and/or usability.
Cost-Effec- The amount of money saved by
tiveness the recommendation(s).
Quantity # of recommendations made.

10 Cases of unusual technical diffi- CE Quality Ratio of errors to correct cases,
culty that are completed. as judged by supervisor and
reviewers.
Timeliness The number of days it takes to
complete an unusual case.

25 Responses containing requested CE Timeliness The number of days it takes to
information or solutions to cus- respond to regular and priority
tomer complaints. correspondence.
Quality Supervisor’s and customers’
perception of the quality of the
response.
Quantity % of correspondence answered
within a number of days.

25 Support Branch Element: NC Quality Ratio of errors/correct cases for
Competent Division Employees Division.
Quantity % of training needs filled.
Cost-Effec- Total cost of the training given.
tiveness
Timeliness # of days to fill a training need
once determined.



Exercise for Determining General and Specific Measures:

Determine the general measures for your job, based on the elements that you created in the previous
exercise. Next, identify some specific measures.

Priority
Points Element Type General Measure Specific Measure



Step 6:
Develop work unit and individual standards.
The next step in the process of developing a of levels that your appraisal program uses to
performance plan is to establish standards for appraise elements. For example, if you are un-
the elements. To work through this section suc- der an appraisal program that uses two levels to
cessfully, you will need to know the number of appraise elements, the Fully Successful stan-
levels your appraisal program uses to appraise dard would describe a single point of perfor-
elements. You also will need to know which mance. Any performance at or above that point
performance level your program uses as the is Fully Successful, and anything below it is
retention standard. (A definition of retention Unacceptable. If, however, your appraisal
standard is included in this section.) The discus- program uses five levels to appraise perfor-
sions below address performance standards and mance, you would describe the Fully Success-
what to avoid when writing standards. ful standard as a range. Performance that ex-
ceeds the top of that range would be appraised
What is a performance standard? at the level(s) above Fully Successful, and per-
Performance standards are management- formance below the bottom of that range would
approved expressions of the performance be Minimally Successful (or equivalent) or
threshold(s), requirement(s), or expectation(s) Unacceptable. How you write the Fully Suc-
that employees must meet to be appraised at cessful standard depends on the number of
particular levels of performance. levels your program uses to appraise perfor-
mance of elements.
Each critical element must have a Fully Success-
ful or equivalent standard established. Techni- If a specific measure for an element is numeric,
cally, neither non-critical elements nor additional for example, you would list the units to be
performance elements require a Fully Success- tracked and determine the range of numbers (or
ful or equivalent standard. However, to help the single number in a program that appraises
employees and work units understand the elements at two levels) that represents Fully
expectations of performance on these elements, Successful performance. If the specific measure
we recommend that they have a clear idea of is descriptive, you would identify the apprais-
what is considered fully successful performance. er(s) who would judge performance, list the
(N OTE: non-critical elements must be apprais- factors that the appraiser(s) would look for, and
able at least at two levels, but those levels can determine what he or she would see or report
be established higher than the Fully Successful that verifies that Fully Successful performance
level.) for that element had been met. (Remember to
express performance standards in terms of the
What should performance standards specific measure(s) determined in Step 5 of this
include? process.)
Once you have established the specific measures
that apply to the elements, you can begin to Examples. Several examples of elements and
write the standards. Before writing the Fully standards are included below. The specific
Successful standard, you must know the number measures are in italics; the performance (or



range of performance) that actually establishes (to meet this standard, all of the bullets listed
the level of the standard is in boldface type. must be present or occur):
C Consistent with attorney’s grade, attorney
Element: Cases Completed usually carries an adequate workload
of projects, frequently takes on new
Fully Successful Standard in an appraisal projects to meet the needs of the Office,
program that appraises elements at five levels and generally shows personal initiative
(to meet this standard, all of the bullets listed in handling projects (generally, projects
must be present or occur): are of average difficulty).
C no more than 3-4 valid customer com- C Consistent with attorney’s grade, legal
plaints per year, as determined by the advice rendered is infrequently modified
supervisor; by practice group leaders and supervi-
C no more than 2-3 errors per quarter, as sors in a significant way.
spotted by the supervisor; and C Advice given to clients is usually timely
C no more than 4-5 late cases per year and thorough and of average quality,
(processed later than 10 working days and usually shows sensitivity to program
from receipt). and agency needs.

(If this standard had been written for an Additional examples of elements and standards
appraisal program that appraised elements at specifically written for appraisal programs that
only two levels, the standard would have been appraise elements at five, three, and two levels
“no more than 4 valid customer complaints are included in the appendices.
per year,” “no more than 3 errors per quar-
ter,” and “no more than 5 late cases per year.”) What should you avoid when writing
retention standards?
Element: Meetings Scheduled.
By “retention” standard, we mean the standard
Fully Successful Standard in an appraisal that describes the level of performance neces-
program that appraises elements at five levels sary to be retained in a job (i.e., the standard
(to meet this standard, all of the bullets listed written for performance one level above the
must be present or occur): Unacceptable level). In appraisal programs
The meeting leader and attendees gen- that do not have a Minimally Successful or
erally are satisfied that: equivalent level available for appraising ele-
C the room size matched the group size; ments, the retention-level standard is the Fully
C attendees were notified of the meeting; Successful standard. Otherwise, the retention
C attendees knew whom to call for infor- standard is the Minimally Successful or equiva-
mation; and lent standard.
C the meeting was set up by the deadline.
The Merit Systems Protection Board (MSPB)
Element: Legal Advice and the courts have issued many decisions on
the topic of valid performance standards. This
Fully Successful Standard in an appraisal section highlights what the Board deems to be
program that appraises elements at five levels two major errors to avoid when writing stan-



dards. In order to avoid reversal by the MSPB, rence of the task—but also avoid the require-
agencies must ensure that “retention” standards: ment to do it always.
C are not impermissibly absolute (i.e., allow for
no error); and Also, in appraisal programs that appraise ele-
C inform the employee of the level of perfor- ments at levels above Fully Successful, the
mance needed to retain his or her job. Fully Successful standard itself—as well as the
Exceeds Fully Successful standard when an
Avoid Absolute Retention Standards. Outstanding or equivalent level is possible—
An “absolute” retention standard—one that should not be absolute. If it is supposed to be
allows for no errors—is acceptable only in very possible to exceed, make sure it is written that
limited circumstances. When a single failure to way.
perform under a critical element would result in
loss of life, injury, breach of national security, or To help determine whether you are writing an
great monetary loss, an agency can legitimately absolute standard, ask yourself:
defend its decision to require perfection from its
employees. In other circumstances, the MSPB C How many times may the employee fail this
and the courts usually will find that the agency requirement and still be acceptable?
abused its discretion by establishing retention C Does the retention standard use words such
standards that allow for no margin of error. as “all,” “never,” and “each”? (These words
do not automatically create an absolute stan-
When writing standards, you should avoid the dard, but they often alert you to problems.)
appearance of requiring perfection at the reten- C If the retention standard allows for no errors,
tion level. In appraisal programs that do not would it be valid according to the criteria
appraise elements at the Minimally Successful listed above (risk of death, injury, etc.)?
or equivalent level, you must carefully word the
Fully Successful or equivalent standards so that The examples of elements and standards
they are not absolute. For example, here are included in the appendices were carefully written
Fully Successful standards used by agencies to avoid absolute requirements.
that would be considered absolute retention
standards by the MSPB if they were used in a Avoid “Backward” Standards. Case law
two-level appraisal program: requires that an employee understand the level of
C Work is timely, efficient, and of acceptable performance needed for retention in the position.
quality. When using a Minimally Successful level of
C Communicates effectively within and outside performance, a common tendency is to describe
of the organization. it in terms of work that doesn’t get done instead
of what must be done to meet that retention
These standards are considered absolute standard. Describing negative performance
because they appear to require that work is actually describes Unacceptable performance.
always timely, efficient and of acceptable quality Standards such as “fails to meet deadlines” or
and that the employee always communicates “performs work inaccurately” allow an employee
effectively. When writing standards, especially to do virtually no work or to do it poorly and still
retention standards, avoid simply listing tasks meet that retention standard. These “backward”
without describing the regularity of the occur- retention standards are considered invalid by the



MSPB. Once determined invalid, a standard scribe negative performance? (Example of
cannot be clarified and must be completely describing negative performance: Requires
rewritten. To help you determine whether you assistance more than 50% of the time.)
are writing a backward retention standard, ask: C If the employee did nothing, would he/she
meet the standard, as written? (Example:
• Does the standard express the level of work Completes fewer than four products per
the supervisor wants to see or does it de- year.)

More Example Standards

Example standards for a Senior Federal Retire- maximum of the Exceeds Fully Successful
ment Benefits Specialist are shown on the next range of performance is Outstanding.)
two pages. These standards were written for
elements that are appraised at five levels. The Most of the example standards on the next two
appraisal regulations only require that a Fully pages are quantifiable. Examples of descriptive
Successful standard be established for each standards written at a variety of levels are found
element. However, to clarify at the outset what in the appendices. In all these examples, distin-
employees need to do to exceed the Fully Suc- guishing between Fully Successful and levels
cessful level (as well as what they must do to be above or below Fully Successful requires care-
retained in the position) the Support Branch ful planning and forethought.
includes standards for the Minimally Success-
ful, the Fully Successful, and the Exceeds Note that the standards typically describe a
Fully Successful levels of performance. (Perfor- range of performance. Also note that the ele-
mance below the minimum of the Minimally ments have been rearranged to group the critical
Successful range of performance is considered elements together.
Unacceptable, and performance above the



Standards*

Element, Type, and General Minimally Fully Suc- Exceeds Fully
Priority Points Measures Specific Measures Successful cessful Successful

Guidance and tech- Quality The accuracy of the info, as Usually Usually Almost al-
nical assistance to determined by supervisor. accurate. accurate. ways accur-
lower-graded Spe- The perceptions of lower- 50-59% of 60-80% of ate. 81-89%
cialists. graded Specialists that the Specialists Specialists of Specialists
incumbent is willing to agree that in- agree that in- agree that in-
assist and that feedback is cumbent is cumbent is cumbent is
helpful. routinely will- routinely will- routinely will-
ing to assist & ing to assist & ing to assist &
that feedback that feedback that feedback
Critical Element is helpful. is helpful. is helpful.
Timeliness The number of hours it takes Usually Usually Usually
for the incumbent to responds responds responds
respond to lower-graded Spe- within 8-12 within 4-8 within 2-4
cialists’ working hours working hours working hours
request for assistance. from receipt from receipt from receipt
40 priority points of request. of request. of request.

Cases of unusual Quality The ratio of errors to correct 9-10% total 3-8% total 2% total
technical difficulty cases, as judged by supervi- errors/quarter. errors/quarter. errors/quarter.
that are completed. sor and reviewers.
Timeliness # of days it takes to com- Unusual cases Unusual cases Unusual cases
Critical Element plete an unusual case. routinely routinely routinely
completed in completed in completed in
10 priority points 36-40 days. 30-35 days. 25-29 days.

Responses contain- Timeliness The number of days it takes Correspon- Correspon- Correspon-
ing requested infor- to respond to regular and dence usually dence usually dence usually
mation or solutions priority correspondence. answered in answered 7-9 answered 5-6
to customer com- 10 days for days for pri- days for pri-
plaints. priority, 17 ority, 14-16 ority, 12-13
for regular. for regular. for regular.
Quality Supervisor’s and customers’ 50-59% of 60-79% of 80-89% of
perception of the quality of customers are customers are customers are
the response. generally sat- generally sat- generally sat-
isfied with the isfied with the isfied with the
Critical Element content and content and content and
timeliness of timeliness of timeliness of
response. response. response.
The supervi- The supervi- The supervi-
sor is usually sor is usually sor is usually
satisfied with satisfied with satisfied with
70-74% of 75-89% of 90-95% of
responses. responses. responses.
Quantity % of correspondence 85-89% cus- 90-97% cus- 98-99% cus-
answered within a certain tomers are tomers are tomers are
number of days. usually usually usually
answered in # answered answered
of days deter- within # of within # of
mined above. days deter- days deter-
25 priority points mined above. mined above.



Recommendations Quality Reviewers’ judgement that Management Management
for improvements the recommendation and team and team
to work process improves efficiency, produc- members members
and ADP systems. tivity, flexibility, costs, determine that determine that
and/or usability. the recom- the recom-
mendation (s) mendation (s)
is worth is worth
**N/A
Additional Perfor- adopting. adopting.
mance Element Quantity # of recommendations made. Incumbent Incumbent
provides 1-2 provides 3-5
adopted adopted
recommenda- recommenda-
0 priority points tions per tions per
year. year.

Support Branch
Element:
Competent Division Quality Ratio of errors/correct cases 9-10% errors 3-8% errors 2% errors
Employees within Division. within the within the within the
Division per Division per Division per
quarter. quarter. quarter.
Quantity % of training needs filled. 65-74% of 75-95% of 96-97% of
training needs training needs training needs
filled. filled. filled.
Cost- Total cost of the training The cost of The cost of The cost of
Effective given. training ex- training meets training is
ceeds budget budgeted within 1%
by up to 1%. amount. below budget.
Non-critical Timeliness # of days it takes to fill a Within 31-45 Within 15-30 Within 7-14
Element training need once it has days of days of days of
been determined. determination determination determination
of training of training of training
needs, the needs, the needs, the
Division Division Division
training plan training plan training plan
is developed. is developed. is developed.
Within 121- Within 45- Within 30-44
150 calendar 120 calendar calendar days
days of days of of training
training plan training plan plan
approval, approval, approval,
training is training is training is
25 priority points given. given. given.
*To meet the performance level of the standards described for each element, each listed part of the standard must be present or
occur.
**The Branch decided that there was no benefit to establishing a Minimally Successful standard for an additional performance
element.



If these standards had been written for an C no more than 8% errors per quarter, and
appraisal program that appraises elements at C unusual cases routinely completed in no more
only two levels, only the Fully Successful stan- than 35 working days.
dard would have been included and it would
describe a single point, not a range. So, for Another point of interest in the example is that
example, on the second element (i.e., cases of the standards written for the group element (the
unusual difficulty) instead of establishing 3 to 8 non-critical element) were included in each
percent errors per quarter, etc., as the Fully Branch employee’s performance plan as a team
Successful standard, the standard would be: element.



Exercise for Writing Standards:
Based on the elements and measures you established in the previous exercise, develop Fully
Successful standards for your elements. Remember to write standards that specifically match the
measurement levels of your appraisal program (i.e., two-level or more than two-level). This exercise
is asking you to develop only the Fully Successful standard. If your appraisal program appraises
elements at more than two levels, you will also want to define the other levels of performance that
are possible.

Pri-
ority General Specific Fully Successful
Pnts. Element Type Measures Measures Standard



Step 7:
Determine how to monitor performance.
Monitoring performance means measuring per- happens, think through other specific measures
formance and providing feedback to that indicate performance—measures that are as
employees. Agency appraisal programs are specific as possible.
required to provide ongoing appraisal, which
includes, but is not limited to, conducting one or To complete this step in the process:
more progress reviews during each appraisal C Determine what data to collect for each per-
period. In addition to a once- or twice-a-year formance element, the source of the data,
progress review, which is sometimes a formal and whether to collect all the data or just a
part of the appraisal process, supervisors and sample.
employees are encouraged to discuss perfor- C Determine when to collect the data, who will
mance informally and often. collect it, and who will receive it.
C Review existing reports for possible use as
Determining how to monitor performance is an feedback reports.
important step in developing performance plans. C Create feedback tables or graphs where nec-
You may have worked through the previous six essary or applicable.
steps of the process presented in this handbook, C Try to design feedback processes that give
developed what you thought were great ele- feedback automatically.
ments and standards, and then found that moni-
toring performance on an element is impossible,
or too costly, or too time consuming. If this

Feedback example, if you want to measure customer satis-
faction, the best way to get the information is to
Effective and timely feedback addressing em- ask the customer directly. (If customer survey
ployee performance on elements and standards tools are not available, or they are too expensive
is an essential component of a successful perfor- to develop, you may have to rely on other feed-
mance management program. People need to back sources, such as the number of complaints
know in a timely manner how they are doing, received.)
what is working, and what is not.
However feedback occurs, certain factors en-
Feedback can come from many different sure its effectiveness:
sources: managers and supervisors, measure-
ment systems, peers, and customers, just to Specificity. Feedback works best when it
name a few. Using multiple sources of feed- relates to a specific goal, such as those estab-
back, which is sometimes called 360-degree lished in elements and standards. Basing
assessment or multi-rater appraisal, is done in a feedback on the employee’s performance
variety of ways, but most methods are comput- against his or her elements and standards is key
erized and the raters are anonymous. Whether to providing tangible, objective, and powerful
you need or want to use multi-rater appraisal feedback. Telling employees that
depends on what you want to measure. For



they are doing well because they exceeded their employees making their own comparisons
goal by 10% is more effective than simply saying against a specific goal.
"you're doing a good job."
Another kind of self-evident feedback can be
Timeliness. Employees should receive infor- gained by having a broader scope of work. The
mation about how they are doing as timely as broader the employee’s scope of work, the bet-
possible. If they need to improve their perfor- ter the employee can determine the quality of the
mance, the sooner they find out about it, the finished product. For example, a writer/editor
sooner they can correct the problem. If employ- assigned to write a portion of an article may feel
ees have reached or exceeded a goal, the satisfied with the section he wrote. But the same
sooner they receive positive feedback, the more writer/ editor, assigned responsibility for the
rewarding it is to them. entire article would see that his independently
written section had no relation to the rest of the
Manner. Give feedback in a manner that will article and needed revision.
best help improve performance. Since people
respond better to information presented in a The second category of naturally-occurring
positive way, express feedback in a positive feedback is carefully planned feedback charac-
manner. This is not to say that information terized by automatic, frequent delivery through
should be sugar-coated. Present accurate, fac- a measurement system. It is possible to design
tual, and complete feedback; it is more effective feedback into a work process or a measurement
when it reinforces what the employee did right system so that employees receive it automati-
and then identifies what the employee needs to cally. For example, feedback loops designed
do in the future. Constant criticism eventually into many work processes provide performance
falls upon deaf ears. measures daily, such as a production or printing
process, i.e., number of copies printed per day
Naturally-Occurring Feedback. Some as determined by machine count. Also, total
kinds of feedback occur naturally while other quality and reengineering programs use extensive
kinds require careful planning and management. work process measurement methods. Employ-
Naturally-occurring feedback can be classified ees measure for themselves how they and their
into two categories. The first type is self-evi- team are doing.
dent feedback—information that employees can
see for themselves as they do their work. For Designing effective feedback into a performance
instance, a team of materials handlers who are management program will improve individual
given the assignment of moving ten stacks of and team performance and will make your orga-
supplies from one side of the warehouse to the nization more effective. With effective feedback
other by the end of the day will know that if only processes, employees can see their progress and
one of ten stacks is moved by noon, they are not that motivates them to reach their performance
likely to complete the assignment on time. This goals successfully.
information is self-evident and is obtained by the



Example of Feedback Sources:
The far right column lists the feedback sources used for gathering data about performance.
Standards*
Feedback
Element, Type, and Minimally Fully Exceeds Fully Source for
Priority Points Specific Measures Successful Successful Successful Monitoring

Guidance and tech- The accuracy of the info, as Usually Usually Almost Supervisor
nical assistance to determined by supervisor. accurate. accurate. always accur- observa-
lower-graded Spe- The perceptions of lower- 50-59% of 60-80% of ate. 81-89% tion.
cialists. graded Specialists that the Specialists Specialists of Specialists 360-degree
incumbent is willing to assist agree that in- agree that in- agree that in- tool.
and that feedback is helpful. cumbent is cumbent is cumbent is
routinely will- routinely will- routinely will-
ing to assist & ing to assist & ing to assist &
that feedback that feedback that feedback
Critical Element The number of hours it takes is helpful. is helpful. is helpful.
for the incumbent to Usually Usually Usually 360-degree
respond to lower-graded Spe- responds responds responds tool.
cialists’ within 8-12 within 4-8 within 2-4
request for assistance. working hours working hours working hours
from receipt from receipt from receipt
40 priority points of request. of request. of request.

Cases of unusual The ratio of errors to correct 9-10% total 3-8% total 2% total Data from
technical difficulty cases, as judged by supervi- errors/quarter. errors/quarter. errors/quarter. automated
that are completed. sor and reviewers. Unusual cases Unusual cases Unusual cases system.
# of days it takes to com- routinely routinely routinely Data from
Critical Element plete an unusual case. completed in completed in completed in automated
10 priority points 36-40 days. 30-35 days. 25-29 days. system.

Responses contain- The number of days it takes Correspon- Correspon- Correspon- Data from
ing requested infor- to respond to correspondence usually dence usually dence usually automated
mation or solutions dence. answered in answered 7-9 answered 5-6 system.
to customer com- 10 days for days for pri- days for pri-
plaints. priority, 17 ority, 14-16 ority, 12-13
for regular. for regular. for regular.
50-59% of 60-79% of 80-89% of
Supervisor’s and customers’ customers are customers are customers are
perception of the quality of generally sat- generally sat- generally sat- Customer
the response. isfied with the isfied with the isfied with the survey.
content and content and content and Supervi-
timeliness of timeliness of timeliness of sor’s judg-
Critical Element response. response. response. ment.
The supervi- The supervi- The supervi-
sor is usually sor is usually sor is usually
satisfied with satisfied with satisfied with
70-74% of 75-89% of 90-95% of
responses. responses. responses.
85-89% cus- 90-97% cus- 98-99% cus-
% of correspondence tomers are tomers are tomers are Data from
answered within a certain usually usually an- usually an- automated
number of days. answered in # swered in # of swered in # of system.
of days deter- days deter- days deter-
25 priority points mined above. mined above. mined above.



Recommendations Reviewers’ judgement that Management Management Data from
for improvements the recommendation and team and team automated
to work process improves efficiency, produc- members de- members de- system.
and ADP systems. tivity, flexibility, costs, termine that termine that
and/or usability. the recom- the recom-
mendation (s) mendation (s)
is worth is worth
**N/A
Additional Perfor- adopting. adopting.
mance Element # of recommendations made. Incumbent Incumbent Data from
provides 1-2 provides 3-5 automated
adopted adopted system.
recommenda- recommenda-
0 priority points tions per tions per
year. year.

Support Branch
Element:
Competent Division Ratio of errors/correct cases 9-10% errors 3-8% errors 2% errors Data from
Employees within Division. within the within the within the automated
Division per Division per Division per system.
quarter. quarter. quarter.
% of training needs filled. 65-74% of 75-95% of 96-97% of Analysis
training needs training needs training needs of training
filled. filled. filled. needs as-
sessment.
Total cost of the training The cost of The cost of The cost of Automated
given. training ex- training meets training is budget
ceeds budget budgeted within 1% system.
Non-critical by up to 1%. amount. below budget.
Element # of days it takes to fill a Within 31-45 Within 15-30 Within 7-14 Work con-
training need once it has days of days of days of trol proce-
been determined. determination determination determination dures.
of training of training of training
needs, the needs, the needs, the
Division Division Division
training plan training plan training plan
is developed. is developed. is developed.
Within 121- Within 45- Within 30-44 Work con-
150 calendar 120 calendar calendar days trol proce-
days of days of of approved dures.
approved approved training plan,
training plan, training plan, training is
training is training is given.
25 priority points given. given.
*To meet the performance level of the standards described for each element, each listed part of the standard must be present or
occur.
**The Branch decided that there was no benefit to establishing a Minimally Successful standard for an additional performance
element.



Exercise on Defining Feedback Sources:
Now that you have developed elements, measures, and standards, what are the best sources of
feedback for those elements? How often is it feasible to receive feedback? Who needs to see the
feedback?



Step 8:
Check the performance plan.
Once you have developed a performance plan 5. Are the standards fair? Are they comparable
using the previous seven steps, checking your to expectations for other employees in similar
work is always a good idea. Use the checklist positions? Do they allow for some margin of
below to ensure that the elements and standards error?
you developed to include in the performance
plan are effective and meet regulatory require- 6. Are the standards applicable? Can the ap-
ments: praiser(s) use the standards to appraise per-
formance? Can the appraiser(s) manage the
1. Are the critical elements truly critical? Does data collected through the measurement pro-
failure on the critical element mean that the cess?
employee’s overall performance is unaccept-
able? 7. Will work units and employees understand
what is required?
2. Is the range of acceptable performance clear?
Are the performance expectations quantifi- 8. Are the elements and standards flexible? Can
able, observable, and/or verifiable? they be adapted readily to changes in
resources or objectives?
3. Are the standards attainable? Are expecta-
tions reasonable? 9. If your program permits appraising element at
levels above the Fully Successful or equival-
4. Are the standards challenging? Does the ent level, is the Fully Successful or equiva-
work unit or employee need to exert a rea- lent standard surpassable? Is it possible for a
sonable amount of effort to reach the fully work unit’s or an employee’s performance to
successful performance level? exceed it?



Guiding Principles for Performance Measurement
The principles listed below contain some valu- measure customer satisfaction with its service
able lessons learned about measuring perfor- (the more difficult measure), the team does not
mance. have complete information about its performance
and has no idea how well they are serving their
View performance measurement as a customers. In addition, because what gets mea-
valuable tool, not as an evil. People sured gets done, the team will probably focus on
view measurement systems from at least two how it can increase the number of calls it re-
different perspectives. When used construct- ceives and ignore the quality of service it pro-
ively, they see a measurement system as a help- vides.
ful feedback tool that provides information to
managers and employees about how well they As a result, organizations need to anticipate the
are doing in reaching their goals and where they behavioral and unintended consequences of
might have room for improvement. It also pro- measuring performance. As an example,
vides information on which to base awards and recently a medical laboratory came under fire
recognition. When used poorly, however, peo- because of the errors it made in certain of its
ple see a measurement system as a punishing cancer tests. A high number of cancer tests that
club with which to hit people over the head if the the laboratory had approved as negative turned
numbers or results are bad. Managers and out to be wrong—cancer had actually been
employees must trust that the measurement evident. An investigation found that the labora-
sytem is beneficial to them and the organization; tory had been measuring and rewarding its
otherwise, the temptation to game the numbers employees on the number of slides they
to avoid discipline will overwhelm them. reviewed daily, not on the accuracy of the re-
views. Knowing that the more slides they
Acceptance of the performance mea- reviewed, the more recognition they received,
surement process is essential to its employees were quickly moving from slide to
success. Involving employees in the develop- slide to slide without accurately reading them.
ment of the elements and standards included in As a result, the lab’s errors in measuring what
the performance plan is an excellent way to clar- was important allowed cancer to go untreated
ify expectations and measurement terminology. and people who could have been saved through
Active employee participation in creating valid early detection and treatment lost their lives.
measures that accurately reflect performance
decreases the possibility that employees may feel Develop employee performance plans
manipulated through the measurement system. that are flexible enough to allow for
changes in program goals to keep the
Measure what is important—not what process credible. Do not design perfor-
is easy to measure. It is easy to count the mance plans that are set in concrete; build in
number of days since a project began, but if that flexibility so you can adjust them as program
is all that you measure, is that enough information goals and work assignments change. Even
to assess performance? No, probably not. Or though employees must work at least a minimum
if, for example, a customer service team only period of time on elements and standards before
measures the number of calls that come into the they receive performance ratings, the agency
team (the easy measure) and does not attempt to minimum appraisal period usually provides



enough time during the appraisal period for Employees should perceive that per-
changes in elements and standards. (Minimum formance measurement is important.
appraisal periods usually range from 30-120 In many organizations, employees have been
days, depending on the agency. Check with exposed to a variety of management fads that
your agency to find out the minimum appraisal seem to appear and then fade away as the next
period that applies to you.) fad takes its place. Employees need to know
that management is serious and committed to
Rely on multiple measures. Don’t rely on measuring and improving performance.
a single measure. Remember the story of the
three blind men who went for a walk and came Management should demonstrate that
across an elephant? One felt the animal’s trunk performance is critical to organiza-
and claimed that the elephant was like a large tional and individual success. Closely
snake. Another explored the elephant’s leg and related to the previous principle, this principle
claimed that the elephant was like a big tree observes that not only should employees per-
trunk. The third blind man touched the ceive that performance measurement is impor-
elephant’s side and said that the elephant was tant, but management must demonstrate that
like a tall, wide wall. All three of them were performance matters. When management toler-
right, but all of them were wrong. Each one was ated poor performance in the past and employ-
relying on only one measure from one perspec- ees see that the new measurement system has
tive. If the measures had been used together, not changed the situation (in other words, Joe or
the three men would have had a more accurate Mary still comes to work and reads the paper
picture of the elephant. for most of the day), employees know that per-
formance is not important, despite the new sys-
tem.


Chapter 4
Learning Aids

Performance Measurement Quiz
Circle the correct answer(s).

1. Circle the accomplishments listed below:
a. A completed, accurate report.
b. Types reports and correspondence.
c. Teamwork.
d. Guidance and technical assistance.
e. Satisfied customers.
f. Answers phones.

2. Non-critical elements have to be weighted less than critical elements.
a. True.
b. False.

3. Standards should be written in terms of specific measures.
a. True.
b. False.

4. Which of the following are NOT regulatory requirements for critical elements:
a. Each employee must have a minimum of one critical element.
b. Critical elements must measure individual performance.
c. Critical elements generally can be used to measure team level performance.
d. Critical elements must have an established standard at least at Fully Successful.
e. Critical elements must be given greater weight than non-critical elements in deriving a
summary level rating.

5. Which of the following statement(s) are true about feedback:
a. Peers can be included as sources of input for appraisals.
b. Feedback should be specific.
c. Whether to use 360-degree feedback depends on what you’re measuring.
d. Feedback should be timely.
e. Feedback should be given in a manner that will best help improve performance.
f. All of the above are true.

6. Performance plans must be built from the employee’s position description.
a. True.
b. False.


Learning Aids

7. You can’t measure results at the individual level.
a. True.
b. False.

8. The four general measures for measuring employee and work unit performance are cost-
effectiveness, quantity, timeliness, and:
a. Flexibility.
b. Quality.
c. Agency strategy.
d. Teamwork.

9. Absolute standards can never be used.
a. True.
b. False.

10. A Fully Successful standard is a retention standard when: (circle the correct response(s))
a. The standard is used in a Pass/Fail program with critical elements appraised at only two
levels.
b. When there is no Minimally Successful level available in the appraisal program.
c. It doesn’t matter. Performance isn’t important in my organization and performance-based
actions are never taken.

11. Measurement should be used for performance improvement and not as a tool to club people
over the head.
a. True.
b. False.

b; 9-b; 10-a&b; and 11-a.
1-a,d, & e; 2-b; 3-a; 4-c; 5-f; 6-b; 7-b; 8-
The answers to the Quiz are as follows:


Learning Aids

Quick Reference for Developing
Employee Performance Plans That
Align With Organizational Goals
Step 1 Look at the overall picture.

Review organizational goals and objectives and performance measures already
available. Determine which goals and measures the employee’s work unit can affect.

Step 2 Determine the accomplishments at the work unit level using any or all of the
following methods:

Method A. Cascade the agency’s goals to the work unit level. Determine the work
unit’s accomplishment(s) that directly affect the organization’s goals.

Method B. Determine the product(s) or service(s) that the work unit provides to its
customers.

Method C. Develop a work flow chart for the work unit, establishing key steps(s) in
the work process.

Step 3 Determine individual accomplishments that support work unit goals.

Elements that address individual performance can be identified using a role-results
matrix. List the work unit accomplishments across the top of the matrix. List each
member of the work unit or each job position down the left side of the matrix. In each
cell, list the accomplishment (i.e., performance element) that the member must produce
or perform to support the work unit accomplishment. All performance elements should
be either quantifiable or verifiable.

Step 4 Convert expected accomplishments into performance elements, indicating type
and priority.

All employees must have at least one critical element. Critical elements must address
individual performance only. Work unit performance can be addressed through non-
critical or additional elements. In appraisal programs with only two summary levels,
work unit performance can be addressed only through additional performance elements.

Determine work unit and individual measures.


Step 5 For each element, determine which general measure(s) (i.e., quantity, quality, timeliness,
or cost-effectiveness) are important. Determine how to measure the quantity, quality,
timeliness and/or cost-effectiveness for the element. If an accomplishment can be
measured with numbers, determine the unit of measurement to be used. If performance
can only be described (i.e., observed and verified), clarify who would appraise the
work and what factors they would look for.

Step 6 Develop work unit and individual standards.

A Fully Successful or equivalent standard must be established for each critical element.
If the measure for the element is numeric, determine the range of numbers that would
represent Fully Successful performance. For critical elements appraised at two levels,
the Fully Successful standard identifes the level of performance below which perfor-
mance is Unacceptable. For critical elements appraised at more than two levels,
establish a range of performance above which special recognition may be warranted
and below which a performance problem exists.

If the measure for the element is descriptive, determine what the appraiser would see or
report that would verify that performance is Fully Successful. For critical elements
appraised at two levels, describe performance for that element below which is Unac-
ceptable performance. For elements appraised at more than two levels, and for
elements for which stretch goals are desired, determine what exceeding expectations
would look like. Describe what the appraiser would see happening when expectations
are exceeded.

Step 7 Determine how to monitor performance.

Determine what data to collect for each performance element, which source the data
should come from, and whether to collect all the data or just a sample. Determine when
to collect the data, who should collect it, and who should receive it. Review existing
reports for possible use as feedback reports. Create feedback tables or graphs where
appropriate or necessary. Try to design feedback processes that give employees
feedback automatically.

Step 8 Check performance plans using the following guidelines:

1. Are the critical elements truly critical? Does failure on the critical element mean
that the employee’s overall performance is unacceptable?

2. Is the range of acceptable performance clear? Are the performance expectations
observable and/or verifiable?

3. Are the standards attainable? Is this a reasonable expectation?

4. Are the standards challenging? Does the work unit or employee need to exert a
reasonable amount of effort to reach a fully successful performance level?


Learning Aids

5. Are the standards fair? Are they comparable to expectations for other employees
in similar positions? Do they allow for some margin of error?

6. Are the standards applicable? Can the appraiser(s) use the standards to appraise
performance? Can the appraiser(s) manage the data collected through the
measurement process?

7. Will work units and employees understand what is required?

8. Are the elements and standards flexible? Can they adapt readily to changes in
resources or objectives?

9. If your program permits appraising element performance at more than two levels,
is the “Fully Successful” or equivalent standard surpassable? Is it possible for a
work unit’s or an employee’s performance to exceed it?


Appendix A
The following illustrations of elements and standards were written specifically for appraisal programs
that appraise performance of elements at five levels.

Human Resources Technician
Element *Standards

Customer Minimally Successful Standard:
Satisfaction Meets only 3 of the 4 bullets listed for Fully Successful.

Fully Successful Standard: (To meet this standard, the employee must
meet all of the following bullets.)
As determined by the supervisor through direct observation and/or discus-
sions with several customers and/or peers:
C Usually communicates clearly, courteously, and effectively with
customers.
C Whenever possible, elicits customer feedback to improve service.
C Routinely responds to each customer request with the most accurate
and complete information available. If the information to a telephone
call can not be provided immediately upon request, usually provides an
answer within 3 working days of receipt of call. Email responses are
usually answered within 5 working days. Formal written correspon-
dence is produced within agencywide standards (usually 10 working
days). If the employee cannot answer a question completely, he/she
generally provides name and phone number for the proper contact. If
the question requires additional research, keeps the customer apprised
of progress.
C Generally mails requested information within 3 working days of receipt
of request. If material is temporarily unavailable, usually notifies the
customer when they may expect to receive it.

Outstanding Standard:
Exceeds the Fully Successful standard plus two of the following occur:
C Receives praise and/or written commendations from customers.
C On own initiative, assumes and accomplishes a significant amount of
work beyond the normal load of assigned duties to achieve customer
satisfaction.
C Proactively communicates with customers to establish good working
relationship and assess customer needs.
C Consistently demonstrates in-depth knowledge of customer programs.
*The standards include measures that can be tracked without using a customer survey. Exceeds
Fully Successful falls between the performance described for Fully Successful and that described
for Outstanding. Unacceptable performance falls below the minimum of Minimally Successful.


Appendix A

Human Resources Policy Specialist
Element *Standards

HR Policy Products Minimally Successful Standard:
(e.g., written guid- Meets only 4 of the 5 bullets listed for Fully Successful.
ance, reports,
overviews, Fully Successful Standard: (To meet this standard, the employee must meet all of the
workshops, following bullets.)
formal Quality:
presentations) C Written products generally follow the principles outlined by the President’s Plain
Language memo and NPR guidance, including logical organization, descriptive
section headings, simple terms, and good use of tables, lists, graphics, and white
space.
C Presentations and workshops, if done, are generally well-organized with a logical
flow, a use of simple terms, and graphics that illustrate concepts to help audience
understanding. The overall audience rating of the presentation, if done, is at least
acceptable.
C Products usually reflect sound analytical thinking and present recommendations
consistent with sound HR principles and supportive of Administration initiatives.
Quantity:
C Produces (or does significant work for) at least one major product (e.g., a work-
shop, a complex paper, report, or overview, often over 10 pages long), at least
three intermediate-in-scope products (e.g., topic papers or overviews 3-10 pages
long), or at least five minor products (e.g., newsletter articles, 1-2 page papers) or
a combination of these. (To meet the definition of “produces,” the report or
paper at least must be cleared by the Division Chief.)
Timeliness:
C Draft written products are usually completed and given to team leader for review
by the date agreed to at initial assignment. Revisions are produced and given to
the team leader within 2 months, or within the agreed-upon time frame.

Produces more than two major products, more than five intermediate-in-scope
products, more than eight minor products, OR a combination of these. Exceeds the
quality and timeliness criteria for the Fully Successful level, plus the employee meets
at least three of the following:
C on own initiative, proposes the subject of the product.
C completes extensive research to complete the product.
C develops applicable, understandable models.
C develops applicable, understandable examples.
C synthesizes complex issues and condenses and explains them so that they are
understandable to a general audience.
C product content provides leadership in the program, fits the HR policy into the
big picture of management, links HR policy to organizational goals, and/or
highlights the links of HR policy with other management functions.
C develops original, understandable graphics that illustrate the concept being
presented.
*Exceeds Fully Successful falls between the performance described for Fully Successful and that
described for Outstanding. Unacceptable performance falls below the minimum of Minimally
Successful.


Appendix A

Medical Records Document Clerk
Element *Standards

Minimally Successful Standard:
Medical Records that The employee meets only 4 or 5 of the bullets listed for the Fully
include accurately filed Successful standard.
documentation.
Fully Successful Standard: (To meet this standard, the
employee must meet all of the following bullets.)
As determined by the supervisor and from doctor/clinic feedback:
Quality
C Paperwork is usually filed according to hospital documentation
regulations, with only few errors or complaints;
C With few exceptions, medical records requested by a
doctor/clinic/emergency room contain the paperwork received
by the Medical Records Section within the last 3 working days,
filed accurately.
C With few exceptions, paperwork is date stamped the same day it
arrives in the Section.
C The employee can usually locate records, whether they are in
their filing shelves or checked out to doctors/clinics.
Quantity
C The backlog of paperwork to be filed usually does not exceed
the amount received within the last 3 working days.
Timeliness
C Medical records are usually supplied to requestors by the time
requested. In emergency situations, medical records are supplied
within an hour of request.

Exceeds at least three of the bullets listed for the Fully Successful
standard plus at least three of the following are met:
C Most medical record jackets are in good condition, i.e., torn or
worn jackets have been replaced, as supplies allow.
C Very few records are over three inches thick, i.e., overly-thick
files have been split into additional volumes.
C On own initiative, systematically reviews assigned files to ensure
accuracy of paperwork placement in the file.
C Voluntarily conducts systematic searches for missing paperwork
or records, including verifying checkout cards.
C At least one of the employee’s suggestions for improvements in
the filing process or to records management is adopted.
described for Outstanding. Unacceptable performance falls below the minimum of Minimally
Successful.


Appendix A

Attorney Advisor
Element *Standards

Fully Successful Standard: (must meet all of the following)
Written materials Quality
(e.g., legal memoranda, As determined by the supervisor, written materials:
briefs, and pleadings) C are generally considered to be of average professional quality.
C are infrequently returned for substantial revision.
C usually fully analyze relevant legal and policy issues.
C usually reflect thorough investigation of factual and legal resources.
C usually do not contain significant extraneous or inappropriate mate-
rial.
Timeliness
C Written materials are generally completed and presented in accor-
dance with established deadlines or time frames.
Quantity
C In most instances, written materials are developed as needed.

Outstanding Standard: (must meet all of the following)
Written materials:
C are routinely considered to be of highest professional quality.
C are rarely returned for substantial revision.
C consistently fully analyze relevant legal and policy issues.
C reflect thorough investigation of factual and legal resources.
C do not contain significant extraneous or inappropriate material.
C are completed prior to established deadlines or time frames.
C are always completed as needed.
described for Outstanding.


Appendix B
that appraise performance of elements at three levels.

Team Leader, Packaging Production Team
Element *Fully Successful Standard (To meet the Fully Successful
standard for an element, all of the bullets listed for the element
must be met.)

Quality products C Usually 90% to 95% of pallets have no defects.
C With few exceptions, no more than 1.5 to 2 hours of down
time per week.
C Normally, 5 out of 7 days the packaging production schedule
is met.
C Normally, 5 out of 7 days the shipments are met.

Safe work environment C Safety problems are corrected or improvements usually are
made by agreed-upon date.
C Routinely holds one safety audit per week.
C Very rarely has any lost time hours.

Effective leadership C Production schedules are usually met 3 out of 5 days.
C Manager judges that the team leader periodically initiates
ways to reduce costs.
C Manager agrees with most decisions made and is generally
satisfied with the result of the decision.
Productive subordinates Manager is generally satisfied that:
C Training requirements of the team are met.
C Discipline is provided fairly and consistently.
C Most team members understand the department’s goals and
how their performance affects these goals.
C Team members understand how they’re performing against
their goals.
C Team members receive rewards for good performance.
*To achieve the Outstanding level, the employee must consistently exceed a majority of the bullets
listed for the Fully Successful standard. Unacceptable performance occurs when the employee
fails to meet one or more of the bullets listed for Fully Successful performance.


Appendix B

Program Analyst
Element: Oral presentations.

Standards (To meet a standard, a majority of the statements listed for the standard must be met.)

When attendee evaluations are available:
C Over 85% of attendees rated presentations good or very good.
When attendee evaluations are not available, the supervisor determines that the employee:
C Presents information in a clear, concise, and well-organized manner.
C Responds well to questions, including unanticipated ones.
C Creates a favorable impression for effective communication by seeking the views of others and
respecting different points of view.
C Asks probing questions to ensure that everyone understands the matters discussed.
C Concludes meetings with a complete summary of decisions or actions to be taken and who will do what.
C Clearly distinguishes between fact and opinion and avoids disclosing sensitive or tentative information
prematurely.
C Listens well, responds appropriately and articulately, and remains calm in adverse situations.
C Knows when and how to use visual aids, speaks authoritatively on subject matter, and displays ability to
respond directly to questions raised.
C Encourages active participation by others.
C Senses audience’s receptivity to presentation and adjusts accordingly.
C Shows thorough knowledge of issues and their relationship to broader issues.
C Presents technical information clearly and persuasively, demonstrating the importance and relevancy of
planning.

Fully Successful Standard:
When attendee evaluations are available:
C Over 60-84% of attendees rated the presentation good or very good.
When attendee evaluations are not available, the supervisor determines that the employee:
C Usually presents information clearly, concisely, and in a well-organized manner.
C Routinely shows respect for comments of participants.
C Generally keeps discussion on track.
C Usually elicits comments of others.
C Normally summarizes the results of the meeting.
C Generally weighs consequences of statements before speaking, clearly distinguishing between fact and
opinion, and most of the time avoids disclosing sensitive or tentative information prematurely.
C Usually listens well, responds to issues at hand, and minimizes extraneous information.
C Usually answers most questions and invites additional questions to ensure understanding.
C Generally ensures participants’ understanding at the conclusion of meetings.
C Usually presents technical information clearly and succinctly in a way that audience understands.


Appendix B

Graphics Designer
Element: Graphic designs
In addition to meeting all criteria of the Fully Successful standard, the supervisor determines that
the employee meets at least four of the following:
C Designs are often of such high quality that they generate spontaneous praise from clients.
C The elegance of designs often enhances their purpose in unexpected ways.
C Designs consistently reflect the highest professional standards and raise the standards for other
agency designers.
C The most complex design tasks are handled with little or no difficulty.
C Suggestions are made that improve the agency’s design processes.
C Potential problems are anticipated, brought to the supervisor’s attention as appropriate, and
usually solved independently.
C Interpersonal behavior towards supervisors, co-workers, and clients quickly resolves conflicts,
enhances cooperation, and promotes teamwork.

Fully Successful Standard (To meet this standard, all of the following must be met):
The supervisor determines that:
C The quality of information-material design is usually acceptable to the client and sufficient to
achieve the purposes intended.
C In most cases, designs are in accordance with the agency’s graphic standards system and meet
commonly accepted criteria for professional work.
C Logical planning, due consideration of priorities, and efficient application of technical graphics
skills usually result in creation of graphic designs in time to meet reasonable deadlines.
C Generally non-wasteful work habits reflect a consideration of costs to the Government.
C Instructions from supervisors are most often followed as given, major revisions are rarely
necessary, and routine problems are usually resolved with a minimum of supervision.
C Interpersonal behavior toward supervisors, co-workers, and clients usually promotes attainment
of work objectives and poses no significant problems.


Appendix B

Training Coordinator
*Fully Successful Standard (To meet the Fully Successful stan-
Element dard for an element, all of the bullets listed for the element must be met.)

Certified C Supervisors of certified programmers say that the trained program-
programmers mer(s):
C Could handle their assignments right away.
C Didn’t bother co-workers and supervisor for covered objectives.
C Skill/knowledge assessment was accurate.
C Recommended trainees generally complete the training within the
following time frames:
C Average of 18 to 25 working days to complete Phase I training.
C Average of 18 to 23 working days to complete Phase II training.
C Average of 10 to 15 working days to complete Phase III training.
C Most of the supervisors of the trained programmers say that the topics
covered match what is needed on the job.

Training Plans C Most internal customers agree that the training plan will meet their
needs and commit dollars and trainee time.
C Supervisor is generally satisfied that the training plan contains standard
components, has realistic timeliness and objectives, is based on input
from representative sample, and is consistent with agency long-range
goals, objectives and philosophy.
C Meets agreed-upon deadline for first approved draft.
Cross-trained an- C 60%-80% trainees meet learning objectives.
alysts C Trainee’s supervisors are generally satisfied with analysts’ improve-
ment in their ability to communicate with programmers, and solve
minor problems without a programmer.

Training facility The supervisor is satisfied that:
ready for training C In most instances, the training room is ready for training when needed.
C Materials are available.
C Speaker’s needs have been determined and addressed.

Customer service The supervisor is generally satisfied that the manual:
manual C Covers most if not all job dimensions.
C Has most if not all standard components.
The customer service supervisor says the document is useful.
*To achieve the Outstanding level, the employee must consistently exceed a majority of the bullets
listed for the Fully Successful standard. Unacceptable performance occurs when the employee
fails to meet one or more of the bullets listed for Fully Successful performance.


Appendix C
that appraise performance of elements at only two levels.

Policy Processing Clerk
Fully Successful Standard (To meet the Fully
Successful standard for each element, all of the bullets
Element listed for the element must be met.)

Completed audits C No more than 5 errors per month are found on audits.
C At least 10 weeks per year where no audits are more
than 30 days old.

Quotes and Proposals C No more than 5 quotes and proposals per month are
found to be inaccurate at issuing.
C No more than 5 quotes per month are processed in
more than 5 days.
C No more than 5 proposals per month are processed in
more than 24 hours.

Solutions C No more than 2 times per quarter are incorrect results
or procedures spotted by the supervisor or other team
members.
C No more than 2 times per quarter are problems cor-
rected in more than 3 business days.
Finished Policies C No more than 5 errors per month are spotted by team
members.
C No more than 5 times per month when someone can’t
do the next step on a policy due to illegibility, incom-
pleteness, or vagueness in the file.
C No more than 3 times per month someone on the team
gets a second call for the same issue/problem.
C At least 10 weeks per year where there are no changes
more than 30 days old.
C At least 5 weeks per year where there is no new busi-
ness more than 10 days old.

Answers to Questions C 60% of surveyed team members and a sample of peo-
ple outside the team say:
--The technician stops what (s)he’s doing and immedi-
ately tries to answer the question.
--They don’t find out later that the answer is wrong.
--If the technician doesn’t know the answer, (s)he
either researches the solution or directs the person to
the correct source.


Appendix C

Research Chemist
Fully Successful Standard (To meet the
Fully Successful standard for each element, a ma-
jority of the bullets listed for the element must be
Element present or occur.)

Analytical results and specifi- The Research Manager is routinely satisfied that:
cations C The method measures the appropriate variable.
C The results are relevant.
C The method is scientifically sound.
C There is a well-written protocol.
C The method is accurate, precise, reproducible,
fast, and cost-effective.

The customer is generally satisfied that:
C They can understand and observe the results.
C The cost is within their budget.
C The information gives understandable answers to
their questions.

Solutions to customer problems The Research Manager is routinely satisfied that:
C Reports and solutions address the question that
was asked.
C The assumptions or hypotheses are based on
scientific principles.
C The proposed solutions, suggestions, and/or
recommendations are understandable.
C The recommendations were provided within the
agreed-upon timeframe.

The customer is generally satisfied that:
C The report and any answers to questions address
the question that was asked.
C The proposed solutions, suggestions, and/or
recommendations are understandable.
C The proposed recommendations were provided
within the agreed-upon timeframe.
C The solutions work.
C The information gives understandable answers to
their questions.
C They are able to implement the recommenda-
tions.


Appendix C

Engineer
Fully Successful standard for each element, all of
the bullets listed for the element must be present or
Element occur.)

Designs for capital improvements The supervisor is routinely satisfied that:
and operations changes C The cost estimate is sufficiently itemized.
C There is backup documentation for all cost esti-
mates.
C There is consistency across design documents.
C The design looks like it will solve the problem or
meet the need.
C The design doesn’t cause new problems while
solving the original problem.
In addition:
C There is no more that 3% cost overrun due to
inaccurate quantities.
C The design is routinely completed by the agreed-
upon deadline.

Budget report C The budget report is generally submitted by the
fifteenth day of the month.
C The engineer is routinely able to answer ques-
tions about project financial status at any time.
Completed projects The supervisor is routinely satisfied that:
C The project is constructed according to the de-
sign.
C Unexpected conditions are successfully worked
around.
C Recommendations are made by agreed-upon
deadline.
C The contract cost is within 5% of the estimate.


Appendix C

Program Analyst (Budget)
Fully Successful standard for each element, a
majority of the bullets listed for the element
Element must be present or occur.)

Business decision recommendations, The supervisor is routinely satisfied that:
including budget analysis and cost C Cost impacts surrounding the decision have
information/analysis been identified and evaluated.
C The numbers are accurate and do not
require second guessing or rework.
C Reports/analyses logically state the issues
and reach conclusions that are supported by
the data and analyses.
C The analysis is useful and answers the ques-
tion asked.
C The analysis/information was provided by
the agreed-upon deadline.

Financial systems improved The supervisor as well as the users of the sys-
tem are generally satisfied that:
C The system change is within the scope of
control.
C The change provides information in a more
efficient, accurate, and useful manner than
previously.
C The time required to implement the change
meets the customer’s needs and deadlines.
C The value of the improvements exceeds the
cost of the implementation.
Budget process evaluation and analysis The supervisor is routinely satisfied that:
C The reports/analyses logically state the is-
sues and reach conclusions that are sup-
ported by the data and analyses.
C The evaluations address all issues and cost
impacts.


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