Performance Management Desk Guide

FAS Supplement: Writing Elements and Standards

May 2006


Introduction	This supplement to the FSA/RMA/FAS Performance Management Desk guide includes additional material to help FAS supervisors and managers in the writing of elements and standards as they prepare performance plans for the new rating year. The material consists primarily of examples of results-oriented elements and measurable standards and is intended to supplement the online training and desk guide.
FAS Example - Background Information	Let’s follow an example of an International Program Specialist in the Professional Development Program (PDP) of the Food Industries Division (FD). This division is part of International Cooperation and Development (ICD). In order to develop good elements and standards for your employee, you should review • The FAS Strategic Plan • Your organization’s mission statement • The incumbent’s position description
	The mission of the Foreign Agricultural Service is to advance the interests of the agricultural community and the general public by working to develop and expand foreign markets for U.S. food and agricultural products.
	The new FAS Strategic Goals include the following: Goal I: Create a level playing field for agricultural trade. Goal II: Expand the global agricultural trading system. Goal III: Reduce technical trade barriers and restrictive sanitary and phytosanitary measures
	FAS’ strategic goals can be found at:
	http://fastnet.usda.gov/OA/BudgetStaff/BudgetDefault.htm

	Mission Statements ICD’s mission is to help the total U.S. Department of Agriculture, other Federal agencies, and associated institutions or industries with global responsibilities, to serve worldwide human needs by strengthening food and agricultural systems in developing countries (and at the same time strengthening U.S. agriculture's international competitiveness and leadership) through collaborative programs.
	The Food Industries Division (FID) focuses on non-farm industries related to the food and fiber chain.
	Finally, the Professional Development Program (PDP) is responsible for the development, design, implementation, management and evaluation of both long-term and short-term academic and non-academic (Technical) training programs related to the central thrust of the Division. These programs are funded by bilateral and multilateral donors and are carried out in close collaboration with other USDA and Federal agencies, the university community, private sector organizations and agribusinesses. The following page highlights the primary duties and responsibilities of the International Program Specialist in the PDP.
Position Duties and Responsibilities – International Program Specialist Generally speaking, the International Program Specialist is responsible for developing, coordinating, administering and evaluating technical assistance and training programs in agricultural disciplines related to the objectives of the Professional Development Program. Specific duties and responsibilities can include:
• Coordinate and manage the development, implementation and evaluation of short-term and long-term professional development reimbursable programs in agriculture, agribusiness, rural development and related areas. Manage the acquisition of all necessary resources for the planning, operation and evaluation of these programs and monitor all programmatic and fiscal activities. Review financial records for accuracy and monitor rates of expenditures to ensure that programs are adequately funded. • Use U.S. and multinational networks and coordinating mechanisms to strengthen USDA's ties to USAID/Washington and Missions, other bilateral and multilateral donor organizations, universities and agribusinesses in the U.S. and overseas. • Recruit personnel for long and short-term assignments on U.S. and overseas programs. Recruitment sources may include USDA agencies, agricultural colleges and universities and other public and private organizations. Manage and conduct the orientation of new personnel on program objectives and current activities, technical and administrative backstopping and other relevant issues. • Initiate new activities with USAID and other donor organizations, develop proposals, scopes of work and related budgets and follow through to ensure timely implementation. • Review and evaluate the economic, agricultural, social and political developments of countries within area of responsibility. • Design and ensure the proper conduct of oral and written evaluations, review and analyze them; and summarize implications and recommendations for future activities. • Develop proposals, periodic and special reports, program descriptions and other documents which may be required of the program area.





Writing Results-oriented Elements	Now it’s time to create Elements and Standards for Jane, the International Program Specialist who reports to you. You identify the following FAS Strategic Goals and Objectives as the specific links to Jane’s position. Strategic Goal I, Objective 1.1: Expand foreign market access for U.S. exporters of agricultural, fish, and forest products. Strategic Goal II, Objective 2.1: Organize and facilitate long-term market infrastructure development activities and projects that support sustainable economic and rural development and trade capacity building.
	Using these two objectives to guide you, review Jane’s position duties and responsibilities (see previous page) for activities that support those two objectives. Your first task is to identify the four or five primary results-oriented responsibilities.

Tips for determining which responsibilities qualify as elements:

• The employee spends a significant portion of a day, week or month doing it.

• The employee has primary control over the outcomes.

• The task has an impact on the organization’s ability to accomplish its mission or meet its goals.


	You determine that the following are her primary responsibilities: 1. Implementing and evaluating programs 2. Recruiting technical experts for the programs 3. Managing the budget of existing programs 4. Reporting on programs to customers and government agencies
	Now you must word these responsibilities as results-oriented elements. The elements should • Capture the scope of the responsibility. • Begin with a verb and have an object. • State the responsibilities in terms of outcomes or outputs to the extent possible.

	The following are examples of two elements that relate to end results: 1. Develop and implement programs related to trade, applications of science and technology that raise agricultural productivity, improved natural resources management, and sustainable agriculture in developing and transitional countries for the purpose of enhancing economic growth, rural development, and environmental protection in an effort to build trade capacity. (FAS Goal II, Objective 2.1) 2. Recruit technical experts to advise on programs that teach best practices in food safety and live bird management in order to increase market access and facilitate adoption of policies and regulatory frameworks consistent with international standard-setting bodies thus developing markets to expand agricultural trade for the US. (FAS Strategic Goal I, Objective 2.1)
Creating Measurable Standards	The purpose for having standards is to be as specific and objective as possible in communicating to the employee what is expected as they execute their duties. The standard should be • Clearly written and unambiguous. • Be free from bias, personal feelings, or opinions. • Contain finite measures that specify the line between satisfactory work and less-than-satisfactory work.
	The measure should directly link the required performance of the job to the organization’s overall mission. It should also be consistently applied to all personnel in the same or similar position or grade with the same authority.
	Key to an effective standard is that you must realistically be able to observe and monitor the performance to ascertain whether the standard has been met. Finally, measurable standards should reflect the required level of performance and
	expected results for the Fully Successful level of the job. That is, a fully experienced and competent employee will consistently achieve or meet the performance standards for the job given circumstances within his or her control. Keep in mind that the wording must leave room for an employee to Exceed the standard.
	Example: • Manages project budgets, including funding from appropriations and outside funding sources (EMP, State, USAID, etc.). Keeps within budget amounts, and provides accurate (within 10%) status of funds estimates to the Program Manager on time.
	In this example, the underlined words indicate how the standard will be measured. The program manager can review the budget to determine whether or not Jane has kept within it. The manager is also in a position to judge whether the status of funds estimates are accurate within 10% and given on time. Notice also that ‘within 10%’ leaves room for exceeding the fully successful level, and yet provides an acceptable standard of excellence for keeping a running account of budget expenditures.
Tips for writing measurable standards: • Wording should be specific • The behavior described should be observable • The standard should be written to the “Fully Successful” level • The Fully Successful level should be worded in such a way that the employee can exceed the standard.

Types of Measures	There are basically four types of measures for performance assessment: quantity, quality, timeliness, and cost effectiveness. Different job tasks lend themselves to one or another of these types of measures or even a combination of two or three.
Quantity	Quantity measures assess “how many” or “how much” of something is required to meet Fully Successful. Examples of ways to state quantity measures include: § At least “x” “phone calls” per day § A minimum of “x” per week/month § Increases (or decreases) number of ____ by 10% § Introduces at least one new program (or service) per quarter § Receives no more than 2 grievances per 1000 employees
	For example, an International Training Specialist, Bruce, may have to establish contacts in each country of a region for which FAS is offering training. Perhaps history tells you that you should have at least a primary contact and a back-up contact. Maybe in some countries it is important to have two back-ups so that visas and other travel documents are sure to be executed in time. A quantity measure might then be relevant, such as:
	Establishes at least two contacts in each country of region X.
Quality	For many if not most jobs in FAS, quality measures will be applicable. Quality addresses “how well” the task was performed and refers to the accuracy, appearance, or usefulness of the work effort. Examples of ways to state quality measures include:
	• Adheres to standards established by ____ • In compliance with specifications • As measured by customer feedback indicating satisfaction • Reduced error rate (or rework) by ___% • Completion rate of ___ per month
	For example, an International Economist, Laura, working in the Trade Policy area must gather information available through news media, web sites and other sources about an assigned country in
	order to assess policy and technical issues. Additionally, Laura puts this information into a form easily used by Congressional members or other government officials as they interact with country representatives in negotiations. In the example below, quality measures are underlined.
	• Develops an accurate information database of materials related to policy and technical issues in X country; trade data is up-to-date and relevant to requests from inside the agency for material to be used in speeches, testimony or controlled correspondence, and also relevant to requests from outside the agency and department.
	In this example, the employee can exceed the standard by not only having an ‘accurate’ information database, but also having it be very ‘thorough’. She can also exceed the ‘up-to-date and relevant’ measures by making the information database ‘easily retrievable by group members and supervisors.’
	• Creates briefing books that include synthesized reports, scenarios, travel information and talking points that adequately prepare US representatives traveling in X country for their international visit and any trade discussions they may engage in. Feedback from the customer indicates satisfaction.
	In this example, ‘adequately prepare’ could be exceeded if customers feel they were ‘thoroughly’ prepared.
Timeliness	Timeliness measures refer to completion times and are usually expressed as how quickly, when, or by what date an employee produces the work. These are probably the easiest to craft.
	Examples of ways to state timeliness measures include: Submits reports on time at end of each quarter • Maintains cycle time of _____ • Consistently meets deadlines • Average call response time is ____ seconds

	One often-used expression is “in a timely manner.” This expression is actually not specific and is open to multiple definitions of what constitutes a timely manner. The manager must define what is meant by timeliness, and it is better to write the defined term into the standard. For example
	• Talking points are submitted in time for <<agency representative>> to prepare for critical meetings and policy discussion.
	Again, exceeding this standard could be accomplished by the employee consistently submitting the talking points well in advance of their need.
Cost Effectiveness	Cost-effectiveness measures refer to dollar savings or cost control for the Government that can be documented and measured in agency annual fiscal year budgets. Examples of ways to state cost-effectiveness measures include:
	• Maintains or reduces unit expenditures • Stays within budgets • Reduces the time it takes to provide X service by __% • Spends no more than $xx per program • Reduces waste by 10%
	An example for the International Training Specialist, who does have budgetary responsibility, might be: • Develops estimates of overall costs of proposed training projects and evaluates cost in relation to country budgets. Over expenditures will not exceed 10% and will be brought to the attention of the Senior Specialist and Program Leader.
Putting it all together	Returning to our example, Jane, the International Program Specialist, who works in the Professional Development Program (PDP) of the Food Industries Division (FD) within International Cooperation and Development (ICD), let’s follow the process all the way from the strategic plan to the measurable standard.
Elements and Accompanying Standards - Example 1	Jane’s first element is below with the FAS Goal and Objective in parenthesis at the end of it. • Develop and implement programs related to trade, applications of science and technology that raise agricultural productivity, improved natural resources management, and sustainable agriculture in developing and transitional countries for the purpose of enhancing economic growth, rural development, and environmental protection in an effort to build trade capacity. (FAS Goal II, Objective 2.1)
	The following are well written measurable standards for that element. The measurable component is underlined.
	• Independently (or with Program Leader) initiates actions to acquire necessary professional and technical services and material resources in time to offer an international training program and in accordance with established procedures. Actions include developing and submitting statements of work and other documentation necessary to initiate procurement actions, 672s for reimbursable work with other government agencies, and/or proposed cooperative agreements, administrative arrangements for the use of professional and technical resources.
	• Maintains at least bi-weekly contact with FAS Attaches, Embassy staff and other appropriate FAS/USDA staff to inform them of proposed project activities and implementation plans; maintains a log of contact activity.
	• Provides complete instructions and orientation to all project staff regarding their assignments and contract requirements as measured by feedback from project staff.
	• Reviews, evaluates and/or assesses project implementation and project results within three weeks of project completion. Collects and maintains a database of anecdotal impact results on projects for use in GPRA and other Agency accomplishments reporting.
	• Keeps Program Manager fully informed of project development activities; effectively liaises with ICD Coordinators as judged by program manager and ICD coordinators.
	• Monitors the work of support staff working on the activity, taking corrective action where needed to keep the project running smoothly.
	Notice in the foregoing examples that the capability to exceed the standard rests on the judgment of a third party. In these cases, the judgments may say that ‘most of the time’ this is the case and that would constitute Fully Successful. The judgments might also say that the employee ‘always’ does it, and that would indicate Exceeds.







Element and Accompanying Standards - Example 2	Element: Reports to relevant parties, through both written and oral communications, the status and results of project activities. (FAS Goal II, Objective 2.1)
	Measurable Standards: • Ensures that end of project/activity, quarterly or interim reports are submitted on time. • Submits weekly highlight reports on activities on time and ensures that submissions are written in accordance with Agency guidelines.
	To exceed this standard, the employee would have to submit the reports ‘in advance’ and/or the reports could be judged to be ‘well-written’ as well as in accordance with Agency guidelines.
	• Prepares briefing papers and talking points upon request of the Program Manager or significant stakeholders. • Keeps all collaborators, relevant FAS staff, FAA Posts informed of major project activities at least bi-weekly.

Job Aid 1: Tips for Writing Performance Elements

NOTE: A performance element is defined by government-wide regulations in terms of job components, i.e., what work an employee must perform. A performance element consists of job tasks rather than the degree of proficiency of an employee’s performance.

Step 1: Look At the Overall Picture

• Review the mission and functions statement of the organization.

• Review strategic plans and associated action plans. Determine which goals and measures your work unit can affect.

• Review the position description of the employee, and determine what work an employee’s pay is based on.

Step 2: Determine Work Unit Accomplishments

Determine your work unit's accomplishments that directly affect the organization's goals. In other words, what products or services does the work unit produce or provide to help the agency or program reach its goals?

Step 3a: Determine Individual Accomplishments That Support Work Unit Goals

• What does the employee do? - Use an action verb to introduce the statement. (e.g., Types and edits letters and memoranda for division chief.)

• What materials, tools, procedures, or equipment are used? (e.g., Operates a computer using a variety of software programs for word processing.)

• How does the employee do it? (e.g., When editing memoranda, consults style manual to ensure documents are presented in appropriate formats.)

• What is produced? - Describe what will result from the task. (e.g., Final reports, letters and memoranda.)


Step 3b: Determine Individual Tasks to be Written as Performance Elements
Include the task only if: • The employee spends a significant portion of a day, week or month doing it. • The employee has primary control over the outcomes. • The task has an impact on the organizations’ ability to accomplish its mission or meet its goals.
Step 4: Convert Expected Accomplishments Into Performance Elements

A performance element should consist of action verbs and their objects. For example:

	Action Verb	Object
	Plans Submits Writes Audits	training programs weekly reports talking points travel vouchers
*Examples of well-stated performance elements: • Submits monthly reports on analyzed policy statements for US-Canada agricultural trade issues. Contributes division perspective at monthly “XYZ” meeting. Prepares briefings and talking points for Congressional members visiting assigned countries. • Examines and computes all types of settlements. Determines authorized entitlements to the individual traveler. Examples of poor performance elements* (because they contain language that describes standards, a mixture of element and standard, or statements identifying attributes, abilities, behaviors, etc.) • Prepares proposal development worksheets, work breakdown structure and dictionary, proposal outline and mockup, compliance checklists and compliance matrix. Data is accurate and provided within established times. Provides a positive influence to team members and readily adapts to new situations or changing work environment. In this example the first sentence does describe what work is done and ending the element at this point would make it proper. However, by adding the second and third sentences, this element becomes distorted and confusing. The second sentence of this element is a statement of how well the work is to be accomplished and is therefore language describing a standard. The last sentence does not describe what work is to be done. • Complies with security, safety, and good housekeeping practices. This example uses the phrase “Complies with” which indicates how well something is being performed or accomplished; therefore, this statement contains language that actually makes it a standard.


Checklist for Writing Performance Elements
Is performance/execution of this element necessary for mission accomplishment?	Yes	No
Does the element establish an "end product" or outcome that will be the consequence of performing it?	Yes	No
Is there a negative consequence to the organization’s mission if performed inadequately or if the "end product" is not produced?	Yes	No
Is it reflected in the employee’s position description?	Yes	No
Is this a significant component of the position?	Yes	No
Is the "end product" central to the purpose of the position?	Yes	No
Is the element a regular or recurring requirement of the position?	Yes	No
Does employee have full authority to perform this element?	Yes	No
Is it distinguishable from other performance elements?	Yes	No
Does the element describe generalized personality traits? (If so, it cannot be used.)	Yes	No

Job Aid 2: Writing Performance Measures

A Good Performance Measure Is . . .

• Specific and objective. It should be clearly written, be free from ambiguities, bias, personal feelings, or opinions, and contain finite measures that specify the line between satisfactory work and less-than-satisfactory work.

• Mission related. The measure should directly link the required performance of the job.

• Nondiscriminatory. The measure should be able to be consistently applied to all personnel in the same or similar position or grade with the same authority. Although the elements may be the same for similar positions, the measure should reflect the grade level of the employee.

• Observable. You must be realistically able to observe and monitor the performance to ascertain whether the standard has been met.

• Written to the Fully Successful level. Performance measures should reflect the required level of performance and expected results for the job. A fully experienced and competent employee will consistently achieve or meet the performance standards for the job given circumstances within his or her control.

Tips for Developing Performance Measures . . .

To determine the type(s) of measure(s) that might be appropriate for each task, think about the following questions.

• Is quality important? Does the stakeholder or customer care how well the work is done?

• Is quantity important? Does the stakeholder or customer care how many items are produced?

• Is it important to accomplish the element by a certain time or date?

• Is it important to accomplish the element within certain cost limits?

Types of Performance Measures . . . .

Qualitative measures refer to the accuracy, appearance, or usefulness of the work effort.

• Adheres to standards established by ____

• In compliance with specifications

• As measured by customer feedback indicating satisfaction

• Reduces error rate (or rework) by ___%

• Completion rate of ___ per month

Quantitative measures refer to the number, percentage or frequency of products produced, services provided, or a general result.

• At least “x” “phone calls” per day

• A minimum of “x” per week/month

• Increases (or decreases) number of ____ by 10%

• Introduces at least one new program (or service) per quarter

• Receives no more than 2 grievances per 1000 employees

Timeliness measures refer to completion times and are usually expressed as how quickly, when, or by what date an employee produces the work.

• Submits reports on time at end of each quarter

• Maintains cycle time of _____

• Consistently meets deadlines

• Average call response time is ____ seconds

Cost-effectiveness measures refer to dollar savings or cost control for the Government that can be documented and measured in agency annual fiscal year budget,

• Maintains or reduces unit expenditures

• Stays within budgets

• Reduces the time it takes to provide X service by __%

• Spends no more than $xx per program

• Reduces waste by 10%

Tips for Evaluating the Measures . . .

Evaluate the tasks using a combination of descriptive and numeric measurements. Numeric measures are easy to verify and provide a quantifiable, objective tool. Descriptive measures have three components: a judge, what the judge looks for, and a verifiable description of what would represent meeting expectations.

Think about the following questions as you evaluate the measures for each task:

• How could quality, quantity, timeliness, and/or cost-effectiveness be evaluated?

• Is there some number or percent that could be tracked?

If the task does not lend itself to being evaluated with numbers but can only be described, ask:

• Who could judge that the expectations were met?

• What factors would they look for?