Proposed Personnel Demonstration Project; Performance-Based Pay Adjustments in the U.S. Department of Education/Federal Student Aid, 71168-71176 [E7-24259]

Agencies

• Office of Personnel Management
• Personnel Management Office

[Federal Register Volume 72, Number 240 (Friday, December 14, 2007)]
[Notices]
[Pages 71168-71176]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: E7-24259]


-----------------------------------------------------------------------

OFFICE OF PERSONNEL MANAGEMENT


Proposed Personnel Demonstration Project; Performance-Based Pay 
Adjustments in the U.S. Department of Education/Federal Student Aid

AGENCY: U.S. Office of Personnel Management.

ACTION: Notice of a proposed demonstration project plan.

-----------------------------------------------------------------------

SUMMARY: Chapter 47 of title 5, United States Code, authorizes the U.S. 
Office of Personnel Management (OPM), directly or in agreement with one 
or more agencies, to conduct demonstration projects that experiment 
with new and different human resources management concepts to determine

[[Page 71169]]

whether changes in human resources policy or procedures would result in 
improved Federal human resources management. The U.S. Department of 
Education/Federal Student Aid and OPM propose to test a performance-
based pay system within open pay ranges linked to the corresponding 
minimum and maximum rates for the grades of the General Schedule pay 
structure. Section 4703 of title 5 requires OPM to publish the proposed 
project plan in the Federal Register. This notice fulfills that 
requirement.

DATES: Written comments must be submitted on or before January 14, 
2008. A public hearing will be held on the proposed project plan on 
Tuesday, January 22, 2008, at the U.S. Department of Education/Federal 
Student Aid, 830 First Street, NE., Washington, DC, beginning at 10 
a.m. (Eastern Time).
    At the time of the hearing, interested persons or organizations may 
present their written or oral comments on the proposed demonstration 
project. The hearing will be informal. However, anyone wishing to 
testify should contact the person listed under FOR FURTHER INFORMATION 
CONTACT, so that the U.S. Department of Education/Federal Student Aid 
and OPM can plan the hearing and provide sufficient time for all 
interested persons and organizations to be heard. Priority will be 
given to those on the schedule, with others speaking in any remaining 
available time. Each speaker's presentation will be limited to ten 
minutes. Written comments may be submitted to supplement oral testimony 
during the public comment period.

ADDRESSES: Comments may be mailed to Demonstration Projects, U.S. 
Office of Personnel Management, 1900 E Street, NW., Room 7456, 
Washington, DC 20415 or submitted by e-mail to Demoprojects@opm.gov.

FOR FURTHER INFORMATION CONTACT: (1) U.S. Department of Education/
Federal Student Aid: Monica Woods, Human Resources and Workforce 
Services, (202) 377-3008; (2) U.S. Office of Personnel Management: 
Patsy Stevens, Systems Innovation Group Manager, (202) 606-1574, U.S. 
Office of Personnel Management, 1900 E Street, NW., Room 7456, 
Washington, DC 20415.

SUPPLEMENTARY INFORMATION: The goal of this demonstration project is to 
make employees' pay increases more performance-sensitive, so that only 
employees whose performance is Successful or better will receive any 
pay adjustments and the best performers will receive the largest pay 
adjustments.

Linda M. Springer,
Director.

Table of Contents

I. Executive Summary
II. Introduction
    A. Purpose
    B. Problems With the Present System
    C. Changes Required/Expected Benefits
    D. Participating Organizations
    E. Participating Employees
    F. Project Design
III. Personnel System Changes
    A. Performance Appraisal
    1. Program Requirements
    2. Supervisory Accountability
    3. Reconsideration of Ratings
    B. Open-Range Pay System
    1. Elimination of Fixed Steps
    2. Rate Range
    3. Pay Administration
    C. Performance-Based Pay Adjustments
    1. Pay Pools
    2. Performance Shares
    3. Pay Adjustments
    4. Employees Who Do Not Receive a Pay Adjustment
    5. Locality Pay and Special Rate Supplement
IV. Training
V. Conversion
    A. Conversion to the Demonstration Project
    B. Conversion Back to the Former System
VI. Project Modification
VII. Project Duration
VIII. Project Evaluation
IX. Costs
    A. Buy-In Costs
    B. Recurring Costs
X. Waiver of Laws and Regulations Required
    A. Title 5, United States Code
    B. Title 5, Code of Federal Regulations

I. Executive Summary

    This project was designed by the U.S. Department of Education/
Federal Student Aid in consultation with OPM. The demonstration project 
will modify the General Schedule pay system by eliminating fixed steps 
within each grade and providing for annual pay adjustments based on 
performance. The proposed project will test the application of 
meaningful distinctions in levels of performance to the allocation of 
annual pay increases under the General Schedule.

II. Introduction

A. Purpose

    The purpose of the proposed project is to modify the General 
Schedule (GS) pay system to provide larger annual pay increases to 
employees who are better performers based on performance distinctions 
made under a credible, strategically-aligned performance appraisal 
program and thereby improve the results-oriented performance culture 
within the organization.

B. Problems With the Present System

    The current GS pay system provides annual pay increases to all 
employees, even those whose performance is less than Successful. 
Similarly, periodic within-grade pay increases are virtually automatic. 
Although an employee's performance must be determined to be at an 
``acceptable level of competence'' in order for the employee to receive 
a within-grade increase (WGI), this is only a single-level threshold 
and no further distinctions in levels of performance play a role. All 
performance levels above the threshold are treated the same for 
purposes of determining the amount of the increase and the rate at 
which an employee advances through the rate range of his or her grade. 
The U.S. Department of Education/Federal Student Aid and OPM do not 
believe it is a wise use of the limited resources available for the 
compensation of Federal employees--nor does it serve taxpayers 
effectively or treat employees fairly--to pass on the same pay 
adjustments, year after year, to all employees regardless of 
differences in their performance.
    The current GS pay system does provide one limited tool to address 
distinctions in levels of performance--namely, quality step increases 
(QSIs). QSIs are discretionary adjustments that are not integrated into 
the normal pay adjustment process; thus, limited funds are available to 
provide QSIs, and the decision-making process may not be very 
transparent. In addition, there is no flexibility as to the amount of 
the QSI; a full step increase is required. Also, QSIs may be used only 
for those with the highest rating of record. In summary, QSIs alone 
cannot be relied upon to establish an effective link between pay and 
performance based on meaningful distinctions among different levels of 
performance.
    Under these constraints of the GS pay system, agencies are severely 
limited in their ability to establish a results-oriented performance 
culture as contemplated under the Human Capital Assessment and 
Accountability Framework (HCAAF). Within the HCAAF, a results-oriented 
performance culture effectively plans, monitors, develops, rates, and 
rewards employee performance, consistent with the merit system 
principle that ``appropriate incentives and recognition should be 
provided for excellence in performance'' (5 U.S.C. 2301(b)(3)).

C. Changes Required/Expected Benefits

    The proposed demonstration project responds to the problem 
identified above by eliminating the 10 fixed steps

[[Page 71170]]

within each of the 15 GS grades and by making annual GS pay adjustments 
performance-sensitive. Pay adjustments will be funded from a pay pool 
consisting of the amounts that would otherwise be used to pay the 
annual GS pay adjustment, WGIs, and QSIs to employees covered by the 
demonstration project. A share mechanism will be used to allocate pay 
increases among employees with different levels of performance, and 
managers will be expected to provide fair and equitable performance 
ratings. Implementation of the proposed pay system will result in 
larger pay increases going to employees who demonstrate higher 
performance. By regularly rewarding better performance with better pay, 
participating organizations will strengthen their results-oriented 
performance cultures. Among other things, they will be better able to 
retain their good performers and recruit new ones.

D. Participating Organizations

    The demonstration project will be conducted within the U.S. 
Department of Education/Federal Student Aid, which is committed to 
operating a credible, robust performance appraisal program aligned to 
the organization's strategic goals and objectives, and has demonstrated 
a commitment to providing the training and resources that will be 
needed to make its performance management program highly effective and 
credible.

E. Participating Employees

    The demonstration project will cover all GS rating officials in the 
Federal Student Aid organization. Table 1 shows the number of employees 
to be covered by the project by occupational series and grade.

                                              Table 1.--Covered Employees, by Occupational Series and Grade
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                        GS grade
              OCC series               ---------------------------------------------------------------------------------------------------------  Total
                                          1      2      3      4      5      6      7      8      9      10     11     12     13     14     15
--------------------------------------------------------------------------------------------------------------------------------------------------------
201...................................      0      0      0      0      0      0      0      0      0      0      0      0      0      1      0        1
301...................................      0      0      0      0      0      0      0      0      0      0      0      0      0      0      1        1
303...................................      0      0      0      0      0      0      0      0      0      0      0      0      0      0      0        0
340...................................      0      0      0      0      0      0      0      0      0      0      0      0      0      0      3        3
343...................................      0      0      0      0      0      0      0      0      0      0      0      0      0     17     32       49
501...................................      0      0      0      0      0      0      0      0      0      0      0      0      0      1      1        2
510...................................      0      0      0      0      0      0      0      0      0      0      0      0      0      0      6        6
560...................................      0      0      0      0      0      0      0      0      0      0      0      0      0      0      1        1
1101..................................      0      0      0      0      0      0      0      0      0      0      0      0      1     26      2       29
1102..................................      0      0      0      0      0      0      0      0      0      0      0      0      0      0      1        1
1160..................................      0      0      0      0      0      0      0      0      0      0      0      0      0      0      1        1
2210..................................      0      0      0      0      0      0      0      0      0      0      0      0      0      5      6       11
                                       -----------------------------------------------------------------------------------------------------------------
    Total.............................  .....  .....  .....  .....  .....  .....  .....  .....  .....  .....  .....  .....  .....  .....  .....      105
--------------------------------------------------------------------------------------------------------------------------------------------------------

Management has provided initial notice to affected employees and will 
continue consultation throughout project implementation.

F. Project Design

    The project has been designed simply to ensure that no 
participating employee with a rating of record of less than Successful 
will receive a pay increase and that funds available for pay 
adjustments will be allocated on the basis of performance.

III. Personnel System Changes

A. Performance Appraisal

    U.S. Department of Education/Federal Student Aid recognizes the 
importance of maintaining a highly credible performance management 
program. The U.S. Department of Education/Federal Student Aid will use 
a performance management program under the Department of Education 
appraisal system that has been approved by OPM consistent with chapter 
43 of title 5, United States Code. Throughout the duration of the 
demonstration project, the effectiveness of performance management 
within the project will be monitored by examining metrics and 
assessments that OPM and agencies generally apply to performance 
management and programs.
1. Program Requirements
    The U.S. Department of Education/Federal Student Aid performance 
appraisal program requires written performance plans for each covered 
employee containing the employee's performance elements and standards. 
The performance plan links the performance elements and standards for 
individual employees to the organization's strategic goals and 
objectives. Ongoing feedback and dialogue between employees and their 
supervisors regarding performance is required. In addition, the program 
provides for, at a minimum, one mid-year progress review.
    The appraisal program, including its performance levels and 
standards, provides for making meaningful distinctions in performance. 
Its summary level pattern under 5 CFR 430.208(d) uses Levels 1, 2, 3, 
4, and 5, which the U.S. Department of Education/Federal Student Aid 
has labeled Unacceptable, Minimally Successful, Successful, Highly 
Successful, and Outstanding, respectively. Employees must be covered by 
the appraisal program for at least 120 days before they can be assigned 
a performance rating. Supervisors and managers apply the program to 
make appropriate differentiations in performance, as shown through 
ratings distributions, that reflect overall organizational performance. 
Employees receive a written performance appraisal (i.e., a rating of 
record) annually. Forced distribution of ratings is prohibited. Each 
annual appraisal period will begin on October 1 and end on the 
following September 30. New employees on a 120-day performance plan 
that extends beyond the official appraisal period end date, but ends on 
or before December 31, will receive a rating of record at the 
conclusion of that performance plan's cycle, and will receive a 
prorated pay adjustment in accordance with section III.C. Performance 
appraisals will be completed in a timely manner to support pay 
decisions in accordance with section III.C.
    Additional guidance on the U.S. Department of Education/Federal 
Student Aid performance appraisal

[[Page 71171]]

program will be provided through internal policies and operating 
directives. Performance appraisal is an evolutionary process, and 
changes may be made during the course of the demonstration project 
based on findings from our ongoing evaluations and reviews. Any changes 
will be communicated to affected employees prior to the U.S. Department 
of Education/Federal Student Aid's implementing the changes.
2. Supervisory Accountability
    Supervisors are responsible for recognizing exceptional performance 
and providing appropriate consequences for employee performance by 
addressing poor performance. The performance expectations for 
supervisors and managers include the degree to which supervisors and 
managers plan, assess, monitor, develop, correct, rate, and reward 
subordinate employees' performance. To effectively meet these 
performance expectations, supervisors must articulate clear job 
requirements and performance expectations, provide regular performance 
feedback, and support employee development through training 
opportunities, coaching, mentoring, and individual performance plans. 
It is recognized that specific training will be provided to prepare 
supervisors and managers to exercise these responsibilities.
3. Reconsideration of Ratings
    To support fairness and transparency for the program and its 
consequences, employees have an opportunity to request reconsideration 
of a rating of record by a management official other than the rating 
official. Such reconsiderations must be in writing and initiated no 
more than 15 days after the official rating of record has been given to 
the employee. The management official must provide a decision on 
whether to adjust the official rating of record in accordance with the 
timeframes provided through internal policies and operating directives 
on administrative grievances. If the reconsideration of the appraisal 
results in a different rating of record, the revised rating of record 
will become the basis for the employee's pay adjustment(s) in 
accordance with section III.C. If the adjustment occurs after all pay 
deliberations have been finalized, it does not result in a 
recalculation of other employees' pay adjustments.

B. Open-Range Pay System

    Employees will continue to be covered by the 15-grade GS position 
classification system established under 5 U.S.C. chapter 51; however, 
the GS pay system established under 5 U.S.C. chapter 53, subchapter 
III, will be modified as described in the following sections. Except as 
otherwise provided in this plan, demonstration project employees will 
be considered to be GS employees in applying other laws, regulations, 
and policies.
1. Elimination of Fixed Steps
    The ten fixed steps of each GS grade will not apply to employees 
participating in the demonstration project. The fixed-step system was 
designed to reward longevity. An open-range pay system is an important 
element of any effort to make pay more performance-sensitive. No 
employee's pay will be reduced as a result of becoming covered by the 
demonstration project. However, demonstration project employees will no 
longer receive longevity-based, performance-insensitive within-grade 
pay increases at prescribed intervals. Instead, they will be granted 
annual performance adjustments as described in section III.C below.
2. Rate Range
    The normal minimum and maximum rates of the rate range for each 
grade will equal the applicable step 1 rate and step 10 rate, 
respectively, in the General Schedule.
    For employees with a rating of record below Successful, the minimum 
rate of the range is extended 5 percent below the normal minimum. An 
employee's rate may fall below the normal range minimum when that 
minimum increases as a result of a rate range adjustment and the 
employee cannot receive a pay adjustment because the employee's rating 
of record is below Successful, as described in section III.C.4.
    The U.S. Department of Education/Federal Student Aid may, at its 
discretion, extend the maximum rate of each range by five percent above 
the normal maximum for employees with a summary rating level at the 
highest level (Outstanding). Before implementing this feature, the U.S. 
Department of Education/Federal Student Aid must notify demonstration 
project employees in writing. This upper range extension is designed to 
help ensure that the range of available pay rates will be adequate to 
recognize truly outstanding performance. If an employee within this 
range extension receives a rating below the highest level, the 
employee's rate may not be increased except as necessary to prevent the 
rate from falling below the normal range maximum due to a rate range 
adjustment.
    In addition to rates of basic pay within the rate range, employees 
may receive locality payments or special rate supplements as described 
in the next section.
3. Pay Administration
    Performance-based pay adjustments described in section III.C will 
be made to the rate of basic pay. These adjustments are scheduled to be 
made on the same date that annual rate range adjustments normally take 
effect--i.e., the first day of the first pay period beginning on or 
after January 1.
    Locality-based comparability payments under 5 U.S.C. 5304 and 
special rate supplements under 5 U.S.C. 5305, as applicable, will be 
paid on top of the rate of basic pay in the same manner as those 
payments apply to other GS employees, except as otherwise provided in 
this section. If the U.S. Department of Education/Federal Student Aid 
extends the maximum rate of each range by 5 percent above the normal 
maximum for Outstanding performers, an adjusted rate cap 5 percent 
higher than the normal EX-IV cap may be established to accommodate 
those Outstanding performers. This higher cap will apply only to 
employees with an Outstanding rating of record whose pay rate is in the 
upper range extension.
    If the locality rate for an employee at the normal grade maximum is 
affected by the EX-IV cap, resulting in an ``effective locality pay 
percentage'' that is less than the regular locality pay percentage, the 
locality rate for an employee in the upper rate range extension of the 
same grade will be computed using that same effective locality pay 
percentage. For example, if the regular locality pay percentage is 30 
percent, but the EX-IV cap causes the amount of locality pay actually 
received by an employee at the normal grade maximum to be 20 percent, 
that effective locality pay percentage of 20 percent would be used to 
compute locality pay for an employee in the upper range extension of 
the same grade. Similarly, if the special rate supplement-adjusted rate 
for an employee at the normal grade maximum is affected by the EX-IV 
cap, resulting in an ``effective special rate supplement percentage'' 
that is less than the regular special rate supplement percentage, the 
adjusted rate for an employee in the upper rate range extension of the 
same grade will be computed using that same effective special rate 
supplement percentage.

[[Page 71172]]

    Subject to guidance provided by OPM, the U.S. Department of 
Education/Federal Student Aid will establish pay administration rules 
for determining an employee's rate of pay upon initial appointment, 
promotion, demotion, transfer, reassignment, or other position change. 
In addressing geographic conversions and simultaneous pay actions, such 
rules must be consistent with 5 CFR 531.205 and 5 CFR 531.206, 
respectively.
    Upon promotion, an employee is entitled to an increase of 8 
percent, or a higher increase as necessary to set the employee's rate 
at the minimum of the range for the higher grade. U.S. Department of 
Education/Federal Student Aid may establish exceptions to this policy 
to deal with employees receiving a retained rate, employees who are re-
promoted shortly after a demotion, employees with exceptional 
performance warranting a larger increase with higher management 
approval, etc.
    The grade retention provisions in 5 U.S.C. 5362 and 5 CFR part 536 
apply to demonstration project employees. The pay retention rules in 5 
U.S.C. 5363 and 5 CFR part 536 apply to demonstration project 
employees, subject to exceptions described in this section. One 
exception is that an employee with a rating of record below Successful 
may not receive an increase in his or her retained rate under 5 U.S.C. 
5363(b)(2)(B). For such an employee, the retained rate is frozen and 
not subject to adjustment. When such an employee's retained rate falls 
below the applicable adjusted rate for the grade maximum, the 
employee's retained rate will be terminated, and the employee's pay 
will be set at an adjusted rate equal to the retained rate (i.e., the 
rate is not set at the range maximum).
    If the U.S. Department of Education/Federal Student Aid extends the 
maximum rate of each range by 5 percent above the normal maximum for 
Outstanding employees and establishes a locality and special rate cap 5 
percent higher than the normal EX-IV cap, the following special rules 
would apply:
    (1) The cap on retained rates will be equal to the rate for level 
IV of the Executive Schedule plus 5 percent (instead of the EX-IV cap 
established under 5 CFR 536.306) in order to accommodate the upper 
range extension.
    (2) An employee in the upper range extension who is rated below 
Outstanding will be converted to a retained rate before processing any 
other pay action.
    (3) The range maximum rate used in computing retained rate 
adjustments will always be the applicable adjusted rate for the normal 
range maximum (including any applicability locality payment or special 
rate supplement), not the upper range extension maximum, regardless of 
the employee's rating of record.
    (4) If an employee is receiving a retained rate that is less than 
the applicable adjusted maximum rate (including any applicable locality 
payment or special rate supplement) for the upper range extension for 
the employee's grade, and if that employee receives a rating of record 
of Outstanding, the employee's retained rate will be terminated and 
converted to an equal adjusted rate (base rate in upper range extension 
plus applicable locality payment or special rate supplement). This 
conversion must be processed before any other pay adjustment.
    (5) For a retained rate employee with a rating of record of 
Outstanding, if a retained rate adjustment provided at the time of a 
range adjustment results in the retained rate falling below the 
applicable adjusted rate for the upper range extension maximum, the 
employee's retained rate will be terminated, and the employee's pay 
will be set at the maximum rate of the upper range extension.
    (6) For a retained rate employee with a rating of record of 
Successful or Highly Successful, if a retained rate increase provided 
at the time of a range adjustment results in the retained rate falling 
below the applicable adjusted rate for the normal grade maximum, the 
employee's retained rate will be terminated, and the employee's pay 
will be set at the normal grade maximum rate.
    As required by 5 CFR 536.304(a)(2) and 536.305(a)(2), any general 
pay adjustment, including a retained rate adjustment as described in 
the preceding paragraphs, must be processed before any other 
simultaneous pay action (such as a geographic pay conversion).
    When applicable, the saved pay rules in 5 U.S.C. 3594 and 5 CFR 
359.705 for former members of the Senior Executive Service continue to 
apply to demonstration project employees, except that (1) an employee 
with a rating of record below Successful may not receive an increase in 
his or her saved rate under 5 U.S.C. 3594(c)(2); and (2) the 50-percent 
adjustment rule must be applied in the same manner as it is applied for 
a retained rate under 5 U.S.C. 5363, subject to the modifications 
described in the preceding paragraphs. The rules regarding termination 
of a saved rate when it falls below the applicable adjusted maximum 
rate must be parallel to those governing termination of a retained rate 
under 5 U.S.C. 5363, subject to the modifications described in the 
preceding paragraphs.
    An employee's rate of basic pay may not exceed the normal maximum 
rate for the employee's grade unless the employee is receiving a 
retained rate under 5 U.S.C. 5363, a saved rate under 5 U.S.C. 3594, or 
is entitled to a rate within the upper range extension for employees 
with an Outstanding rating of record as provided under section III.B.2. 
An employee's rate of basic pay may not be below the normal minimum 
rate for the employee's grade unless the employee's most recent rating 
of record is below Successful.

C. Performance-based Pay Adjustments

1. Pay Pools
    Participating employees whose most recent rating of record is below 
Successful will not receive the annual GS pay adjustment. Funds that 
otherwise would be spent on the across-the-board GS pay adjustment, 
WGIs, and QSIs for demonstration project employees will instead be 
placed into a pay pool, which will be used to fund annual performance-
based pay increases for those employees whose rating of record is 
Successful or higher. If in any given year there is not an across-the-
board GS pay increase, the pay pool used to fund the performance-based 
pay adjustments will consist only of those funds that otherwise would 
be used for WGIs and QSIs. A share mechanism will be used (1) to ensure 
that employees with higher ratings of record receive greater pay 
increases than employees with relatively lower ratings and (2) to 
control costs without resorting to a forced distribution of ratings. 
Each employee will be assigned a certain number of shares, based on his 
or her rating of record in accordance with section III.C.2. All 
employees in the normal rate range whose rating of record is at least 
Successful will receive an adjustment equal to at least the amount of 
the annual GS base pay comparability increase under 5 U.S.C. 5303.
    The U.S. Department of Education/Federal Student Aid will determine 
which participating employees are covered by any pay pool and determine 
the dollar value of each pay pool. In setting the value of pay pools, 
the U.S. Department of Education/Federal Student Aid will allocate an 
amount for performance pay increases at least equal to the estimated 
value of the WGIs, QSIs, and annual GS pay adjustments that otherwise 
would have been paid to participating employees. In computing

[[Page 71173]]

the estimated value of WGIs and QSIs, the U.S. Department of Education/
Federal Student Aid may use estimated Governmentwide averages, as 
computed by OPM.
2. Performance Shares
    The U.S. Department of Education/Federal Student Aid will establish 
rating/share patterns for the pay pool--that is, the relationship 
between a rating of record and a single number of shares. Initially, 
the U.S. Department of Education/Federal Student Aid will use an 
approach under which the number of shares assigned to an employee with 
a Successful or higher rating of record will equal that employee's 
numerical performance score, which may range from 3.00 to 5.00. 
(Currently, performance scores are computed to the second decimal 
place.) Employees with a rating of record below Successful (performance 
score less than 3.00) will be assigned 0 shares. No shares may be 
assigned to an employee with a rating of record below Successful, since 
no pay increase is payable to employees with such a rating of record.
    The U.S. Department of Education/Federal Student Aid may revise the 
rating/share pattern for employees with a Successful or higher rating 
of record in coordination with OPM and after giving affected employees 
advance notice. Employees will be informed in writing at least 180 days 
before the end of the appraisal period of any decision by the U.S. 
Department of Education/Federal Student Aid to change the rating/share 
pattern.
    After the rating of record and shares are assigned to all 
employees, the value of a single share can be calculated.
3. Pay Adjustments
    In general: The U.S. Department of Education/Federal Student Aid 
will determine an employee's performance payout by first multiplying 
the employee's rate of basic pay by the number of assigned shares, and 
then multiplying the result of that calculation by the determined value 
of a performance share. The performance share value, expressed as a 
percentage, will be an allocated portion of the pay pool funds based on 
the employee's performance rating. On the first day of the first pay 
period beginning on or after January 1 of each year, this amount must 
be paid as an increase in the employee's rate of basic pay, but only to 
the extent that it does not cause the employee's rate to exceed the 
applicable maximum of the employee's rate range. Notwithstanding the 
preceding sentence, employees in the upper range extension rated below 
the highest level are subject to special rules as described in section 
III.B.2 and III.B.3. At the discretion of the Secretary or the 
Secretary's designee, any portion of the employee's performance pay 
increase amount not delivered as a basic pay increase may be paid out 
as a lump sum (with no charge to the pay pool). Such a lump-sum payment 
is not basic pay for any purpose and is not a cash award under chapter 
45 of title 5, United States Code. Special rules apply to retained rate 
employees as described later in this section.
    In no case may an employee with a rating of record of Successful or 
higher receive a performance payout that is less than the percentage 
value of any simultaneous base rate range adjustment, except for 
employees receiving a retained rate and employees receiving a rate in a 
upper range extension with a rating of record of Successful or Highly 
Successful, as provided in section III.B.2. This guaranteed amount will 
be used in place of any lower performance payout resulting from the 
share methodology. Any additional costs of using the guaranteed amount 
will be funded outside the pay pool. Otherwise, the guaranteed amount 
is applied in the same manner as the regular performance payout.
    An employee who does not have a rating of record for the appraisal 
period most recently completed will be treated the same as employees in 
the pay pool who received the modal rating for that period.
    The U.S. Department of Education/Federal Student Aid may establish 
policies on prorating the performance pay increases and/or lump-sum 
payments for an employee who, during the period between annual pay 
adjustments, was (1) hired or promoted, (2) in leave-without-pay 
status, (3) on a part-time work schedule, or (4) in other circumstances 
that make proration appropriate. Such proration policies will provide 
each affected employee with the full percentage adjustment used to 
adjust base rate ranges (if any) and will prorate any additional amount 
of performance pay increase that would be applicable to the employee 
but for the proration requirement. Such proration policies may 
establish a minimum employment period as a condition to receive any 
amount of a performance pay increase.
    If an employee's rating of record that is the basis for a 
performance payout is retroactively revised through a reconsideration 
or grievance process, the employee's performance payout must be 
retroactively recomputed using the share value as originally 
determined. Any such retroactive corrections are not funded out of the 
pay pool and do not affect the performance payouts provided to other 
employees in the pay pool. In setting the size of a future pay pool, 
management will take into account past and projected corrections.
    Special provisions for employees returning to duty after a period 
of service in the uniformed services or in receipt of workers' 
compensation benefits: Special pay-setting provisions apply to 
employees who do not have a rating of record to support a pay 
adjustment but who are returning to duty status after a period of leave 
without pay or separation during which the employee (1) was serving in 
the uniformed services (as defined in 38 U.S.C. 4303 and 5 CFR 353.102) 
with legal restoration rights (e.g., 38 U.S.C. 4316), or (2) was 
receiving workers' compensation benefits under 5 U.S.C. chapter 81, 
subchapter I. In these cases, the U.S. Department of Education/Federal 
Student Aid will determine the employee's prospective rate of basic pay 
upon return to duty by making performance pay adjustments for the 
intervening period based on the modal rating of record for employees in 
the pay pool. The performance pay increases during the intervening 
period may not be prorated based on periods covered by this provision. 
In addition, a performance pay increase that is effective after the 
employee's return to duty may not be prorated based on periods covered 
by this provision. A lump-sum payment for a period including actual 
service performed after the employee's return to duty must be prorated 
(based on service covered by this provision) under the same agency 
proration policies that apply generally to periods of leave without 
pay.
    Special provision for employees receiving a retained rate of basic 
pay: An employee receiving a retained rate under 5 U.S.C. 5363 or 5 
U.S.C. 3594 is not eligible for a basic pay increase except in 
conjunction with a rate range adjustment, as described in section 
III.B.3. At the discretion of the Secretary or the Secretary's 
designee, a retained rate employee may receive the same lump-sum 
payment approved for an employee in the same pay pool who is at the 
applicable range maximum and who has the same performance rating and 
number of shares.
4. Employees Who Do Not Receive a Pay Adjustment
    Employees with a rating of record below Successful are prohibited 
from receiving a pay increase, except if necessary to prevent an 
employee's rate

[[Page 71174]]

from falling more than five percent below the normal range minimum. 
When an employee does not receive a pay increase because of performance 
below the Successful level, his or her pay rate may fall below the 
minimum rate of the grade, since that range minimum may be increasing. 
However, in no case may an employee's rate of basic pay be set more 
than five percent below the normal range minimum.
    If the U.S. Department of Education/Federal Student Aid chooses to 
give such an employee a new rating of record of Successful or higher 
before the end of the current appraisal period, the employee is 
entitled to an increase effective on the first day of the first pay 
period beginning on or after the date the new rating is final. The 
increase must be the same dollar amount as the increase the employee 
would have received if he or she had been rated Successful at the time 
the increase was initially denied.
    Each employee who does not receive an increase in basic pay because 
his or her performance is less than Successful will be entitled to be 
notified promptly in writing of that fact. At the same time, the 
employee must be informed in writing of the right to request that the 
agency reconsider its determination, under the same procedures 
prescribed by OPM regarding the determination not to provide a within-
grade increase under 5 U.S.C. 5335(c). The Merit Systems Protection 
Board will process any appeals under this section in the same manner 
that it processes appeals under 5 U.S.C. 5335(c).
5. Locality Pay and Special Rate Supplement
    When a locality-based comparability payment established under 5 
U.S.C. 5304 is increased, a demonstration project employee whose most 
recent rating of record is below Successful is entitled to the 
increased locality rate, but his or her underlying rate of basic pay 
will be reduced in a manner that ensures the employee's total rate of 
pay does not increase. This reduction is necessary to ensure, in an 
administratively feasible way, that an employee rated less than 
Successful will not receive a pay increase; it does not constitute a 
reduction in pay for purposes of applying the adverse action procedures 
in chapter 75 of title 5, United States Code. (Exception: An employee's 
rate of basic pay may not be reduced under this paragraph to the extent 
that the reduction would cause an employee's rate to fall more than 
five percent below the normal range minimum.)
    Similarly, when a special rate supplement established under 5 
U.S.C. 5305 is increased, a demonstration project employee whose rating 
of record is below Successful is entitled to the increased supplement, 
but his or her underlying rate of basic pay will be reduced in a manner 
that ensures the employee's total rate of pay does not increase.

IV. Training

    Training for all involved is essential to the success of the 
demonstration project. Training will be provided to affected employees 
before the project is launched and throughout the life of the project. 
It is important that employees perceive the performance management 
program as fair and transparent; therefore, supervisors and managers 
will be trained extensively in setting and communicating performance 
elements and standards; monitoring performance and providing timely 
feedback; developing employee performance and addressing poor 
performance; rating employees' performance based on their performance 
plans; and involving employees in the development and implementation of 
the performance appraisal program. Supervisors and managers will be 
held accountable for the effective management of the performance of 
employees they supervise through performance elements set for and 
appraisals made of their own performance in this regard.
    All employees will be trained in the performance appraisal process 
and the pay adjustment mechanism. Various types of training are being 
considered, including videos, on-line tutorials, and train-the-trainer 
concepts.

V. Conversion

A. Conversion to the Demonstration Project

    Employees whose positions are converted to the demonstration 
project will be converted with no change in their rate of basic pay. 
Any simultaneous pay action that was scheduled to take effect under the 
GS pay system on the date of conversion must be processed before 
processing the conversion to the modified GS pay system. Immediately 
after conversion, eligible employees will receive an increase in basic 
pay reflecting the prorated value of the next scheduled WGI. The 
prorated value is determined by calculating the portion of the time-in-
step an employee has completed toward the waiting period for their next 
step increase. This additional within-grade ``buy in'' adjustment will 
not be made for (1) employees who are at the step 10 rate of their 
grade immediately before conversion to the demonstration project, (2) 
employees who are receiving a retained rate of pay under 5 U.S.C. 5363 
or a saved rate under 5 U.S.C. 3594 immediately before conversion to 
the demonstration project, or (3) employees whose performance has been 
determined to be below Successful. The first performance-based pay 
increase under the project's pay adjustment mechanism will be effective 
on the first day of the first pay period beginning on or after January 
1, 2009.
    For employees who enter the demonstration project by lateral 
reassignment, transfer, or change in position status, the U.S. 
Department of Education/Federal Student Aid may apply parallel pay 
conversion rules, including rules for providing a prorated adjustment 
reflecting time accrued toward a GS within-grade increase or similar 
within-range adjustment under another pay system. If conversion into 
the demonstration project is accompanied by a geographic move, the 
employee's pay entitlements under the former pay system in the new 
geographic area must be determined before the pay conversion. For 
employees who enter the demonstration project after the conversion date 
and receive a rating of record for a performance plan of at least 120 
days, the U.S. Department of Education/Federal Student Aid will apply a 
prorated pay adjustment proportionate to the time accrued under the 
performance-based pay system, in accordance with section III.C.

B. Conversion Back to the Former System

    If a demonstration project employee is moving to a GS position not 
under the demonstration project, or if the project ends and each 
project employee must be converted back to a GS position not covered by 
the project, the employee's rate of basic pay under the demonstration 
project as in effect immediately before conversion will be used in 
applying any simultaneous pay actions under the regular GS pay system 
that are effective on the date of conversion (e.g., promotion, 
geographic movement). If the rate of basic pay falls between steps 
after applying any simultaneous pay actions, the employee's rate will 
be set at the next higher step.
    If a demonstration project employee is receiving a retained rate 
immediately before conversion back to the regular GS pay system, the 
employee will continue to be entitled to a retained rate upon 
conversion, but the retained rate thereafter will be governed by 5 
U.S.C. 5363 and 5 CFR part 536 or 5 CFR 359.705, as applicable.

[[Page 71175]]

    If the U.S. Department of Education/Federal Student Aid establishes 
a five percent rate upper range extension for Outstanding performers 
and a demonstration project employee is receiving a rate in that range 
extension at the time the employee leaves the demonstration project and 
converts to the regular GS pay system, that rate will be converted to a 
retained rate, subject to the rules and limitations in 5 U.S.C. 5363 
and 5 CFR part 536.
    If a demonstration project employee is receiving a rate below the 
normal GS rate range because his or her rate has fallen within the 
lower range extension for less than Successful performers, that rate 
must be converted to the minimum rate for the grade upon conversion to 
the regular GS pay system.

VI. Project Modification

    Demonstration projects require modification from time to time as 
experience is gained, results are analyzed, and conclusions are reached 
on how the system is working. The U.S. Department of Education/Federal 
Student Aid may modify and adjust over time features and elements of 
this project plan. The Department/Federal Student Aid will coordinate 
such modifications with OPM and gain its approval prior to implementing 
the modification. Depending on the nature and extent of the 
modification, OPM may require that the modification be published as a 
notice in the Federal Register.

VII. Project Duration

    The initial implementation period for the demonstration project 
will be 5 years. However, with OPM's concurrence, the project may be 
extended for additional testing or terminated before the expiration of 
the five-year period.

VIII. Project Evaluation

    Chapter 47 of title 5, United States Code, requires an evaluation 
of the results of the demonstration project. The U.S. Department of 
Education/Federal Student Aid, in coordination with OPM, will develop a 
plan to evaluate the demonstration project to determine the extent to 
which the pay increases paid to participating employees reflect 
meaningful distinctions among their levels of performance. Workforce 
data will be analyzed to determine whether the project is achieving its 
goal and whether it is resulting in any adverse impact on particular 
groups of employees. Key indicators, including leadership commitment, 
communication, stakeholder involvement, training, planning, mission 
alignment, and the rewarding of performance, will be assessed to ensure 
compliance with stated project goals. The evaluation will address the 
extent to which the project has incorporated the elements required by 
section 1126 of Public Law 108-136 (5 U.S.C. 4701 note). In addition, 
the project will be examined during each phase of the evaluation to 
assess whether costs are being managed effectively. Moreover, cost 
discipline will be examined during each phase of the evaluation to 
ensure spending remains within acceptable limits. Finally, employee 
feedback will be sought through surveys, interviews, and focus groups 
to assess employee perceptions of the fairness and integrity of the 
performance appraisal and pay adjustment processes.

IX. Costs

A. Buy-in Costs

    There will be added costs resulting from the within-grade increase 
``buy-in'' provision described in section V; however, those costs will 
be offset by the elimination of within-grade step increases that 
otherwise would have occurred.

B. Recurring Costs

    All funding will be provided through the organization's budget. No 
additional funding will be requested specifically for this project; all 
costs will be charged to available funds through existing 
appropriations, including those incurred in the areas of project 
development, training, and project evaluation.

X. Waiver of Laws and Regulations Required

A. Title 5, United States Code

    Chapter 35, section 3594: Saved pay for former members of the 
Senior Executive Service (only to the extent necessary to (1) bar 
employees with a rating of record below Successful from receiving a 
saved rate increase under 5 U.S.C. 3594(c)(2); and (2) apply rules 
parallel to those governing adjustment and termination of retained 
rates under 5 U.S.C. 5363, as modified under this plan).
    Chapter 53, section 5302(1)(A), (8) and (9): Definitions (only to 
the extent necessary to provide that employees under the demonstration 
project are not considered to be GS employees for the purposes of 
annual adjustments under section 5303 or similar provision of law 
governing annual adjustments for employees covered by section 5303).
    Chapter 53, section 5303: Annual adjustments to pay schedules.
    Chapter 53, section 5304(g)(1): Locality-based comparability 
payments (only to the extent necessary to (1) provide that if the U.S. 
Department of Education/Federal Student Aid extends the maximum rate of 
a rate range by 5 percent above the normal maximum for Outstanding 
performers, a locality rate may not exceed the rate for EX-IV, plus 5 
percent, for employees in that range extension; and (2) apply an 
``effective'' locality pay percentage for employees in the upper range 
extension under circumstances described in this plan.
    Chapter 53, section 5305(a)(1): Special pay authority (only to the 
extent necessary to (1) provide that if the U.S. Department of 
Education/Federal Student Aid extends the maximum rate of a rate range 
by 5 percent above the normal maximum for Outstanding performers, a 
special rate may not exceed the rate for EX-IV, plus 5 percent) for 
employees in that range extension; (2) to interpret the references to 
the minimum and maximum rates of a grade as references to the normal 
minimum and maximum rates of a grade under this plan; and (3) apply an 
``effective'' special rate supplement percentage for employees in the 
upper range extension under circumstances described in this plan).
    Chapter 53, subchapter III: General Schedule pay rates (except 
that, for purposes of applying any other laws, regulations, or policies 
that refer to GS employees or to subchapter III of chapter 53 of title 
5, United States Code, the modified pay system established under this 
plan must be considered to be a GS pay system established under such 
subchapter III; this includes, but is not limited to, references to the 
General Schedule in section 5304 (relating to locality pay, except as 
provided in the waiver, above), section 5545(d) (relating to hazard 
pay), and sections 5753-5754 (dealing with recruitment, relocation, and 
retention incentives)).
    Chapter 53, section 5363: Pay retention (only to the extent 
necessary to (1) bar employees with a less than Successful rating of 
record from receiving retained rate increases under 5 U.S.C. 
5363(b)(2)(B); (2) provide the pay (including any locality adjustment 
or special rate supplement) of an employee in the upper range extension 
who is rated below Outstanding will be converted to a retained rate 
before processing any other actions; (3) provide a retained rate that 
is less than the maximum rate (including any locality adjustment or 
special rate supplement) of the upper range extension for an employee 
who receives a rating of record of Outstanding will be terminated and 
converted to an equal

[[Page 71176]]

adjusted rate; (4) provide the range maximum rate used to compute 
retained rate adjustments is the normal range maximum rate (including 
any locality adjustment or special rate supplement); and (5) provide 
when a frozen retained rate for an employee with a rating of record 
below Successful falls below the applicable adjusted rate for the 
normal grade maximum, the retained rate will be terminated and the 
employee's pay will be set at an adjusted rate equal to the retained 
rate).
    Chapter 75, section 7512(4): Adverse actions (only to the extent 
necessary to provide that adverse actions do not apply to reductions in 
rates of basic pay to offset a locality pay or special rate supplement 
increase as a result of receiving a rating of record below Successful).

    Note: If any of the provisions of title 5, United States Code, 
listed above are amended during the period this demonstration 
project is in effect, U.S. Department of Education/Federal Student 
Aid may choose to terminate the waiver of one or more such 
provisions with respect to employees participating in the project, 
without formally modifying the project itself. U.S. Department of 
Education/Federal Student Aid must notify OPM when any such waiver 
is terminated.

B. Title 5, Code of Federal Regulations

    Part 359, subpart G, section 359.705: saved pay for former members 
of the Senior Executive Service (only to the extent necessary to (1) 
bar employees with a rating of record below Successful from receiving a 
saved rate increase under 5 CFR 359.705(d)(1); and (2) apply rules 
parallel to those governing adjustment and termination of retained 
rates under 5 U.S.C. part 536, as modified under this plan).
    Part 430, subpart B, section 430.203: Definitions (only to the 
extent necessary to allow an additional rating of record to support a 
pay decision under sections III.C.3 or 4 of this project plan).
    Part 530, section 530.304: Establishing or increasing special rates 
(only to the extent necessary to (1) provide that if the U.S. 
Department of Education/Federal Student Aid extends the maximum rate of 
a rate range by 5 percent above the normal maximum for Outstanding 
performers, a special rate may not exceed the rate for EX-IV, plus 5 
percent) for employees in that range extension; (2) to interpret the 
references to the minimum and maximum rates of a grade as references to 
the normal minimum and maximum rates of a grade under this plan; and 
(3) apply an ``effective'' special rate supplement percentage for 
employees in the upper range extension under circumstances described in 
this plan.
    Part 531, subpart B: Determining Rate of Basic Pay.
    Part 531, subpart D: Within-Grade Increases.
    Part 531, subpart E: Quality Step Increases.
    Part 531, section 531.604: Determining an employee's locality rate 
(only to the extent necessary to apply an ``effective'' locality pay 
percentage for employees in the upper range extension under 
circumstances described in this plan).
    Part 531, section 531.606: Maximum limits on locality rates (only 
to the extent necessary to provide that if the U.S. Department of 
Education/Federal Student Aid extends the maximum rate of a rate range 
by 5 percent above the normal maximum for Outstanding performers, a 
locality rate may not exceed the rate for EX-IV, plus 5 percent) for 
employees in that range extension.
    Part 536, subpart C: Pay Retention (only to the extent necessary to 
(1) bar employees with a less than Successful rating of record from 
receiving retained rate increases under 5 CFR 536.305; (2) provide that 
if the U.S. Department of Education/Federal Student Aid extends the 
maximum rate of a rate range by 5 percent above the normal maximum for 
Outstanding performers, a retained rate may not exceed the rate for EX-
IV, plus 5 percent; (3) provide the pay (including any locality 
adjustment or special rate supplement) of an employee in the upper 
range extension who is rated below Outstanding will be converted to a 
retained rate before processing any other actions; (4) provide a 
retained rate that is less than the maximum rate (including any 
locality adjustment or special rate supplement) of the upper range 
extension for an employee who receives a rating of record of 
Outstanding will be terminated and converted to an equal adjusted rate; 
(5) provide the range maximum rate used to compute retained rate 
adjustments is the normal range maximum rate (including any applicable 
locality adjustment or special rate supplement); and (6) provide when a 
frozen retained rate for an employee with a rating of record below 
Successful falls below the applicable adjusted rate for the normal 
grade maximum, the retained rate will be terminated and the employee's 
pay will be set at an adjusted rate equal to the retained rate).
    Part 752, section 752.401(a)(4): Adverse actions (only to the 
extent necessary to provide that adverse action provisions do not apply 
to reductions in rates of basic pay to offset a locality pay or special 
rate supplement increase as a result of receiving a rating of record 
below Successful).

    Note: If any of the provisions of title 5, Code of Federal 
Regulations, listed above are revised during the period this 
demonstration project is in effect, U.S. Department of Education/
Federal Student Aid may choose to terminate the waiver of one or 
more such provisions with respect to employees participating in the 
project, without formally modifying the project itself. U.S. 
Department of Education/Federal Student Aid must notify OPM when any 
such waiver is terminated.

 [FR Doc. E7-24259 Filed 12-13-07; 8:45 am]
BILLING CODE 6325-43-P