This booklet is intended to be used as a reference and procedural guide to the
performance management and appraisal process. The general information it
contains should not be construed to supercede any law, rule, or policy. In the
case of any inconsistencies, the statutory and regulatory provisions shall
For technical assistance concerning specific situations, employers may contact
the Division of Personnel’s Employee Relations Section at (304) 558-3950,
PERFORMANCE MANAGEMENT AND APPRAISAL PROCESS
To accomplish the multiple goals of performance appraisals, most organizations are leaning
toward a continuous program of performance management that is very important to both the
professional success of an organization and the personal advancement of its employees. A
productive performance management system serves an integral business function — it
provides a two-way avenue of communication between a supervisor and an employee. It
helps employees to improve performance and it helps an organization to succeed in a
competitive, cost-conscious environment.
Contrary to what some supervisors believe, the annual performance appraisal is not an end
in and of itself — it is a means to an end. It is only one part, the third and final part, of an
ongoing performance management process that is preceded by performance planning (i.e.,
setting reasonable performance expectations and standards) and coaching and counseling
(i.e., providing constructive feedback, guidance and assistance for the purpose of improving
Supervisors and managers are employed to manage the performance (effectiveness and
efficiency) of an organization (business, service agency, etc.) and the people (employees,
staff, etc.) who make up the human resources of the organization. Unfortunately, much of
the research conducted during the 1990's indicates they are not doing a very good job of it.
• 70% say managers do not provide clear goals and directions
• 55% say their managers are poor or average in providing direction
• 70% say performance expectations are not clearly defined
• 70% have never had meaningful performance discussion with their manager
• 65% say the most important information needed concerns ways to improve
• 80% say their supervisor does not follow up on the review
• 71% of professionals believe their company’s system for evaluating performance is not
• 52% say poor performance is tolerated too long
• 80% do not see a relationship between good work and rewards
• 98% believe pay should reflect performance and only 48% believe their company’s pay
• 70% want more recognition of their efforts
• 70% of professionals believe their pay is not tied to performance
These statistics suggest that supervisors need to more effectively use the entire
performance management process. They need to do more than fill out an annual
performance appraisal form every year and stuff it into an employee’s personnel
folder to collect dust. What was once the be-all and end-all of employee evaluation
should now be a punctuation point at the end and beginning of an ongoing process.
This guide has been written to help supervisors become effective “performance
The information contained in this “Supervisor’s Guide” should enable a supervisor to:
• Understand the performance management and appraisal process
• Understand and successfully implement the Division of Personnel’s Employee
Performance Appraisal (EPA) System
• Develop, communicate and achieve agreement on performance expectations and
• Properly use coaching and counseling techniques to provide feedback and improve
• Properly complete DOP Forms EPA-1, EPA-2, and EPA-3 and the Employee
Performance Appraisal Worksheet
• Successfully develop a performance plan, provide effective coaching and counseling,
and conduct an interim or mid-point review and annual or final performance appraisal
• Explain the organization and operation of the Division of Personnel’s Employee
Performance Appraisal System to other supervisors, subordinates and other
individuals, as needed
III. THE PERFORMANCE MANAGEMENT AND APPRAISAL PROCESS
To be effective at evaluating an employee’s performance, it is necessary for a supervisor to
understand the entire performance management and appraisal process. In other words,
supervisors need to see the “Big Picture” in order to recognize how the various parts of the
system fit together. This can be achieved by looking at all of the system’s parts,
individually, and then studying how the various parts relate to one another. One of the best
methods to accomplish this is to look at each of the parts of the process sequentially. Those
• Performance Planning
• Coaching and Counseling
• Interim or Mid-Point Review
• Annual or Final Performance Appraisal
These three parts of the performance management and appraisal puzzle are reduced to the
• First, tell employees what is expected of them and give them a chance to accomplish
• Second, tell them from time-to-time how they are doing, especially when they are not
performing as expected and offer suggestions for improvement
• Third, tell them how they have done overall throughout the performance rating period
and use that information in future performance planning
Unfortunately, most things are easier said than done. However, this does not mean the
performance appraisal process cannot be mastered. It can — mainly through study and
practice. We will begin by studying what each part of the process entails, that is, what
supervisors have to do, when they have to do it, and what forms they need to complete to
document the action they took.
The most important part of the performance management process is the establishment of
realistic, challenging, yet attainable, performance expectations and standards. Employees
with easily accomplished expectations and standards may have their knowledge, skills and
abilities overstated, while employees with very difficult or unattainable expectations and
standards may have their knowledge, skills and abilities understated. The first group may
appear better than they actually are and the second group may appear worse. Thus,
supervisors must be able to develop and communicate expectations and standards to
employees in a manner that can clearly be understood and accepted by the employee. It is
difficult, if not impossible, for employees to accept or “buy into” expectations and standards
they do not understand and/or do not agree with. With specific expectations and standards,
employees can understand clearly what performance is required of them — what they are
being paid to do or achieve. As a result, work activities can be precisely targeted and
planned and performance is likely to improve. Without specific expectations and standards,
work activities are spread over too wide a range (through trial and error) and, due to a lack
of focus, performance will likely diminish.
There are five important characteristics that all performance expectations should possess.
All performance characteristics should pass the SMART Test. This means they should be:
Coaching and Counseling
A performance plan by itself will not improve performance, it is only the first step in an
ongoing process. Supervisors must monitor employee progress and conduct periodic
reviews to discuss successes and areas needing improvement. The feedback supervisors
provide in this part of the process should be specific. The supervisor should solicit
comments and ensure that criticism is constructive. Avoid emphasizing the negative and
always find and acknowledge some employee successes.
Poor performance on the part of an employee can usually be traced to one of the following
• The employee does not know what is expected
• The employee does not know how he or she is performing
• The employee cannot do the job because he or she does not know how
• The employee lacks organizational support and help from the supervisor
• The supervisor and the employee have developed a poor working relationship
Research shows that employees’ feelings about their employer’s performance management
system are closely related to their satisfaction and trust in their immediate supervisor and the
feedback they are given. Specifically, when compared to those not satisfied with their
supervisors, employees who are satisfied with their supervisors are over 1½ times more
likely to say they are satisfied with the performance management system. If supervisors
cannot be trusted to give credible feedback aimed at improving an employee’s weaknesses,
the performance management system will similarly lack credibility and fail to motivate
employees to improve.
Coaching and counseling is an attempt to overcome performance weaknesses and build on
performance strengths. Coaching and counseling is actually a set of relationships between
a supervisor and an employee, rather than a series of skills to be taught. It can take many
forms, including analyzing performance problems, identifying performance that can be
improved, correcting improper or dangerous practices, discussing work with an employee
to discover his or her point of view, and providing assistance and encouragement to the
Generally, coaching and counseling:
• Involves face-to-face guidance and instruction
• Is meant to improve job effectiveness and efficiency
• Is based on the supervisor’s knowledge or developmental opportunities that he or she
• Ensures close attention to individual employee needs
• Occurs on an on-going basis rather than on infrequent occasions
Remember, a good coach and counselor:
• Has a sincere interest in helping the employee to improve
• Has a thorough knowledge of the position requirements and objectives
• Arranges for positive and progressive work to be reviewed and rewarded by superiors
• Operates from the sidelines (i.e., does not try to “play” and “coach” at the same time)
• Recognizes individual differences
The Annual Performance Appraisal
If a supervisor has been diligent in pursuing a year-round performance management system,
the annual appraisal will almost write itself. The annual appraisal or review should be
another meeting between the supervisor and employee to review and update past goals and
tasks, and to develop future performance expectations and standards.
No supervisor or manager can afford to take employee appraisals lightly. Employees who
are suspended, demoted or dismissed are increasingly turning to the courts and regulatory
agencies for relief from what they see as arbitrary appraisal actions by the employers. In far
too many cases, the employees are able to produce records of consistently favorable
appraisals, with no real warning of trouble to come. When the situations occur, their
employers’ actions are viewed with suspicion.
The following are tips for conducting the Annual Performance Appraisal interview:
• Decide in advance what you want to achieve: evaluation, criticism, training, coaching,
morale-building, greater output. Do not let one goal interfere with another.
• Do not wait until the review to let your staff know what you expect from them. Let the
employee know early on exactly what the job requires, what specific goals, standards
and deadlines you expect him or her to meet, and how you plan to evaluate and reward
performance. It is a daily process.
• Keep a written log or journal throughout the year in which you enter detailed accounts
of individual performance — good or bad — on typical tasks during “critical
incidents” for use at review time. Supervisory notes should be maintained by the
supervisor in an administrative file and not in the agency personnel file.
• The review should be a two-way street. Let the employee talk about their own
performance and problems. Determine whether they have a realistic assessment of
their own abilities.
• Be fair, but do not be afraid to give honest criticism when necessary. Most employees
do not want a meaningless pat on the back. They want to know where they stand and
how they can improve. Encourage the employee to talk. Stop and listen to what the
employee is saying. Ask open-ended questions such as, “What do you think we can
do to improve the situation?” Use a command such as “Go on,” or “Tell me more.”
Restate the employee’s last point as a question, such as “You don’t think you can get
the job done?”
• Listen. Numerous surveys of employee attitudes reveal the feeling that “management
does not care what we think.” The review is your chance to get valuable feedback
from your own subordinates about their jobs or agency policy.
• Discuss your written appraisal with the employee and compare yours to theirs.
Determine whether he or she believes your rating is fair. The employee does not have
to agree with you 100%, but if he or she strongly disagrees, they are likely to be less
motivated to improve performance. It is worth exploring the reasons for any
• Be direct and specific. Speak in terms of objective work data. Use examples such as
absences, tardiness, quality records, inspection reports, waste, orders processed,
productivity records, material used or consumed, timeliness of tasks or projects,
control or reduction of costs, number of errors, costs compared to budgets, customer
comments, order processing time and accuracy, accident reports, etc.
• Keep the review focused on the employee’s performance. Show that you care about
his or her career. Otherwise, the employee will get the message that the review, and
perhaps his or her performance, does not matter.
• Base your judgements on observable behavior, not general opinions or impressions.
Even when rating personality or character traits, use specific examples of such traits
in actual practice on the job.
• Do not tiptoe around an issue. Make sure the employee leaves knowing specifically
what he or she is doing right and/or wrong. Give specific examples to ensure the
employee understands and reach an agreement before he or she leaves on how
performance will be improved and the time frame for achievement. Develop an action
plan showing steps and expected results.
• Do not get personal. Refrain from using statements such as, “You are too slow in
producing those reports.” Instead, try to compare the employee’s performance to a
standard (e.g., “These reports should normally be done within ten days”). Similarly,
do not compare the employee’s performance to that of other employees (e.g., “He is
quicker than you are”).
• Critique the behavior, not the employee. Keep the discussion on a professional level,
not personal. Avoid confrontation.
• Make sure you also give encouragement, when critiquing an employee’s performance.
Be constructive in your criticism. Do not simply tell an employee that he or she is “not
aggressive enough.” Reinforce good habits with praise and point out how the
employee can improve, with specific examples.
IV. DIVISION OF PERSONNEL’S EMPLOYEE PERFORMANCE APPRAISAL
A Three Step Process
The Division of Personnel’s Employee Performance Appraisal Policy lists the following
Steps I, II, and III, which match exactly the three parts of the performance management and
Step I: The Initial (Performance) Planning Session
Initial Planning Session - During the first 30 days of each
performance rating period, supervisors/raters are required to meet
individually with each subordinate employee to identify, define, and
describe performance expectations (e.g., responsibilities, duties, and
standards). The purpose of this meeting is to ensure that the
employee understands and is committed to established performance
expectations for his or her job.
NOTE: It is best to conduct the performance planning session for the upcoming appraisal
period at a later date, rather than when the EPA-3 is completed. This will allow time for the
results of the just-ended period to be more thoroughly considered and evaluated.
Step II: The Mid-Point Review
Mid-Point Review - Near the middle of the performance period
(toward the end of the first six months of performance),
supervisors/raters are required to meet individually with each
subordinate employee to conduct a formal, midpoint review of the
employee’s performance. During this meeting, the supervisor/rater
must provide feedback to the employee concerning the employee’s
strengths, weaknesses (if any), and performance during the primary
performance period. If appropriate, the supervisor/rater may develop
a performance improvement plan which describes the action(s) the
employee must take to improve his or her performance to the “meets
Step III: The Final Review Session
Final Review Session - Within 30 days following the end of the
performance rating period, supervisors are required to meet
individually with each of their subordinate employees to review and
rate the performance of each employee during the entire performance
rating period. Prior to the final review session, the completed but
unsigned Employee Appraisal Form(s) shall be sent to the
reviewing manager for review and approval (emphasis added).
After approval, the reviewing manager shall return the unsigned
Employee Appraisal Form(s) to the supervisor/rater for use in the
final review session. The purpose of the final review session is to
provide employees with a formal rating of their overall job
performance throughout the entire rating period and to generate
information to be used as the basis for future performance planning.
SPECIAL NOTE: Supervisor’s comments on Form EPA-3 regarding particular interim
items should be limited to ratings of “Needs Improvement” and “Exceeds Expectations” and
should identify why that rating was given. Coaching comments and other general comments
related to items rated as “Meets Expectations” should be limited to “Summary Comments”
on page 7.
The fact that all three steps have been taken does not mean the supervisor’s work is finished.
There are still tasks to be done to finalize the annual appraisal cycle so that another appraisal
cycle can begin. The supervisor must complete the appraisal and meet record-keeping
requirements before planning for the future.
V. UNDERSTANDING THE FORMS: DOP Forms EPA-1, EPA-2 and EPA-3
The employee performance appraisal system requires records to be kept and forms to
be filled out. In the DOP EPA System, there are three forms to be completed: EPA-1,
EPA-2, and EPA-3 (EPA-3 contains a worksheet).
The Division of Personnel’s Employee Performance Appraisal Policy states the following
regarding these three steps and the filing of complete and signed forms:
DOP Form EPA-1 shall be used for the Initial Planning Session; whenever
coaching is indicated; or when expectations must be changed or modified.
DOP Form EPA-2 shall be used for the Interim or Mid-Point Review; for the
probationary employee; or for special situations involving performance that
fails to meet expectations.
DOP Form EPA-3 shall be used for the final review of the entire
performance period and shall result in an overall rating. Forms EPA-
1 and EPA-2 may be attached to and made a part of Form EPA-3.
Filing Completed and Signed Forms - When the appropriate form has
been completed and all signatures and dates have been affixed, but
no later than ten days following the end of the 30 days provided for
final review, the rating supervisor: (1) retains a copy together with
any supporting documents used in the evaluation process; (2)
provides a copy of the form to the employee; and (3) forwards the
original form through appropriate agency channels to the agency
head. The agency head, or his or her designee, shall maintain the
form in the employee’s official agency personnel file.
NOTE: Depending on the circumstances, Form EPA-2 should also be used at other times.
For example, Form EPA-2 should be completed prior to an employee’s completion of a
NOTE: Form EPA-3 should be used when a supervisor stops supervising an employee.
VI. UNDERSTANDING THE NEED FOR EMPLOYEE PARTICIPATION
Knowing the performance management process (and the steps to be taken) and recognizing
what forms to complete is not all that supervisors need to know. It is just as important, if
not more so, that supervisors understand the importance of securing employee involvement
and participation in all aspects of the performance management process.
The most important aspect of the performance management and appraisal process is the
regular, ongoing communication between supervisors and employees concerning what the
employees are expected to do and how well they are actually doing it. That is why the
involvement and participation of employees is critically important to the success of the entire
process. Any supervisor who neglects this jeopardizes the process, since supervisor-
employee dialogue is the key.
Research and personal experience indicate that when employees meaningfully participate in
the performance management process, both the quality and quantity of performance
information increases, leading to a more accurate and valid appraisal. Also, those who
participate are more likely to assume “joint ownership” of the process, which creates an
atmosphere of cooperation and encourages the development of an open and honest coaching
or counseling relationship and the acceptance of performance ratings, even adverse ones.
A discussion of the importance of employee participation in all three parts, or steps, in the
performance management process (i.e., performance planning, coaching and counseling, and
performance appraisal) follows.
Performance Planning Participation
The creation of a performance plan should not be a “supervisor only” activity. Employees
should be encouraged to actively participate in defining performance expectations and
standards. Employee involvement can improve the reliability, validity, fairness, and
usefulness of those performance expectations and standards because employees have direct,
first-hand experience with all of the forces that impact their jobs. This makes their
participation essential for developing realistic expectations and standards. After all, the
individual who should best know a job is the one who is doing the job. If that is not true,
something is very wrong.
The first step in performance planning is for the supervisor and the employee to review the
employee’s job duties and responsibilities and determine the key expectations and standards
(e.g., results, goals, objectives, etc.) to be reached during the upcoming performance period
(usually 12 months).
The supervisor and the employee should then confer and negotiate what they agree to be a
realistic, challenging and achievable set of expectations and standards. These expectations
and standards will be used by the supervisor to monitor the employee’s performance and to
decide when and what coaching and counseling, if any, is needed by the employee to assess
and guide his or her own performance. Self-assessment and self-direction are the desired
result of participatory performance planning.
Coaching and Counseling Participation
An effective appraisal process requires employee feedback. Appraisal systems that provide
formal feedback once a year are more likely to be deficient. In order for an appraisal system
to be maximally effective, there must be formal and frequent informal performance
Supervisors, though they may not be conscious of it, review and evaluate the performance
of their employees, informally, almost daily. While such feedback may be nothing more
than the comment, “Good job,” it is feedback just the same and lets employees know they
are meeting expectations.
Feedback is the “raw material” of employee participation. Feedback is essential in gaining
the maximum benefits from goal setting. Without feedback, employees are unable to make
adjustments in job performance nor do they receive positive reinforcement for effective job
behavior. Effective performance feedback is timely, specific, behavioral in nature, and
presented by a credible source. It is effective in changing employee work behavior and
enhances employee job satisfaction and performance. In the present Employee Performance
Appraisal System, supervisors must formally provide employees with feedback during the
mid-point or interim progress review; however, feedback should also be given when
performance fails to meet expectations and, often overlooked, when performance exceeds
Few supervisors need to be told how to praise an employee’s good work; however,
successful coaching and counseling is dependent on a supervisor being able to deliver
effective feedback and constructive criticism. This is something that takes careful planning,
interpersonal skills and practice. Well-given constructive criticism and poorly-given
criticism tend to have the following characteristics:
• Vague: Offers no specifics, but makes a blanket condemnation
• Threatening and Pessimistic: Attributes the problem to personality or some
other unchangeable trait and makes the employee feel attacked. It also offers
no hope for change or suggestion for doing better
• Untimely: Not given until weeks or even months after the problem was first
Example: “That was a lousy job (Vague) you did last month (Untimely) and you’re
too stupid to know what you did wrong (Pessimistic)! Next time, you’re through
• Specific: The supervisor says exactly what the employee is doing wrong
• Supportive and Optimistic: Gives the sense that criticism is meant to help the
employee perform better and suggests a solution or offers to help find a method
• Timely: Gives the message soon after the problem occurs
Example: “There were several calculation errors in the activity report (Specific) you
submitted this morning (Timely). This report is used to determine our matching
funds, so it is very important that it is accurate. Let’s review the report this afternoon
to make sure you are clear on which numbers go into the calculations (Supportive).
Then, when you prepare the report the next time, I think you will get a better result
The key to giving positive, constructive criticism (e.g., competent guidance and direction)
involves being specific, supportive, positive, and timely. Not clearly relating to an employee
how he or she is faltering, not suggesting ways to improve, and not providing prompt
feedback soon after a problem is identified are all recipes for disaster.
Annual Performance Appraisal Participation
The following four guidelines should improve any supervisor’s ability to conduct a fair and
honest performance appraisal:
(1) Put the employee first.
When an employee feels forced to defend his or her self-esteem, messages do not get
through. Create a safe atmosphere, be empathetic, and focus on the positive. How a
manager says what he or she says is actually more important than what is said. The wrong
tone can distort the content of the message.
Positive Remark: “I asked Joan for feedback regarding your presentation
skills. She said you were prepared and professional, but your style was a bit
formal for that particular audience. Let’s meet so we can work on this.”
Negative Remark: “I thought you had better presentation skills. Joan’s
feedback was that there was something about you that makes clients feel
(2) Aim for self-evaluation.
If the Performance Management Process is a cooperative and participatory process, then the
appraisal of an employee’s performance should be one also. This means that employees
should be given the chance to take a long, hard and objective look at their own performance
to identify areas where they perform well and areas in need of improvement.
Studies indicate that self-appraisal increases employee preparation and readiness for the
appraisal interview, enhances overall satisfaction, increases perceived appraisal fairness, and
reduces defensive behavior when used for developmental purposes. Employees can self-
evaluate by completing their own appraisals and presenting drafts for discussion with the
supervisor, or the employee can review a draft of the supervisor’s appraisal. Supervisory and
employee ratings frequently do not agree. However, in a participatory system, the goal is not
absolute agreement, but rather a process directed towards achieving a consensus over time.
The self-appraisal process is improved significantly if clear performance standards are used,
the employees are experienced, and levels of trust are high.
When managers create ongoing dialogue year-round, employees already know where their
performance lapses are and almost always raise them themselves. That means no surprises
and no feelings that the manager is being overly critical and reduces the likelihood of a
defensive behavioral response.
Positive Remark: (Immediately after the event.) “This was the first
time you represented the department at the Executive Committee
meeting. I noticed that you weren’t very comfortable with the more
technical aspects. Tell me why.”
Negative Remark: (Six months later and in response to a question.)
“The reason you haven’t been asked to represent the department
again is that you lack the technical expertise to win credibility.”
(3) Tolerate disagreement, but be specific.
Creating a safe atmosphere does not mean avoiding disagreement; however, do not let it get
personal. That causes people either to shut down or push back. Emphasize specific
behaviors and their consequences. The point of performance-oriented dialogue is to reset
direction, not to point out inadequacies.
Positive Remark: “You used a bit of jargon in your presentation.
You said that we provide “hosted collaboration software to connect
businesses requiring project-based resources.” John Smith didn’t
appear to understand. Did you notice how he behaved for the rest of
Negative Remark: “You know you really turned everybody off when
you started to use jargon in that presentation.”
(4) Set objectives and make accountability explicit.
Reviews should be about the future, not the past. Determine what is working and what is
not and apply the lessons learned. Employees should leave knowing how behaviors need to
be adjusted and what they should do in the future. Supervisor’s dialogue should also set
specific objectives and follow-up dates for monitoring progress.
Positive Remark: “So, we have agreed that you will spend more time
developing the graphics for the next presentation to give them the
same impact you create with your text slides. Let’s meet two days
before your next presentation so we can discuss them.”
Negative Remark: (Immediately before the presentation.) “I hope
your graphics are better this time than the last time.”
VII. THE FINAL WORD
Regardless of how imperfect, performance management and appraisal will continue to be
one of a supervisor’s foremost duties. While supervisors may feel that they are not doing
as well as they could, it does not mean the situation is hopeless. Through open and honest
communication, employee involvement and participation, and mutual trust and cooperation,
a performance management and appraisal system can improve employee performance and
the achievement of organizational goals. One fact is certain, the success of the system
depends on the supervisor’s ability to understand and implement all three parts of the
performance management process.
A factor most critical to employees’ satisfaction with the performance management system
is having confidence that their performance appraisals are fair. If they perceive that the
performance appraisal is unfair (i.e., their individual performance appraisal understates their
level of performance or within the work group everyone has close to the same rating), the
credibility of the entire system is called into question. Since the first employee assessment
system was developed, up until today, performance appraisal systems have been “widely
criticized for failing to differentiate between employees since virtually everyone receives a
‘satisfactory’ rating.” Supervisors should strive to distinguish their better performers from
those who may not be and relate to them that their good work is appreciated. If supervisors
fail to do this, the better performers will have no reason, aside from personal satisfaction,
for continuing to perform at a high level, and the mediocre employees will have no reason
to improve their performance.
When Should a Supervisor Use Division of Personnel
Employee Performance Appraisal (EPA) System Forms
Supervisor should develop an EPA-1 when:
• A performance appraisal period begins
• A vacant position is filled
• A new position is created
• Work processes and procedures change
• Duties and responsibilities change
• Performance standards and expectations change
• A position is reclassified
• A position is reallocated
• Technology changes
• Staffing levels increase or decrease
• Workloads increase or decrease
• An employee’s products or services fail to contribute to the accomplishment of the
Supervisor should develop an EPA-2 when:
• Half of the performance appraisal period has passed
• All of the work is not being done
• Performance standards and expectations are not being met
• An employee needs to acquire or improve his or her knowledge, skills, and abilities
Supervisor should develop an EPA-3 when:
• The performance appraisal period ends
• An employee leaves employment
• The supervisor departs