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1 Section 1: Development Processes

1.1 Performance Measurement Process

1.1.1 Introduction

Performance measures are recognized as an important element of all TotalQuality Management programs

Managers and supervisors directing the eorts of an organization or a

group have a responsi!ility to "no# ho#$ #hen$ and #here to institute a

#ide range of changes

These changes cannot !e sensi!ly implemented #ithout "no#ing

"no#ledge of the appropriate information upon #hich they are !ased

In addition$ among many organization #ithin the Department of %nergy

&D'%( comple)$ there is currently no standardized approach to developing

and implementing performance measurement systems

*s a result$ performance measures have not !een fully adopted to gaugethe success of the various +uality management programs practiced !y

mem!ers f the Department of %nergy ,evada 'perations '-ce &D'%,/(

0amily Quality 0orum

To address these issues$ the steering committee mem!ers sommissioned a

#or" group to study the development$ implementation$ and operation of

performance measurement systems

This guidance document$ the product of the #or" group$ provides a

comprehensive$ step!y step e)planation of ho# to develop performance

measurements at any level #ithin an organization and ho# to evaluate

their eectiveness The implementation of performance measurements for a speci2c process

should involve as many cognizant employees as possi!le to stimulate

ideas and reinforce the notion that this is a team eort re+uiring !uyin

from all involved in order to succeed

Su!stantial !ene2ts are realized !y organization complementing

performance measurement programs

These !ene2ts are realized almost immediately through an improved

understanding !y all employees

0urthermore$ individuals get an opportunity to receive a !roadened

perspective of the organization3s functions$ rather than the more limitedperspective of their o#n immediate span of control

*s a process$ performance measurement is not simply concerned #ith

collecting data associated #ith a prede2ned performance goal or standard

Performance measurement is !etter thought of as an overall management

system involving prevention and detection aimed at achieving

conformance of the #or" product or service to your re+uirements

*dditionally$ it is concerned #ith process optimization through increased

e-ciency and eectiveness of the process or product

These actions occur in a continuous cycle$ allo#ing options for e)pansion

and improvement of the #or" process or product as !etter techni+ues are

discovered and implemented


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Performance measurement is primarily managing outcome$ and one of its

main purpose is to reduce or eliminate overall variation in the #or"

product or process

The goal is to arrive at sound decisions a!out action aecting the product

or process and its output

1.1.4 5hat *re Performance Measures6

Performance measures +uantitatively tell us something important a!out

our product$ service$ and the processes that produce them

They are a tool to help us understand$ manage$ and improve$ #hat

organizations do.

Performance measures let us "no#

o 7o# #ell are #e doing

o If #e are meeting our goals

o If our customers are satis2ed

o If our process are in statistical control

o If and #here improvements are necessary

They provide us #ith the information necessary to ma"e intelligent

decision a!out #hat #e do

* performance measure is composed of a num!er and a unit of measure

The num!er gives us a magnitude &ho# much and the unit gives the

num!er of meaning hat(

Performance measures are al#ays tied to a goal or an o!8ective &the

target(

Performance measures can !e represented !y single dimensional units li"e

hours$ meter$ nanoseconds$ dollars$ num!er of reports$ num!er of errors$

num!er of 9Pcerti2ed employees$ length of time to design hard#are$etc.

They can sho# the variation in a process or deviation from design

speci2cationsSingledimensional units of measure usually represent very !asic and

fundamental measures of some process or product.

More often$ multidimensional units of measures are used

These are performance measures e)pressed as ratios of t#o or more

fundamental units

These may !e units li"e miles per gallon &a performance measures of fuel

economy($ num!er of accident per million hours #or"ed &a performancemeasure of the companies safety program($ or num!er of ontime vendor

deliveries per total num!er of vendor deliveries

Performance measures e)pressed this #ay almost al#ays convey more

information that the singledimensional or singleunit performance

measures

Ideally$ performance measures should !e e)pressed in units of measures

that are the most meaningful to those #ho must use or ma"e decisions

!ased on those measures

Most performance measures can !e grouped into one of the follo#ing si)

general categories


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7o#ever$ certain organizations may develop their o#n categories as

appropriate depending on the organization3s missionso %ectiveness:

* process characteristic indicating the degree to #hich the

process output or" product( conforms to re+uirements. &*re

#e doing the right things6(o %-ciency

* process characteristic indicating the degree to #hich the

process produces the re+uired output at minimum resource

cost. &*re #e doing things right6(o Quality

The degree to #hich a product or service meets customer

re+uirements and e)pectationso Timeliness

Measures #hether a unit of #or" #as done correctly and on

time 9riteria must !e esta!lished to de2ne #hat constitutes

timelines for a given unit of #or" The criterion is usually !ased on customer re+uirements

o Productivity

The value added !y the process divided !y the value of the

la!or and capital consumedo Safety

Measures the overall health of the organization and the

#or"ing environment of its employees

The follo#ing re;ect the attri!utes of an ideal unit of measure

o e;ects the customer3s needs as #ell as our o#no Provides an agreed upon !asis for decision ma"ing

o Is understanda!le

o *pplies !roadly

o May !e interpreted uniformly

o Is compati!le #ith e)isting sensors &a #ay to measure it e)ists(

o Is precise in interpreting the results

o Is economical to apply

Performance data must support the mission assignment&s( drom the

highest organizational level do#n#ard to the performance level

Therefore$ the measurements that are used must re;ect the assigned

#or" at that level 5ithin a system$ units of measure should interconnect to form a pyramid

&2gure 1.1(


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o To identify #hether #e are meeting customer re+uirements

7o# do #e "no# that #e are providing the servicesproduct

that our customers re+uire6o To help us understand our processes

To con2rm #hat #e "no# or reveal #hat #e don3t "no#

Do #e "no# #here the pro!lems are6o To ensure decision are !ased on fact$ not on emotion

*re our decisions !ased upon #elldocumented facts and

2gures or on intuition and gut feelings6o To sho# #here improvements need to !e made

5here can #e do !etter6

7o# can #e improve6

o To sho# if improvements actually happened

Do #e have a clear picture6

o To reveal pro!lems hat !ias$ emotion$ and longevity cover up

If #e have !een doing our 8o! for a long time #ithout

measurements$ #e might assume incorrectly that things aregoing #ell. &They may or not !e$ !ut #ithout measurements

there is no #ay to tell.(o To identify #hether suppliers are meeting our re+uirements

Do our suppliers "no# if our re+uirements are !eing met6

1.1.? 5hy Do 5e ,eed to Measure6

If you cannot measure an activity$ you cannot control it

If you cannot control it$ you cannot manage it

5ithout dependa!le measurements$ intelligent decisions cannot !e made

Measurements$ therefore$ can !e used for

o 9ontrol

Measurements help to reduce variation

0or e)ample$ atypical control for D'% contractor

accounta!ility measurement is the 5or" *uthorization

Directive System &5*DS( and performance %valuation Plan

&P%P( Their purpose is to reduce e)pense overruns so that agreed

to o!8ectives can !e achievedo Selfassessment

Measuremens can !e used to assess ho# #ell a process is

doing$ including improvements that have !een madeo 9ontinuous improvement

Measurement can !e used to identify defect sources$ process

trends$ and defect prevention$ and to determine process

e-ciency and eectiveness$ as #ell as opportunities for

improvemento Management assessment

5ithout measurements there is no #ay to !e certain #e are

meeting valueadded o!8ectives or that #e are !eing

eective and e-cient The !asic concept of performance measurement involves


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It has !een separated into 11 discrete steps

This is a guideline$ intended to sho# the process generically

Dierent organizations #ho !est "no# their o#n internal processes should

feel free to adapt the guidelines #here necessary to !est 2t #ithin their

operations

Su!components #ithin the steps may need to !e e)changed$ or it may !e

necessary torevisit completed steps of the process !ased on ne#

information arising from latter steps

* !rief description of each of the process steps follo#s:

o Indentify the process ;o#

This is the 2rst and perhaps most important step

If your employees cannot agree on their process&es($ ho# can

they eectively measure them or utilize the output of #hat

they have measuredo Indentify the critical activity to !e measured

The critical activity is that culminating activity #here it ma"es

the most sense to locate a sensor and de2ne an individual

performance measure #ithin a processo %sta!lish performance goal&s( or standards

*ll performance measures should !e tied to prede2ned goal

or standard$ even if the goal is at 2rst some#hat su!8ective 7aving goals and standards is the only #ay to meaningfully

interpret the results of your measurements and gauge the

success of your management systemo %sta!lish performance measurement&s(

In this step$ you continue to !uild the performance

measurement system !y identifying individual measureso Indentify responsi!le party&s(

* speci2c entity &as in a team or an individual( needs to !e

assigned the responsi!ilities for each of the steps in the

performance measurement processo 9ollect data

In addition to #riting do#n the num!ers$ the data need to !e

preanalyzed in a timely fashion to o!serve any early trends

and con2rm the ade+uacy of your data collection systemo *nalyzereport actual performance

In this step$ the ra# data are formally converted into

performance measures$ displayed in an understanda!le form$

and disseminated in the form of a reporto 9ompare actual performance to goals&s(

In this step$ compare$ compare performance$ as presented in

the report$ to predetermined goals or standards and

determine the variation &if any(o Ma"e changes to !ring !ac" in line #ith goal

This step only occurs if corrective action is e)pected to !e

necessary


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The actual determination of the corrective action is part of

the +uality improvement process$ not the performance

measurement process This step is primarily concerned #ith improvement of your

management systemo *re ne# goals needed6

%ven in successful systems$ changes may need to !e revised

in order to esta!lished ones that challenge an organization3s

resources$ !ut do not overta) them Boals and standards need periodic evaluation to "eep up #ith

the latest organizational processes

1.1.6.1 Step1: Identify Process

In identifying the process$ an understanding of #hat you #ant to measure

is of critical importance

sually there are many processes and functions$ each potentially needing

performance measures

If there are multiple processes$ consider the !usiness impacts$ and select

those processes that are most important to the customer &!oth internal

and e)ternal( to satisfy their re+uirements andor those processes #ith

pro!lem areas identi2ed !y management

These then !ecome the "ey &or important( processes

* process needs to !e managea!le in size

* lot of eort can !e #asted if you do not start #ith a ellde2ned process

Eou should as" the follo#ing:

o 5hat product service do #e produce6

o 5ho are our customer&s(6o 5hat comprises our process6

5hat do #e do6

7o# do #e do it6

5hat starts our process6

5hat ends our process6

=efore you try to control a process$ you must understand it

* ;o# diagram is an invalua!le tool and the !est #ay to understand a

process

0lo#charting the entire process$ do#n to the tas" level$ sets the stage for

developing performance measures

*ll parties #ho are involved in the process should participate in creating

the ;o#charts

In a team environment$ individuals #ill receive a ne# understanding of

their processes

*s participants$ you can count on their later support to ma"e the

performance measurement system #or"

OUTPUT: A LIST OF PROCESSES, KEY PROCESSES, AND FLOW

DIAGRAM FOR THESE KEY PROCESSES

1.1.6.2 Step 2: Identify Critical Activity(ies) to be Measured

It is important to choose only the critical activity&ies( to !e measured 5e measure these activities to control them


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9ontrolling$ or "eeping things on course$ is not something #e do in the

a!stract

9ontrol is applied to a speci2c critical activity

5hen ma"ing your selection$ focus on "ey areas and processes rather

than people

%)amine each activity in the process and identify those that are critical 9ritical activities are those that signi2cantly impact total process

e-ciency$ eectiveness$ +uality$ timeliness$ productivity$ or safety

*t the management level$ critical activities impact management priorities$

organizational goals$ and e)ternal customer goals

*s" the follo#ing: does it relate$ directly or indirectly$ to the ultimate goal

of customer satisfaction6

%very critical activity should

0or e)ample$ ontime delivery is directly related to customer satisfaction

se +uality tools such as the Pareto principle$ !rainstorming$ or e)amining

data to help prioritize the critical activities 9on2rm that the activity is critical

Do all concerned agree that this activity needs to !e #atched closely and

acted on of its performance is less than desira!le6

Is it something that should !e continuously improved6

Doses the !ene2t e)ceed the cost of ta"ing the measurement6 'f the

ans#er is FnoG to any of these +uestion$ you should reevaluate #hy you

consider it critical

%ach critical activity !ecomes the hu! around #hich a feed!ac" loop is

constructed &2gure 1.4(

It is at this step you !egin to thin" a!out #hat you #ant to "no# orunderstand a!out the critical activity andor process

Perhaps the most fundamental step in esta!lishing any measurement

system is ans#ering the +uestion$ F5hat do I #ant to "no#.G

The "ey issue then !ecomes$ Fho# do #e generate useful information6G

learning to as" the right +uestions is a "ey s"ill in eective data collection

*ccurate$ precise data collected through an ela!orately designed

statistical sampling plan is useless if it does not clearly address a +uestion

that someone cares a!out

It is crucial to !e a!le to state precisely #hat it is you #ant to "no# a!out

the activity you are going to measure

5ithout this "no#ledge there is no !asis for ma"ing measurements

To generate useful information$ planning for good data collection proceeds

along the follo#ing lines:o 5hat +uestion do #e need to ans#er6

o 7o# #ill #e recognize and communicate the ans#ers to the

+uestion6o 5hat dataanalysis tools &Pareto diagram$ histogram$ !ar graph$

control charts$ etc.( do #e envision using6 7o# #ill #e

communicate the results6o 5hat type of data do the data analysis tools re+uire6

o 5here in the process can #e get these data6o 5ho in the process can give us these data6


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o 7o# can #e collect these data from people #ith minimum eort and

chance of error6o 5hat additional information do #e need to capture for future

analysis$ reference$ and tracta!ility6

,otice ho# this planning process &2gure 1.?( essentially #or"s !ac"#ard

through the model for generating useful information

5e start !y de2ning the +uestion

Then$ rather than diving into the details of data collection$ #e consider

ho# #e might communicate the ans#er to the +uestion and #hat types of

analysis #e #ill need to perform

This helps us de2ne our data needs and clari2es #hat characteristics are

most important in the data

5ith this understanding as foundation$ #e can deal more coherently #iththe #here$ #ho$ ho#$ and #hat else issue of data collection

Information generation !egins and ends #ith +uestions

To generate information$ #e need to:o 0ormulate precisely the +uestion #e are trying to ans#er

o 9ollect the data and facts relating to that +uestion

o *nalyze the data to determine the factual ans#er to the +uestion

o *nalyze the data to determine the factual ans#er to the +uestion

o Present the data in a #ay that clearly communicates the ans#er to

the +uestion

OUTPUT: A LIST OF THE CRITICAL ACTIVITY AREAS FOR THE KEY

PROCESS


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1.1.6. Step : !stablis" Perfor#ance $oal(s) or Standard(s)

Boals and standards are necessaryA other#ise tere is no logical !asis for

choosing #hat to measure$ #hat decisions to ma"e$ or #hat action to ta"e

Boals can !e a management directive or ca !e sat in respons to customer

needs or complaints

Hno# your customers and their e)pectations 0or each critical activity selected for measurement$ it is necessary to

esta!lish a performance goal or standard

This is an FaimedatG target$ an achievement to#ard #hich eort is

e)pended

Standards often are mandated !y e)ternal sources &e.g.$ 'ccupational

Safety and 7ealth *dministration 'S7*J$ government regulation$ etc.(

Hno#ledge of performance is not enoughA you must ave a !asis for

comparison !efore you can decide or act

The concept of esta!lishing performance galsstandards is not limited to

num!ered +uantities$ i.e.$ !udget$ deliveries ,either is it limited to FthingsG

The concept of standards e)tends to !usiness practices$ routines$

methods$ and procedures as #ell

Performance goals can !e esta!lished for

o The overall process output

o The critical activities that produce the output

In any case$ if this is the 2rst set of foals pf standards to !e esta!lished$

and no !asis for setting gals or standards e)ist$ a !asline period of

o!servation is appropriate prior esta!lishing the goal or standard

Bood performance goals or standards areo *ttaina!le

Should !e met #ith reasonea!le eort under the conditions

that are e)pected to prevailo %conomic

9ost of setting and administering should !e lo# in relation to

the activity coveredo *pplica!le

Should 2t the conditions under #hich they are to !e used

If conditions vary$ should contain !uiltin ;e)i!ility to meet

these varia!les

o 9onsistent Should help to unify communication and operations

throughout all function of the companyo *ll inclusive

Should cover all interrelated activities

0ailing this$ standards #ill !e met at the e)pense of those

activities for #hich standards have not !een seto nderstanda!le

Should !e e)pressed in simple$ clear terms$ so as to avoid

misinterpretation or vagueness Instruction for use should !e speci2c and complete

o Measurea!le Should !e a!le to communicate #ith precision


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o Sta!le

Should have a log enough life to provide predicta!ility and to

amortize the eort of preparing themo *dapta!le

Should !e designed so that elements can !e added$ changed$

and !rought up to date #ithout redoing the entire structureo >egitimates

Should !e o-cially approved

o %+uita!le

Should !e accepted as a fair !asis for comparison !y the

people #ho have te 8o! of meeting the goal or standardo 9ustomer focus

Should address areas important to the customer

&internale)ternal( such as cycle time$ +uality$ cost schedule

performance$ and customer satisfaction

OUTPUT: A LIST OF GOALS FOR EACH CRITICAL ACTIVIT WTHIN THE

PROCESS

1.1.6.% Step %: !stablis" Perfor#ance Measure#ent(s)

This step involves performing several activities that #ill continue to !uild

the performance measurement system

%ach performance measurement consists of a de2ned unit of measure &the

performance measure itself($ a sensor to measure or record the ra# data$

and a fre+uency #ith #hich the measurements are made

To develop a measure$ the team performs the follo#ing activities

o Translate F#hat do I #ant to "no#G into a performance measure

o

Identi2es the ra# data that #ill generate the performance measureo Determines #here to locate the ra# data

o Identi2es the sensor or measurement instrument that #ill collect

the data for the performance measureso Determines ho# often to ma"e the measurements

This step #ill allo# to generate useful information rather than 8ust

generating data

The purpose of this information is to provide everyone involved #ith an

agreedupon !asis for ma"ing sensi!le decisions a!out your processes$

products$ and services

1.1.C.?.1Translate into Performance Measures 7aving identi2ed precisely #hat you #ant to "no# or understand a!out

your process$ you must no assem!le this "no#ledge into a performance

measure

Performance measures$ and the data necessary to generate them$ should

!e chosen to ans#er the +uestions you have 8ust posed a!ove

Performance measures are generally easiest to determine 2r activities or

processes that have esta!lished and +uanti2ed goals

In such cases$ the performance measures are usually stated in the sam

units as or similar units to the goals

5hen no goals e)ist for an activity &or the process as a #hole($ the team

should revisit the fundamental +uestion of #hat it is they #ish to "no#


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* good #ay to FtestG a team3s understanding of the performance

measures they have chosen is to have them descri!e they #ould use for

each performance measure displayed graphically #ill help determine if it

#ill actually provide the information needed

Doing this simple step no# #ill help ensure the team that it has chosen

the right performance measure

In reality$ many #or" teams may 2nd that some of their performance

measures do not really tell them #hat they #ant to "no#

Don3t panic$ even performance measures that dong3 +uite #or" may help

refocus the team on the real issues they hope to address

Introduce a ne# set of measures and try again

1.1.C.?.4Identify the a# Data

The purpose of this activity is to identify the ra# data you #ill need to

generate the performance measrues

It is di-cult to perform a measurement if the needed data ad data sourcehave not !een identi2ed

0or very simple processes #ith straight or#ard performance measures$

this step may seem simple

7o#ever$ very comple) or highlevel performance measures may re+uire

many ra# data from numerous sources

In general$ performance measures are seldom generated directly in a

single measurement or from a single source

They usually &!ut not al#ays( consist of some com!ination of other ra#

data elements

1.1.C.?.ocate the a# Data The purpose of this activity is to determine if and #here the data e)ist

Stated dierently$ it3s a matter of locating at #hat step in a process to

ma"e a measurement$ at #hat point in time$ or at #hat physical or

geographical location

Quite often$ this activity is performed concurrently #ith the previous one

In the simplest case you may 2nd that your #or" group already has the

ra# data collected and you need only retrieve in order to generate the

associated performance measure

In other cases$ the data you need may have !een collected !y another

department1.1.C.?.?Identify the Sensor

* sensor is a device or person that is a!le to detect &sense( the presence

or a!sence of some phenomena and &generally( provide a reading of the

intensity &ho# much( of that phenomena in a +uanti2a!le form #ith the

appropriate units of measure

The sensor is #hat or #ho #ill do the measuring or data collection for your

measurement system

Sensors ta"e many forms depending n #hat they are designed to measure

0or technical and manufacturing processes$ there are sensors that can

accurately measure length &micrometer($ temperature &thermocouple($voltage &digital voltmeter or digitizer($ and os on


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0or less technical processes there are data!ase$ log !o"s$ time cards$ and

checsheets

In some cases the sensor ma"es a measurement and a person recors the

result

Many inspection activities can only !e performed !y humans

There are also automated data collection systems or sensors that re+uire

no human intervention other that cali!ration or maintenance

Many manufacturing processes employ such sensors to detect$ measure$

and record the presence of nonstandard products

9hoosing a sensor usually involves as"ing simple +uestion a!out the

measurement you hope to ma"eo 5hat am I trying to measureA #hat "ind of data are they

o 5here #ill I ma"e the measurementA #here are the data

o *m I simply trying to measure the presence or a!sence of some

feature6 as the order placed$ #as the report delivered6 Did the

computer help des" solve the pro!lem6(o Do I need to sense the degree or magnitude of some feature or

count ho# many6o 7o# accurate and precise must my measurements !e6

o Do the measurements occur at a particular point in time or space6

1.1.C.?.@Determine 7o# 'ften to Ma"e Measurement

1.1.6.& Step &: Identify 'esponsible Party(ies)

1.1.6.6 Step 6: Collect ata

1.1.C.C.1Data 9ollection 0orms

1.1.C.C.4Data 9ollection System

1.1.6. Step : Analy*e+'eport Actual Perfor#ance

1.1.6., Step ,: Co#pare Actual Perfor#ance to $oal+Standard

1.1.6.- Step -: eter#ine if Corrective Action(s) is ecessary

1.1.6.1/ Step 1/: Ma0e C"ane to rin Process ac0 in 3ine 4it" $oal or

Standard

1.1.6.11 Step 11: eter#ine if e4 $oals or Measures are eeded

The decision to create ne# performance measures or goals #ill depend on

three ma8or factors

o The degree of success in achieveing previous o!8ectiveso The e)tent of any change to the scope of the #or" process


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1.4 Developing Performance Measures* Systematic *pproach

1.4.1 'vervie#

1.4.4 Structure and Terminology

1.4.< The Process

1.2..1 Step 1: escribe t"e 5utco#e anted

1.4.a# of Performance: If you try to !e the !est at everything$ you3ll

!e the !est at nothing

1.2..2 Step 2: escribe t"e Ma7or or0 Processes Involved

1.4.a# of Performance: People are more important than the

process$ !ut a good process is important to people

1.2.. Step : Identify t"e 8ey 'esults eeded

1.4.

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