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2016 Assessment of the Civilian Acquisition Workforce Personnel Demonstration Project Summary

Core Content

This report presents a comprehensive assessment of the Civilian Acquisition Workforce Personnel Demonstration Project (AcqDemo), a personnel management demonstration project within the U.S. Department of Defense (DoD) aimed at improving the efficiency and effectiveness of civilian acquisition workforce management. The assessment was mandated by the National Defense Authorization Act (NDAA) of FY 2011 and conducted by the RAND Corporation in 2016. It evaluates AcqDemo using 17 criteria, including 12 legislatively mandated and 5 additional ones specified by the AcqDemo Program Office.

The study employs a mix of quantitative and qualitative data sources, including program documents, surveys (2012 and 2016), administrative data from the Defense Manpower Data Center (DMDC), and interview data. These data were analyzed to understand the impact of AcqDemo on career outcomes, flexibility usage, diversity protections, organizational mission support, and employee engagement.

Main Points and Findings

AcqDemo Overview

• AcqDemo is a demonstration project that provides alternative personnel management systems for the DoD civilian acquisition workforce.
• It was authorized in the NDAA of FY 1996 and later amended in FY 1998.
• The project was designed to retain, recognize, and reward employees based on their contributions to the organizational mission.
• AcqDemo uses broadbands to classify employees and a Contribution-Based Compensation and Appraisal System (CCAS) to evaluate performance.

Key Features of AcqDemo

• Career Paths: Employees are assigned to one of three career paths based on their occupation:
  • Business Management and Technical Management Professional (NH)
  • Technical Management Support (NJ)
  • Administrative Support (NK)
• Pay Bands: Each career path has a different number of pay bands (4 for NH and NJ, 3 for NK), which correspond to multiple General Schedule (GS) grades.
• Performance Appraisal System:
  • Employees are evaluated based on six factors: problem-solving, teamwork, customer relations, leadership, communication, and resource management.
  • Supervisors use this framework to generate preliminary factor scores and annual appraisals.
  • The pay pool process involves a panel of supervisors reviewing and adjusting appraisals to ensure equity and consistency.
  • The Overall Contribution Score (OCS) is derived from these adjusted scores and used to determine compensation actions.

Assessment Approach

• The study used multiple data sources to evaluate AcqDemo:
  • Quantitative data from surveys and administrative records
  • Qualitative data from interviews and open-ended survey responses
• Statistical methods were employed, including regression analysis and propensity score weighting, to compare AcqDemo participants with a weighted GS comparison group.
• Limitations were acknowledged, such as the inability to fully compare perceptions between AcqDemo and GS employees and the lack of detailed performance data for GS employees.

Performance Evaluation

• Career Outcomes:
  • AcqDemo participants showed similar or better retention compared to GS employees, with some subgroups (e.g., unionized employees, supervisors) showing notable differences.
  • Compensation for AcqDemo employees was higher on average, especially for those with higher OCSs.
  • Promotion rates were influenced by OCS and broadband structure.
• Flexibility Usage:
  • Employees used appointment and appraisal flexibilities, though there were barriers to full utilization.
  • Supervisors had flexibility in setting pay, but fairness and transparency were reported as concerns.
• Diversity Protections:
  • AcqDemo showed mixed results in terms of diversity and inclusion, with some subgroups (e.g., women, minorities) reporting positive or neutral outcomes.
  • However, disparities in perception and outcomes were noted, particularly in relation to race and gender.
• Mission Support:
  • AcqDemo was designed to better align with the acquisition mission by allowing more flexibility in performance management and compensation.
  • The effectiveness of AcqDemo in supporting mission needs was mixed, with some organizations reporting positive outcomes and others indicating challenges.

Areas for Improvement

• The project's impact on diversity and inclusion requires further attention.
• Barriers to flexibility usage were identified, suggesting the need for better training and clearer guidelines.
• Employee involvement in the development and improvement of AcqDemo could be enhanced.
• Fairness and transparency in the performance appraisal and compensation processes remain areas for improvement.

Key Information

• Project Objective: To improve the management of the DoD civilian acquisition workforce through performance-based systems and flexibility in appointments and appraisals.
• Participants: As of September 30, 2015, AcqDemo had 16,258 participants, with 16,000 being permanent, full-time employees.
• Data Sources:
  • Surveys (2012 and 2016)
  • Administrative data from DMDC
  • Program documents and interviews with subject-matter experts
• Methodology:
  • Quantitative analysis using regression and weighted comparisons
  • Qualitative analysis of open-ended responses and interview data
• Limitations:
  • Inability to compare perceptions between AcqDemo and GS employees
  • Limited data on GS employee performance
  • Majority of AcqDemo participants came from the National Security Personnel System (NSPS), not the GS system

Conclusion

The 2016 assessment of AcqDemo highlights both successes and challenges in its implementation. While the project has shown positive outcomes in retention and compensation, there are gaps in performance feedback, diversity protections, and transparency. The study recommends further refinement of the system, enhanced employee engagement, and improved data collection to better understand and support the project's goals.

The findings are relevant to DoD personnel managers and congressional oversight in shaping future policies for civilian workforce management.