Subjectivity would assure inconsistency and unfairness, whether perceived or real. If the issues of fairness and adequate and consistent funding cannot be addressed and resolved satisfactorily, then PBP should be abandoned. It is not worth the turmoil that will ensue if it is forced and incompatible with existing budgetary constraints and attitudes. PBP is not a win-win game. With limited funding, there must be losers if there are to be any winners.
Nobody wants to be a loser.
The State should not place itself in a position to create losers out of good employees. It won't make them peak performers, it will make them leave. Supervisors have always had the authority to withhold money from employees' pay for poor performance. This is an appropriate authority for supervisors to invoke. There are many state employees who still do not understand the pay structure and the terms of base and non-base building.