I think the local level decision would be great, if possible. Of course, you have to see through the butt-snorkeling, know your people, etc. Easier for the rater to do that (if they are worth anything themselves), but not so much the rater's rater. That said, that is why they have (or had) a non concur block the rater's rater could check if they didn't agree with the rater's rating. For promotions in general, it's simply human nature to promote "favorites," especially in the civilian world. As a supervisor/manager, I've never had a "favorite" workerbee who wasn't actually outstanding in their job.