The Status of Telework in the Federal Government 2004
III. Introduction
Background
Section 359 of Public Law 106-346 (FY 2001 Department of Transportation
and Related Agencies Appropriations Act), states, "Each executive
agency shall establish a policy under which eligible employees
of the agency may participate in telecommuting to the maximum
extent possible without diminishing employee performance." The
law defines telecommuting as "any arrangement in which an employee
regularly performs officially assigned duties at home or other
work sites geographically convenient to the residence of the
employee," and eligible employee as, " … any satisfactorily
performing employee of the agency whose job may typically be
performed at least one day per week at an alternative workplace."
To fulfill its responsibilities under this legislation, OPM
has conducted an annual survey
of Federal agencies on telework implementation since 2001 to
track and report progress toward meeting statutory requirements.
In addition, OPM is working in partnership with the General
Services Administration (GSA) to promote telework throughout
the Federal Government. This report summarizes findings from
the 2003 telework survey
and describes the major telework promotional activities undertaken
by OPM and GSA in 2003.
In recent years, both Congress and the Executive branch have
increasingly promoted telework to help achieve important public
policy goals. Among these are protecting environmental quality
and energy conservation by reducing traffic congestion and vehicle
emissions; improving employees' work lives by allowing a better
balance of work and family responsibilities and reducing work-related
stress; improving the Government's ability to recruit and retain
a high-quality workforce in a competitive job market; and providing
for continuity of operations during emergencies.
Over the past several years, Congress has increasingly sought
to encourage more widespread use of telework. Section 359 of
Public Law 106-346 required all Executive agencies to establish
telecommuting policies. The law also directed OPM to ensure
that this requirement was applied to 25 percent of the Federal
workforce by April 2001, and to an additional 25 percent in
each subsequent year.
Post-Disaster Response
In the aftermath of September 11, telework has become a matter
of necessity for many employees and employers. Displaced workers
in the New York area and at the Pentagon were left without offices.
Road closings and increased security precautions exacerbated
already severe traffic congestion. Additionally, as a result
of weather disasters such as Hurricane Isabel, many Federal
managers began to take a fresh look at telework arrangements.
Telework has been integrated into the Federal Government's Continuity
of Operations Program (COOP), and agencies are including telework
in their own agency COOP plans. OPM has brought the Executive
agencies together several times to discuss emergency preparedness
plans and to present telework as one important tool to continue
Government operations during emergencies.
Strategic Focus
Since 2001, OPM has encouraged agencies to develop policies,
offer eligible employees the opportunity to telework, and increase
the number of teleworkers. In 2003, under the leadership of
Director Kay Coles James, OPM's focus sharpened as we thought
more strategically about telework's place in human capital management.
Key elements of our current strategic focus include:
- Emergency Planning -- Telework
is essential for agencies' emergency planning, whether for
snowstorms, natural disasters, or terrorist events. For an
agency to be effective in an emergency, a solid telework program
must be in place before the event.
- Management Benefits --
Regularly-scheduled telework provides a cadre of well- prepared
teleworkers whose predictability facilitates efficient management.
- Tests for Special Situations -- Occasional telework in response to special situations is
also useful, primarily because it allows the employee and
supervisor to test out telework before making a long-term
commitment to a telework arrangement.
- Agency Control of /Responsibility
for Programs/Progress -- While OPM and GSA can provide
materials and leadership to the agencies to assist them in
their telework programs, Federal agencies bear responsibility
for their own programs, and can do more to assure that as
many employees as possible can participate in telework.
Modification of Survey Instrument
In 2003, we modified the survey instrument to sharpen and clarify
definitions in order to collect more precise information about
the implementation of telework programs by Federal agencies.
A copy of the 2003 survey instrument is attached as Appendix
A. These changes were designed to provide agencies with
information that would empower them to move forward toward the
statutory goal of allowing eligible Federal employees to telework
to the maximum extent practicable. Based on the survey results,
we will encourage agencies to reexamine their telework policies
to ensure that they clearly describe the conditions and requirements
that govern program implementation as well as to evaluate the
ways they promote telework and develop forward-thinking approaches.
To help determine progress toward the statutory goals, we added
or clarified questions so we could determine whether:
- agencies have a telework policy in place;
- agencies have defined eligibility to telework
in their policy;
- agencies are formally offering the opportunity
to telework to eligible employees; and
- the number of eligible employees actually
teleworking is increasing.
The survey established and defined two categories of telework:
Core Telework: telework
that occurs on a routine or regular basis away from the principal
place of duty (e.g., at home, at a telework center, at an
alternate location) one or more days per week.
Situational Telework: telework
that occurs on an occasional, non-routine basis.
The survey also clearly established and defined two types of eligibility criteria:
Eligibility Criteria (job-related):
An employee's job is eligible for telework if some or all
of the duties of the job could be performed away from the
principal place of duty.
Qualifying Criteria (employee-related):
requirements an employee must meet to participate in a telework
arrangement (e.g., performance rating of at least fully successful,
no history of disciplinary actions).
The definitions were designed not only to refine our data collection,
but also to encourage agencies to think about different structures
for telework, and to recognize that either core or situational
telework is appropriate for most jobs. We expect that by looking
simultaneously at their job-related and their employee-related
criteria, agencies will discover more telework opportunities
for their employees. Appendix
B, Table 1 provides individual agency data regarding participation
in telework programs.