United States General Services Administration

Interagency Telework Issues Working Group Subcommittee DRAFT Reports

United States Office of Personnel Management

Introduction: There is a direct relationship between the Federal Government's Continuity of Operations (COOP) effort and telework (AKA telecommuting), since the objectives of the two programs are nearly identical. COOP requires agencies to have a facility from which to continue essential agency functions should the primary facility be rendered unusable during an emergency. Guidance from the Federal Emergency Management Agency (FEMA) provides the following suggestion to agencies when considering the selection of alternative facilities (Federal Preparedness Circular (FPC 67, dated April 30, 2001) issued by the Federal Emergency Management Agency, FEMA):

• "Maximum use should be made of existing field infrastructures and other options, such as telecommuting locations, work-at-home, virtual offices, joint or shared facilities." - FPC 67, April 30, 2001

Existing Arrangements: All agencies are required to have in place policies and standard operating procedures to allow the agency to continue operations in the event of national, regional or local emergencies. According to Federal Preparedness Circular (issued by the Federal Emergency Management Agency, FEMA) Number 65 (dated July 6, 1999):

"It is the policy of the United States to have in place a comprehensive and effective program to ensure continuity of essential Federal functions under all circumstances. As a baseline of preparedness for the full range of potential emergencies, all Federal agencies shall have in place a viable COOP capability which ensures the performance of their essential functions during any emergency or situation that may disrupt normal operations." - FPC 65, July 6, 1999

COOP Program Elements Related to Teleworking Issues

Alternative Facilities

• All agencies shall designate alternate operating facilities as part of their COOP plans, and prepare their personnel for the possibility of unannounced relocation of essential functions and/or COOP contingency staffs to these facilities. - FPC 65, July 6, 1999

Interoperable Communications

• The success of agency operations at an alternate facility is absolutely dependent upon the availability and redundancy of critical communications systems to support connectivity to internal organizations, other agencies, critical customers, and the public.
• These services may include, but are not limited to: secure and/or non-secure voice, fax, and data connectivity; Internet access; and e-mail. - FPC 65, July 6, 1999

Vital Records and Databases

• The protection and ready availability of electronic and hardcopy documents, references, records, and information systems needed to support essential functions under the full spectrum of emergencies is another critical element of a successful COOP plan. Agency personnel must have access to and be able to use these records and systems in conducting their essential functions. - FPC 65, July 6, 1999

Discussion: The three above elements (need for off-site facilities, connectivity, and access to records and systems) provide agencies with a starting point and a model to develop teleworking policies.

Areas of Concern with Existing Arrangements: Problems identified with the existing arrangements that are impeding teleworking arrangements and participation.

• Agencies need to PLAN and BE PREPARED to use telework as a means for addressing emergencies. Agencies are most likely not identifying critical work needs which could be accomplished through teleworking, and planning for how teleworking could be effectively utilized in those instances. COOP guidance in all agencies should specifically address this. By not doing so, agencies are missing a significant opportunity to utilize specific agency mission-related programs (i.e., COOP) to remove managerial barriers to the implementation of effective telework programs.
• A potential weakness in COOP policy is lack of widely publicized guidelines on conducting drills, pilots, assessments etc., to ensure that (a) telework activities are effective (b) appropriately designed and (c) understood/usable by employees. It does no good to wait until a disaster to learn how to deploy COOP responses.

Existing Flexibilities: Outline of individual agency approaches, if any, which attempt to redress the problems and maximize flexibility.

• One agency subcomponent has opted to outfit their managers and senior staff with computers, access software, cell phones, and pagers to accommodate a necessity to work off site (at home) in order to continue essential operations during an emergency. This experience has demonstrated the utility of teleworking to agency managers in that subcomponent.

Possible New Approaches: Ideas for how the system can be changed (whether through legislative or policy changes) to overcome existing difficulties.

• Agency COOP policy development processes and related emergency experiences provide a perfect platform for the development of telework programs. According to FPC 67, dated April 30, 2001 (FEMA), some of the options recommended are:

"(2) Virtual Offices.
(a) Work at Home. Several agencies have programs to allow employees to work from home. This arrangement could be utilized for some employees to fulfill their mission-essential functions;
(b) Telecommuting Facilities. Several areas of the country have federally funded telecommuting facilities. These facilities could accommodate some personnel on a prearranged reimbursable basis so that they can fulfill their mission-essential functions; and
(c) Mobile Office Concept. This concept envisions using such assets as a specially equipped vehicle that can serve as an office, or laptop computers that communicate via cellular or satellite technology." - FPC 67, April 30, 2001

Recommendations: Recommended approaches/solutions to minimize impediments, increase access to and participation in telework and enhance the efficiency, effectiveness, and flexibility of telework arrangements.

1. Agencies should utilize their COOP authorities and experiences to familiarize the entire workforce with the advantages and effectiveness of working at a remote location.

2. Agencies should incorporate telework options into their COOP plans and assure that managers and employees are aware of this option in the event of an emergency.

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