Court filing
TIGTA Interim Report 2021-16-020 — IRS COVID-19 Response Timeline and Policies to Protect Employee Health and Safety
Record facts
| Court | Treasury Inspector General for Tax Administration (TIGTA) |
|---|---|
| Filed | 2021-03-23 |
Summary
An interim audit report issued March 23, 2021 by the Treasury Inspector General for Tax Administration, Report Number 2021-16-020, on the Internal Revenue Service's COVID-19 response timeline and its policies to protect employee health and safety. The report states the audit was requested by Congress in House Report 116-456, accompanying the Consolidated Appropriations Act of 2021, which instructed TIGTA to report within 90 days of enactment. It sets out a timeline reporting that the IRS began closing facilities on March 16, 2020, directed employees with portable work to evacuate worksites on March 30, 2020, and had all facilities open for mission-essential and nonportable work by July 13, 2020. The report states that as of February 28, 2021, 3,404 IRS employees reported testing positive for COVID-19. It makes no recommendations and is addressed to the Commissioner of Internal Revenue.
Summary drafted by a model from the document's text below and checked by script against that text before publication. It is a navigation aid, not a reading of what the document proves. Where AI is used
Full text
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Interim Report – IRS COVID-19 Response Timeline and
Policies to Protect Employee Health and Safety
March 23, 2021
Report Number: 2021-16-020
TIGTACommunications@tigta.treas.gov | www.treasury.gov/tigta
TREASURY INSPECTOR GENERAL FOR TAX ADMINISTRATION
HIGHLIGHTS: Interim Report – IRS COVID-19 Response Timeline and Policies to Protect Employee Health
and Safety
Interim Audit Report issued on March 23, 2021
Report Number 2021-16-020
Why TIGTA Did This Audit
TIGTA is issuing this interim audit
report to provide information
about actions the IRS has taken to
protect the health and safety of
its employees during the
Coronavirus Disease 2019
(COVID-19) pandemic. This audit
was requested by Congress in
House Report 116–456,
accompanying the Consolidated
Appropriations Act of 2021. The
House Report instructed TIGTA to
submit a report within 90 days of
enactment. TIGTA plans to issue
a subsequent report later in Fiscal
Year 2021 that will provide
updates to the information in this
report, as well as additional
information on the IRS’s
pandemic planning efforts.
Impact on Taxpayers
The COVID-19 pandemic has
affected the IRS’s ability to
perform its responsibilities of
processing tax returns, tax
payments, and tax refunds. The
pandemic also threatens the lives
of IRS employees, several of
whom have passed away from the
virus since March 2020. As such,
the IRS has had to balance
the completion of its mission
and the health and safety of
its employees.
What TIGTA Found
On January 21, 2020, the Centers for Disease Control and Prevention
reported the first case of COVID-19 in the United States. On
March 11, 2020, the World Health Organization officially declared
COVID-19 a pandemic and, shortly thereafter, the first case of an
IRS employee testing COVID-19 positive was reported. In response
to the pandemic and resulting State stay-at-home orders, the IRS
began closing its facilities on March 16, 2020. On March 30, 2020,
the IRS directed all employees with portable work to evacuate
worksites and work from home or an alternate location, effectively
closing all IRS facilities, though some employees continued to report
to certain locations to perform mission-essential work.
As State and local governments began lifting restrictions, the IRS was
also aware of the needs of taxpayers and the increasing backlog of
work. On April 27, 2020, the IRS began the process of recalling
employees to its facilities in phases, beginning with voluntary recalls
to select facilities and transitioning to a broader opening of facilities
nationwide for mission-essential, nonportable work. The IRS
reported that all of its facilities have been open to mission-essential
functions and nonportable work since July 13, 2020.
Since reopening IRS facilities across the country for limited
operations, the number of IRS employees who reported testing
positive for COVID-19 has increased. As of February 28, 2021, 3,404
IRS employees reported having tested positive for COVID-19. IRS
data show that approximately 45 percent of these employees
reported to an IRS facility during the 14 days preceding a positive
test result for COVID-19.
As part of its efforts to quickly inform and protect employees during
the early stages of the COVID-19 pandemic, the IRS made Federal
guidance available to all employees, in addition to developing and
issuing its own internal guidance. These internal guidelines generally
aligned with Federal guidelines and best practices issued by the
Office of Personnel Management, the Centers for Disease Control
and Prevention, the Government Accountability Office, and other
Federal authorities.
TIGTA will continue to review the IRS’s actions to protect the health
and safety of its employees and provide updated information in a
subsequent report to be issued later this fiscal year.
What TIGTA Recommended
This report was prepared to provide interim information only. As
such, TIGTA is not making any recommendations at this time.
U.S. DEPARTMENT OF THE TREASURY
WASHINGTON, D.C. 20220
TREASURY INSPECTOR GENERAL
FOR TAX ADMINISTRATION
March 23, 2021
MEMORANDUM FOR: COMMISSIONER OF INTERNAL REVENUE
FROM:
Michael E. McKenney
Deputy Inspector General for Audit
SUBJECT:
Interim Audit Report– IRS COVID-19 Response Timeline and Policies to
Protect Employee Health and Safety (Audit # 202010622)
This report presents the results of our review to evaluate the actions the Internal Revenue
Service (IRS) has taken to protect the health and safety of its employees during the COVID-19
pandemic.1 This review was requested by Congress in House Report 116-456, accompanying
the Consolidated Appropriations Act of 2021.2 The House Report instructs the Treasury
Inspector General for Tax Administration to submit a report within 90 days of enactment. This
review is part of our Fiscal Year 2021 Annual Audit Plan and addresses the major management
and performance challenge of Responding to the COVID-19 Pandemic.
This report was prepared to provide information only. Therefore, we made no
recommendations in the report. However, we provided IRS management officials with an
advance copy of this report for review and comment prior to issuance.
Copies of this report are also being sent to the IRS managers affected by the report information.
If you have any questions, please contact me or Heather Hill, Assistant Inspector General for
Audit (Management Services and Exempt Organizations).
1 A subsequent report is planned for issuance later in Fiscal Year 2021 that will provide updates to the information in
this report, as well as additional information on the IRS’s pandemic planning efforts.
2 [Including Coronavirus Stimulus & Relief] Pub. L. No. 116-260, H.R. 133, 116th Cong. (2020). TIGTA was also directed
to report on employee telework and the return-to-work notification process. TIGTA, Ref. No. 2021-IE-R002, The
Internal Revenue Service Leveraged Its Telework Program to Continue Operations During the Coronavirus Disease
Pandemic (Mar. 2021).
Interim Report – IRS COVID-19 Response Timeline and Policies
to Protect Employee Health and Safety
Table of Contents
Background .....................................................................................................................................Page 1
Results of Review .......................................................................................................................Page 2
The IRS Was Significantly Affected by the Pandemic and
Developed Policies to Protect Employee Health and
Safety in Adherence With Federal Guidelines ...........................................................Page 2
Appendices
Appendix I – Detailed Objective, Scope, and Methodology ................................Page 14
Appendix II – Employees Reporting to an Internal Revenue Service
Facility for a Full Week .......................................................................................................Page 16
Appendix III – Internal Revenue Service Facility Closures .....................................Page 17
Appendix IV – Federal Guidelines and Best Practices ............................................Page 18
Appendix V – Glossary of Terms ....................................................................................Page 20
Appendix VI – Abbreviations ...........................................................................................Page. 21
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Interim Report – IRS COVID-19 Response Timeline and Policies
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Background
On January 21, 2020, the Centers for Disease Control and Prevention (CDC) reported the first
case of Coronavirus Disease 2019 (COVID-19) in the United States. COVID-19 is a disease
caused by a virus with symptoms including fever, cough, fatigue, and shortness of breath.
However, COVID-19 can cause more severe symptoms and death, particularly among elderly
individuals and individuals with pre-existing conditions. As the number of people testing
positive for COVID-19 increased, Federal, State, and local governments worked to slow and
prevent the further spread of the disease. On March 11, 2020, the World Health Organization
officially declared COVID-19 a pandemic.1 According to Johns Hopkins University, as of
December 23, 2020, COVID-19 caused nearly 1.7 million deaths globally, including more than
300,000 deaths in the United States.
In response to the pandemic, the White House Coronavirus Task Force coordinated the Federal
Government’s efforts, primarily through the Office of Personnel Management (OPM), the Office
of Management and Budget (OMB), and the CDC, who issued guidance and best practices to
assist Government agencies operating during the pandemic, while maintaining employee health
and safety. Internal Revenue Service (IRS) policy mandates that a comprehensive and effective
program must be in place to ensure the continuity of its essential functions under all
circumstances.2 As part of the program, the IRS created the Pandemic Incident Management
Plan (the Plan), which defines procedures to address any serious outbreak of a contagious
illness, such as pandemic influenza, that causes significant employee absenteeism. According to
the IRS, the Plan is designed to ensure the IRS’s capability to continue essential functions and
operations from primary facilities with little disruption to its customers and stakeholders. The
IRS’s Pandemic Executive Steering Committee Working Group (hereafter referred to as the
Executive Steering Committee) has the overall responsibility of executing the Plan. On
March 4, 2020, the Deputy IRS Human Capital Officer activated the Plan, which officially
commenced the IRS’s COVID-19 response.
While the Plan was designed to limit disruption of services to taxpayers and stakeholders, the
COVID-19 pandemic forced the IRS to make significant changes to aspects of its operations in
the middle of a filing season. The IRS had to make crucial decisions about facility closures and
staffing against a backdrop of new or updated Federal, State, and local regulations; guidance
from health authorities about the nature of the virus; and statutory changes affecting the IRS.
For example, the IRS closed its submission processing centers and halted all paper tax return
processing in response to the pandemic. Within two months, the IRS estimated that it had
received more than 16 million paper tax returns that needed to be processed.3 The IRS also
closed all of its toll-free taxpayer assistance telephone lines, which limited taxpayers’ ability to
obtain help from the IRS. In addition to affecting taxpayers, the pandemic also threatened the
1 See Appendix V for a glossary of terms.
2 Internal Revenue Manual 10.6.1 (Mar. 11, 2020).
3 Treasury Inspector General for Tax Administration, Ref. No. 2020-46-041, Interim Results of the 2020 Filing Season:
Effect of COVID-19 Shutdown on Tax Processing and Customer Service Operations and Assessment of Efforts to
Implement Legislative Provisions pp. 13-15 (June 2020).
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Interim Report – IRS COVID-19 Response Timeline and Policies
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lives of IRS employees, several of whom passed away from the virus since March 2020. As such,
the IRS has had to balance the completion of its mission and the health and safety of its
employees.
This audit is one in a series of audits being conducted by the Treasury Inspector General for Tax
Administration (TIGTA) as part of our oversight role of the IRS’s response to the COVID-19
pandemic.4 This review was requested by Congress in House Report 116-456, accompanying
the Consolidated Appropriations Act of 2021.5 The House Report instructs TIGTA to submit a
report within 90 days of enactment on the IRS’s policies and guidance to protect the health and
safety of its employees, how these compare with CDC and OPM guidance, and health and safety
incidents. TIGTA is issuing this interim audit report in response to this request. TIGTA plans to
issue a subsequent report later in Fiscal Year 2021 that will provide updated information, as well
as additional information on the IRS’s pandemic planning efforts.
Results of Review
The IRS Was Significantly Affected by the Pandemic and Developed Policies
to Protect Employee Health and Safety in Adherence With Federal Guidelines
Timeline of facility closures and reopenings, health and safety incidents, policy changes,
and other significant events
The Federal Government first provided guidance related to the COVID-19 pandemic on
February 7, 2020, when the OPM issued Compensation Policy Memorandum (CPM) 2020-02.6
As part of this memorandum, the OPM outlined human resources flexibilities and authorities
available to assist employees and agencies in dealing with COVID-19 or other quarantinable
communicable diseases by maximizing telework, administrative leave, and other work-related
flexibilities.7 Later in February 2020, the IRS issued guidance reiterating the OPM’s
memorandum, in part, stating that COVID-19 is a quarantinable communicable disease,
exposure may jeopardize the health of others, and quarantine of the exposed individual is
needed to protect public health.
On March 12, 2020, the OMB issued OMB Memorandum M-20-13, which encouraged all Federal
Executive Branch departments and agencies to take full advantage of telework flexibilities for
4 TIGTA, 2021 Annual Audit Plan. TIGTA, 2021 Inspections & Evaluations Program Plan.
5 [Including Coronavirus Stimulus & Relief] Pub. L. No. 116-260, H.R. 133, 116th Cong. (2020). TIGTA was also directed
to report on employee telework and the return-to-work notification process. TIGTA, Ref. No. 2021-IE-R002, The
Internal Revenue Service Leveraged Its Telework Program to Continue Operations During the Coronavirus Disease
Pandemic (Mar. 2021).
6 OPM, CPM 2020-02, Human Resources Flexibilities Available for Federal Employees Impacted by the 2019 Novel
Coronavirus (February 7, 2020).
7 These flexibilities fall within three categories, including leave and other time off, e.g., weather and safety leave, sick
leave for general family care, and family and medical leave; work schedule flexibilities, e.g., telework and alternative
work schedules; and hiring and pay flexibilities, e.g., emergency critical hiring and pay flexibilities.
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Interim Report – IRS COVID-19 Response Timeline and Policies
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eligible employees who have a higher risk for serious complications from COVID-19.8 Further,
agencies could grant weather and safety leave to higher-risk employees who are not
telework-eligible. The OMB also encouraged agencies, in consultation with the CDC and local
public health officials, to consider extending telework flexibilities to all telework-eligible
employees in areas of community transmission, taking into account State and local responses to
the outbreak and the mission-essential nature of the employees’ work. On March 14, 2020, the
first case of an IRS employee testing COVID-19 positive was reported.9
In response to the pandemic and resulting State stay-at-home orders, the IRS began closing its
facilities on March 16, 2020. On March 20, 2020, the Fresno Submission Processing Center
became the first submission processing center to close. The Austin and Kansas City Submission
Processing Centers closed shortly thereafter on March 26, 2020.
On March 30, 2020, the IRS directed all employees with portable work to evacuate worksites and
work from home or an alternate location, effectively closing most IRS facilities, though some
employees continued to report to certain locations to perform mission-essential work. As a
result of the directive, building access at all facilities was restricted to only those picking up
assigned work or items necessary to complete assigned work remotely, and to those performing
functions required to continue during a national emergency that could be performed only
on-site. Employees who were unable to work from home or whose work could not be
conducted off-site were allowed to take weather and safety leave. Shortly after the IRS directive,
the remaining Submission Processing Center in Ogden, Utah, closed on April 6, 2020. In
April and May of 2020, the IRS reported that fewer than 3,000 of the IRS’s more than
81,000 employees reported working from an IRS facility for a full week.10
Figure 1 provides a timeline of significant events related to the COVID-19 pandemic during the
period of January through April 2020, such as policy changes, health and safety incidents, and
facility closures.11
8 OMB, Memorandum M-20-13, Updated Guidance on Telework Flexibilities in Response to Coronavirus
(March 12, 2020).
9 Prior to March 14, 2020, IRS employees reported having flu-like symptoms; however, no reference was made to
COVID-19 in the IRS’s system used to capture infectious disease cases.
10 See Appendix II for a summary of IRS employees reporting to IRS facilities for a full week.
11 See Appendix III for additional information on IRS facility closures.
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Interim Report – IRS COVID-19 Response Timeline and Policies
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Figure 1: Timeline of COVID-19 Related Events
(January to April 2020)
Source: TIGTA-generated chart based on Federal and IRS guidance, IRS data concerning facility closures
and employees testing positive for COVID-19, and significant pandemic-related events.
On April 20, 2020, the OMB issued Memorandum M-20-23, which envisioned Federal agencies
adhering to a “Federally supported, State managed, and locally executed model” of returning to
normal operations, delineated by a three-phase process dictated by State and local authorities.12
As State and local governments began lifting restrictions, the IRS was also aware of the needs of
12 OMB, Memorandum M-20-23, Aligning Federal Agency Operations with the National Guidelines for Opening Up
America Again (April 20, 2020).
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Interim Report – IRS COVID-19 Response Timeline and Policies
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taxpayers and the increasing backlog of work. On April 27, 2020, the IRS began the process of
recalling employees to its facilities in phases, beginning with voluntary recalls to select facilities
and later announcing facility reopenings in the following locations for mission-essential and
nonportable work:
•
June 1: Kentucky, Texas, and Utah
•
June 15: Georgia, Michigan, Missouri, and Tennessee
•
June 29: California, Indiana, Ohio, Oregon, and Puerto Rico
•
July 13: All remaining States
The final determination to focus on reopening submission processing centers and call center
operations was made by the IRS Commissioner, Deputy Commissioners, and the Executive
Steering Committee. According to the IRS, the Department of the Treasury was briefed on its
reopening strategy; who then reported to the OMB. As of February 26, 2021, no IRS facilities are
open for normal operations; however, the IRS reports that all of its facilities have been open to
mission-essential functions and nonportable work since July 13, 2020.13
Since reopening IRS facilities across the country for limited operations, the number of
IRS employees who reported testing positive for COVID-19 has increased. As of
February 28, 2021, 3,404 IRS employees reported testing positive for COVID-19. However, not
all employees who test positive for COVID-19 are a risk for transmitting the disease to
other employees. Employees who have reported to an IRS facility during the 14 days preceding
a positive test result for COVID-19 are considered to be at risk of exposing other employees. As
of February 28, 2021, 1,519 (45 percent) of the 3,404 IRS employees who reported testing
positive for COVID-19 were determined to pose a transmission risk to other IRS employees.
Overall, the transmission risk has increased with the reopenings and mission-essential
employees returning to work on-site. Nonetheless, the majority of employees who reported
testing positive for COVID-19 over the one-year period are those who have not been in the
office within 14 days and are either teleworking or are on weather and safety leave.
Figure 2 illustrates the monthly number of IRS employees reporting as testing positive for
COVID-19 and, of those, the number who posed a transmission risk to other IRS employees.
13 Since July 13, 2020, several facilities have closed for short periods of time for cleanings due to COVID-19. In
addition, other facilities have closed for other reasons, e.g., weather related.
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Interim Report – IRS COVID-19 Response Timeline and Policies
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Figure 2: IRS Employees With COVID-19 and Those That
Presented a Transmission Risk by Month
Source: IRS Senior Commissioner Representative’s Office.14
Figure 3 provides a timeline of significant events related to the COVID-19 pandemic during the
period of April through February 2021, such as facility reopenings, health and safety incidents,
and policy changes.
14 We did not validate these data and provided this information for perspective on the overall transmission risk.
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Interim Report – IRS COVID-19 Response Timeline and Policies
to Protect Employee Health and Safety
Figure 3: Timeline of COVID-19 Related Events
(April 2020 to February 2021)15
Source: TIGTA-generated chart based on Federal and IRS guidance, IRS data concerning facility
reopenings and employees testing positive for COVID-19, and significant pandemic-related events.
IRS policies and procedures generally align with Federal guidelines and best practices
As part of its efforts to quickly inform and protect employees during the early stages of the
COVID-19 pandemic, the IRS made Federal guidance available to all employees, in addition to
developing and issuing its own internal guidance. The IRS’s internal guidance generally aligned
15 As part of its subsequent report, TIGTA plans to provide information on more recently issued guidance.
April 16
The White House issued Opening Up America Again
April 8
The CDC issued Interim Guidance for Implementing
Safety Practices for Critical Infrastructure Workers
Who May Have Had Exposure to a Person with
Suspected or Confirmed COVID-19
April 27
The IRS began recalling employees on a voluntary basis
July 15
Deadline to file taxes for Tax Year 2019
July 13
As of this date, 366 employees reported testing
positive for COVID-19 and all facilities have re-
opened to mission essential functions and non-
portable work
April 28
The CDC issued Reopening Guidance for
Cleaning and Disinfecting Public Spaces,
Workplaces, Businesses, Schools, and Homes
May 31
As of this date, 154 employees reported testing
positive for COVID-19
June 15
Kansas City Submission Processing Center reopens
June 29
Fresno Submission Processing Center reopens
COVID-19 Federal Guidance
and Significant Events
IRS Response and
Significant Events
February 28
As of this date, 3,404 employees reported
testing positive for COVID-19
April 20
The OMB issued Aligning Federal Agency
Operations with the National Guidelines for
Opening Up America Again and the CDC issued
Operational Considerations for Personal Protective
Equipment in the Context of Global Supply
Shortages for Coronavirus Disease 2019 (COVID-
19) Pandemic: Non-US Healthcare Settings
June 1
Austin and Ogden Submission Processing Centers
reopen to employees with mission essential functions
and non-portable work
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to Protect Employee Health and Safety
with Federal guidance and best practices issued by the OPM, the CDC, the Government
Accountability Office (GAO), and other Federal authorities.16 The next sections of this report
provide examples of guidance developed and actions taken by the IRS in alignment with Federal
guidelines and best practices.
Employee health and wellness guidance
On February 3, 2020, the OPM issued guidance instructing agencies to remind employees to use
good health habits, such as handwashing, and to encourage sick employees to seek medical
treatment and use sick leave.17 In addition, the CDC and other Federal agencies began
providing guidance and recommendations to ensure the health and safety of all individuals. In
response, the IRS disseminated COVID-19 related guidance, including digital and print materials
that could be displayed in IRS facilities. This guidance covered topics such as:
•
Face coverings: On April 3, 2020, the CDC recommended the use of face masks. The
CDC has also identified how to select; make; and properly wear, store, and wash cloth
face coverings.18 The IRS requires all employees to wear face masks while in IRS facilities,
excluding those with an approved reasonable accommodation. IRS guidance also
requires that employee face masks meet CDC guidelines and may not have exhalation
valves or vents.19 On April 27, 2020, the IRS began providing its returning employees
with face masks. Employees are also able to wear their own face masks if the mask
meets CDC requirements and covers their nose and mouth.
•
Social distancing: The CDC recommended social distancing, which is defined as
keeping a safe space of six feet or more between individuals who are not from the same
household.20 The IRS directed employees to practice social distancing by keeping six
feet apart from others.21 According to the IRS, workspaces were also modified and
layout recommendations were discussed and implemented for many work groups to
ensure that the recommended social distancing requirements were met.
•
Workplace safety for self and others: In an effort to prevent and reduce COVID-19
transmission, the CDC recommended employers encourage employees to avoid touching
their eyes, nose, and mouth; avoid using other employees’ equipment, such as
telephones or desks; and remain home if they are sick. The CDC further recommended
routinely cleaning and disinfecting all high-touch surfaces in a workspace, including
workstations, keyboards, telephones, handrails, and doorknobs before and after use. The
CDC also encouraged employers to assign vulnerable employees duties that minimized
their contact with others.22 The IRS similarly directed employees to stay home if sick,
16 TIGTA did not directly observe the implementation of these guidelines and best practices at IRS facilities
as part of our review. We instead reviewed the IRS’s documented guidelines and best practices, decision-making,
and communications.
17 OPM, CPM 2020-01, 2019 Novel Coronavirus (February 3, 2020).
18 CDC, Use Masks to Slow the Spread of COVID-19 (updated December 21, 2020). The CDC has continuously
updated its COVID-19 guidance. If an updated version was reviewed, it is noted in the footnotes and Appendix IV.
19 IRS, Required cloth face coverings (May 12, 2020).
20 CDC, Social Distancing (updated November 17, 2020).
21 IRS, Document 13376, Keep Your Distance, Staying Safe (May 2020).
22 CDC, Interim Guidance for Businesses and Employers Responding to Coronavirus Disease 2019 (COVID-19)
(updated May 6, 2020). CDC, How to Protect Yourself and Others (updated December 31, 2020).
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avoid touching their faces or high touch surfaces, avoid contact with others, clean
workspaces before and after use, and clean and disinfect frequently touched objects and
surfaces.23 In addition, the IRS created the COVID-19 Exposure and Return to Work
Decision Matrix to assist employees with determining when it is appropriate to return to
work.24
•
Handwashing: The CDC recommended washing hands often with soap and water for at
least 20 seconds, especially after being in a public place, blowing one’s nose, coughing,
or sneezing.25 The CDC noted if soap and water is not readily available, hand sanitizer
containing at least 60 percent alcohol could be substituted by covering all surfaces of the
hands and rubbing them together until dry. The IRS provided similar guidance
instructing employees to wash their hands with water and soap for at least 20 seconds,
scrub all parts of the hands before rinsing, and dry well.26 Employees were also provided
with hand sanitizer.
•
COVID-19 screening questions: The CDC developed a COVID-19 self-screening tool
for access to its facilities, which was made available for use by any entity. The tool asked
employees to answer a series of questions to determine if an employee has experienced
COVID-19 symptoms, been in close physical contact with someone likely to have
COVID-19, is currently isolating or quarantining, or is awaiting the results of a COVID-19
test.27 If an employee answers “yes” to any of the questions, then they should not enter
a CDC facility. The IRS used a similar COVID-19 screening process for its employees. As
part of the screening, the employee is asked if they are experiencing any COVID-19
symptoms, if they have been in close physical contact with a person confirmed to have
COVID-19 within the last 14 days, or if they have received instructions from a health care
authority to self-observe, self-isolate, or self-quarantine in the last 14 days. If an
employee answers “yes” to any of the questions, they should not enter an IRS facility.28
Facilities guidance
On April 20, 2020, the OMB issued guidance envisioning Federal agencies returning to normal
operations, delineated by a three-phase process dictated by State and local authorities.29 The
CDC also issued detailed guidance for cleaning facilities.30 As part of its guidance, the CDC
provided instructions on how to sanitize a facility and a list of approved disinfectants for use
against COVID-19. The CDC also urged employers to practice routine cleanings of high-touch
surfaces, encouraging more frequent cleanings of areas based on level of use. In the event that
an individual infected with COVID-19 has been in a facility, the CDC recommended the closure
23 IRS, Document 13376, Keep Your Distance, Staying Safe (May 2020). IRS, Document 13376-C,10 Reminders To Keep
You and Others Safe (June 2020).
24 IRS, COVID-19 Exposure and Return to Work Decision Matrix (August 28, 2020).
25 CDC, How to Protect Yourself and Others (updated December 31, 2020).
26 IRS, Document 13376, Keep Your Distance, Staying Safe (May 2020). IRS, Document 13372-B, Hygiene How-To
Wash Hands (May 2020).
27 CDC, CDC Facilities COVID-19 Screening (November 12, 2020).
28 IRS, Document 13372-A, COVID-19 Screening Questions (May 2020).
29 OMB, Memorandum M-20-23, Aligning Federal Agency Operations with the National Guidelines for Opening Up
America Again (April 20, 2020).
30 CDC, Reopening Guidance for Cleaning and Disinfecting Public Spaces, Workplaces, Businesses, Schools, and
Homes (updated May 7, 2020).
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of that portion of the facility, if possible, waiting 24 hours to clean it, and then reopening the
portion of the facility once it has been cleaned.31
To ensure employee safety upon returning to IRS facilities, the IRS modified janitorial contracts
to include enhanced daily cleaning procedures and the use of specific CDC disinfecting
products. This included the use of disinfectants on common or frequently touched hard
surfaces, e.g., handrails, entryways, breakrooms, and bathroom facilities. While janitors are not
required to clean individual employee work desks, or personal equipment such as telephones,
computers, keyboards, mouse, printers, or copiers, employees were encouraged to wipe down
their workstations at the beginning and end of each shift. Employees were provided with
disinfectant wipes, as available, to allow them to do so.
Interim guidance from the CDC also identified strategies and recommendations for employers
seeking to safely resume normal or phased business operations, which included improving
building ventilation systems.32 At this time, no IRS-wide air sanitization program is planned.
However, according to the IRS, there are many different types of air handling systems in
IRS facilities that use appropriate filters to prevent respiratory droplet contamination. Efforts
were also made to increase the amount of fresh air introduced into IRS facilities, when possible.
Telework and leave guidance
On February 3, 2020, the OPM issued guidance instructing agencies to consider implementing
social distancing, including the use of telework.33 The OPM issued additional guidance on
February 7, 2020, outlining human resource flexibilities and authorities available to assist
employees and agencies in dealing with COVID-19, or other quarantinable communicable
diseases, by maximizing telework, administrative leave, and other work-related flexibilities.34 On
February 18, 2020, the IRS issued guidance which granted telework and leave flexibilities.35
In addition, in its March 12, 2020, guidance, the OMB encouraged all Federal Executive Branch
departments and agencies to take full advantage of telework flexibilities for telework-eligible
employees who have a higher risk for serious complications from COVID-19.36 Agencies were
also encouraged, in certain circumstances, to extend telework flexibilities more broadly to all
eligible teleworkers in areas with community spread, or to better accommodate State and local
responses to the COVID-19 outbreak, such as school closures. Further, the OMB stated
that weather and safety leave could be granted to higher-risk employees who are not
telework-eligible.
31 CDC, Cleaning and Disinfecting Your Facility (October 10, 2020). CDC, Cleaning and Disinfection for Community
Facilities (updated May 27, 2020).
32 CDC, Implementing Safety Practices for Critical Infrastructure Workers Who May Have Had Exposure to a Person
with Suspected or Confirmed COVID-19 (updated April 20, 2020). CDC, Interim Guidance for Businesses and
Employers Responding to Coronavirus Disease 2019 (COVID-19) (updated May 6, 2020). CDC, COVID-19 Employer
Information for Office Buildings (October 29, 2020).
33 OPM, CPM 2020-01, 2019 Novel Coronavirus (February 3, 2020).
34 OPM, CPM 2020-02, Human Resources Flexibilities Available for Federal Employees Impacted by the 2019 Novel
Coronavirus (February 7, 2020).
35 IRS, HR Flexibilities available for employees affected by the 2019 coronavirus and other quarantinable
communicable diseases (February 18, 2020).
36 OMB, Memorandum M-20-13, Updated Guidance on Telework Flexibilities in Response to Coronavirus
(March 12, 2020).
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In response to the growing health concerns and telework flexibilities granted by the OPM and
encouraged by the OMB, in March of 2020, the IRS began shifting significant portions of its
workforce to telework, when possible, or weather and safety leave. For the week ending
March 21, 2020, IRS internal data indicate almost 55,000 employees worked in an IRS facility. By
the week ending April 18, 2020, approximately 5,200 employees reported to an IRS facility;
however, less than 1,000 employees spent a full week in an IRS facility. The vast majority of the
remaining IRS employees were teleworking or on weather and safety leave.
Travel guidance
On March 3, 2020, the OPM issued guidance stating, "all agencies shall review their travel
policies and begin to reduce non-essential travel as appropriate.”37 The OPM also advised
employees planning domestic travel to routinely check the CDC’s website for updated
information related to travel during COVID-19 and take into consideration the location and
purpose of their travel. Shortly thereafter, the IRS Commissioner informed employees that the
IRS was limiting all non-essential travel for 30 days effective March 9, 2020. On April 14, 2020,
the IRS stated that employees should speak with their supervisors about all business-related
travel and recommended that only mission-critical travel be performed.38
Communication with employees
On June 25, 2020, the GAO testified about several key considerations agencies should
contemplate when deciding the best and safest way to return employees to the workplace. One
such consideration was continuous communications with employees.39 Throughout the
pandemic, the IRS has used numerous methods to communicate with its employees, including
town hall meetings, internal and external IRS COVID-19 websites, e-mails and text messages,
and an emergency employee hotline. The IRS also held regular leadership meetings and
administered pulse surveys to receive feedback from employees on various topics.
Town hall meetings
The IRS held town hall meetings with each business unit, which included updates related to the
COVID-19 pandemic. For example, during an August 6, 2020, town hall meeting, IRS officials
urged employees to be mindful of wearing masks and social distancing. They discussed
following IRS, Department of the Treasury, and OPM guidance, reminding employees that the
most up-to-date guidance could be found on the IRS website. IRS officials also discussed
what business units could expect from the IRS in terms of future communications regarding
COVID-19.
37 OPM, CPM 2020-04, Preliminary Guidance to Agencies during Coronavirus Disease 2019 (COVID-19)
(March 3, 2020).
38 IRS, Employees who frequently travel for job duties (April 14, 2020).
39 GAO, GAO-20-650T, Federal Workforce: Key Considerations for Agencies Returning Employees to Workplaces
During Pandemics (June 25, 2020).
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Internal and external IRS COVID-19 websites
The IRS created and frequently updates an internal COVID-19 website that is available to
employees on the IRS intranet. The information published on this website covers topics related
to the pandemic, e.g., general COVID-19 information; incident reporting; facilities; pay, leave,
and benefits; employee health and wellness; returning to normal operations; information
technology; telework; timekeeping; and travel. Information is provided externally on the IRS.gov
employee emergency page for employees who are on weather and safety leave and do not have
access to an IRS computer.40
E-mails and text messaging
The IRS used e-mails and texts to share information between managers or leadership and their
employees. For example, the IRS publishes two e-newsletters, Leaders’ Alert and IRS Headlines,
which are available on the IRS intranet and disseminated to employees via e-mail, and sends
notifications to employees via the AtHoc Emergency Alert Notification System.
•
The Leaders’ Alert is a weekly e-newsletter for IRS executives, managers, and
management officials. During the pandemic, Leaders’ Alerts were sent to all managers
and management officials, initially daily and then twice weekly, and included policy
changes, such as telework allowances.
•
IRS Headlines is a weekly e-newsletter for all IRS employees. COVID-19 information was
disseminated as part of IRS Headlines, which were sent out almost daily to all employees
with IRS e-mail addresses and listed any changes to COVID-19 related policies or
procedures for employees.
•
The IRS’s AtHoc Emergency Alert Notification System provides emergency alerts to
employees via text, e-mail, computer notification, or mobile phone application. This
System has been used during the COVID-19 pandemic as a forum to quickly disseminate
information to employees. All Non-Bargaining Unit employees are required, and
Bargaining Unit employees strongly encouraged, to include personal contact information
in the AtHoc Emergency Alert Notification System, which allows them to receive
notifications.
IRS Emergency Hotline
IRS employees can call the IRS Emergency Hotline, which is a system that provides employees
with building operating statuses, including when a facility’s operating status is affected by
COVID-19-related events.
Executive Steering Committee meetings
The IRS held Executive Steering Committee meetings with the heads of each business unit daily
at the beginning of the COVID-19 pandemic, and then on a weekly basis. Decision-making and
topics of discussion included closing and reopening facilities, employee health and safety,
weather and safety leave, telework, and other human resource flexibilities. Based on our review
of Executive Steering Committee meeting minutes, significant coordination efforts occurred with
the Department of the Treasury and other Federal agencies, including the OPM, the CDC, the
GAO, and other Federal authorities, to ensure compliance with, and consistent application of,
40 The information posted to the external website changes over time.
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to Protect Employee Health and Safety
Federal guidance and best practices. In addition, IRS officials consulted with the National
Treasury Employees Union on the IRS’s decision-making and guidance.
Pulse surveys
The IRS has administered pulse surveys to receive feedback from employees on various topics
during the COVID-19 pandemic. Initially, these surveys included questions about how
employees were feeling on a scale of one to five, whether employees were receiving adequate
communication from their supervisors, and whether employees felt comfortable returning to an
IRS facility. The IRS Human Capital Office reviewed feedback from these surveys, disseminated
results to individual IRS business units, and made recommendations for improvement based on
survey results over time. For example, the Human Capital Office recommended increasing
senior level communications to enhance morale and reinforcing guidance to improve the
wearing of face coverings correctly. As time progressed, survey questions were added to
gather more in-depth feedback and assist IRS leadership in better understanding how to
support its employees.
As of the writing of this report, the IRS was continuing to administer surveys to obtain feedback
from employees. We will continue to review the IRS’s actions to protect the health and safety of
its employees, such as obtaining feedback from employees through pulse surveys, and provide
updated information in a subsequent report to be issued later this fiscal year. For more
information on TIGTA’s work concerning other pandemic-related issues, such as IRS efforts to
issue Economic Impact Payments and the impact of the pandemic on the 2020 Filing Season,
please visit TIGTA’s website at https://www.treasury.gov/tigta.
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Interim Report – IRS COVID-19 Response Timeline and Policies
to Protect Employee Health and Safety
Appendix I
Detailed Objective, Scope, and Methodology
Our overall objective was to evaluate the actions the IRS has taken to protect the health and
safety of its employees during the COVID-19 pandemic.1 2 To accomplish our objective, we:
•
Identified Federal guidelines issued by the CDC, the OMB, and the OPM, as well as best
practices issued by the GAO, for protecting employees during pandemics.3
•
Assembled a timeline of facility closures, reopenings, health and safety incidents, policy
changes, and other significant events.
•
Compared Federal guidelines and best practices for protecting employees during
pandemics with corresponding IRS guidelines.
Performance of This Review
This review was performed with information obtained from Facilities Management and Security
Services and Human Capital Office offices located in Washington, D.C.; Atlanta, Georgia;
Indianapolis, Indiana; Traverse City, Michigan; and Richmond, Virginia, during the period August
through November 2020. We conducted this performance audit in accordance with generally
accepted government auditing standards. Those standards require that we plan and perform
the audit to obtain sufficient, appropriate evidence to provide a reasonable basis for our
findings and conclusions based on our audit objective. We believe that the evidence obtained
provides a reasonable basis for our findings and conclusions based on our audit objective.
Major contributors to the report were Heather Hill, Assistant Inspector General for Audit
(Management Services and Exempt Organizations); Troy Paterson, Director; Lindsay Steward,
Audit Manager; Trisa Brewer, Lead Auditor; Meghann Noon-Miller, Senior Auditor; Frank Rivers,
Auditor; and John Elder, Information Technology Specialist (Data Analytics).
Internal Controls Methodology
Internal controls relate to management’s plans, methods, and procedures used to meet their
mission, goals, and objectives. Internal controls include the processes and procedures for
planning, organizing, directing, and controlling program operations. They include the systems
for measuring, reporting, and monitoring program performance. We determined that the
following internal controls were relevant to our audit objective: IRS policies and procedures
related to the protection of the health and safety of its employees during the COVID-19
1 TIGTA plans to issue a subsequent report later in Fiscal Year 2021 that will provide updates to the information in this
report, as well as additional information on the IRS’s pandemic planning efforts.
2 This included obtaining information on the number of IRS employees reporting testing positive for COVID-19, the
percentage of employees posing a transmission risk, the number of employees reporting to an IRS facility for a full
week, the number of employees charging time to telecommuting or weather and safety leave for a week, and facility
closures and reopenings. These data are presented in this report for informational purposes and were not
independently validated.
3 See Appendix IV for a list of Federal guidelines and best practices.
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Interim Report – IRS COVID-19 Response Timeline and Policies
to Protect Employee Health and Safety
pandemic. We evaluated these controls by comparing the IRS’s guidance with Federal
guidelines and best practices for the prevention of the spread of COVID-19.
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Interim Report – IRS COVID-19 Response Timeline and Policies
to Protect Employee Health and Safety
Appendix II
Employees Reporting to an Internal
Revenue Service Facility for a Full Week
Week Ending Date
IRS Employees in
an IRS Facility for
a Full Week1
Week Ending Date
IRS Employees in
an IRS Facility for
a Full Week
March 21, 2020
26,565
July 25, 2020
10,303
March 28, 2020
3,740
August 1, 2020
10,154
April 4, 2020
2,246
August 8, 2020
9,739
April 11, 2020
1,028
August 15, 2020
10,034
April 18, 2020
757
August 22, 2020
10,067
April 25, 2020
795
August 29, 2020
10,108
May 2, 2020
1,831
September 5, 2020
9,787
May 9, 2020
1,727
September 12, 2020
9,599
May 16, 2020
2,394
September 19, 2020
9,600
May 23, 2020
2,444
September 26, 2020
9,374
May 30, 20202
2,551
October 3, 2020
9,680
June 6, 2020
5,891
October 10, 2020
9,698
June 13, 2020
5,887
October 17, 2020
10,916
June 20, 2020
7,867
October 24, 2020
10,898
June 27, 2020
8,001
October 31, 2020
12,042
July 4, 2020
9,165
November 7, 2020
11,549
July 11, 2020
8,809
November 14, 2020
10,795
July 18, 2020
10,387
November 21, 2020
11,008
Source: IRS-provided data from the Treasury Integrated Management Information System.
TIGTA has not independently validated these data.
1 A full work week represents 30 or more hours.
2 When a week contains a Federal holiday, a full work week represents 24 or more hours. Federal holidays were
observed on May 25, 2020; July 3, 2020; September 7, 2020; October 12, 2020; and November 11, 2020.
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Interim Report – IRS COVID-19 Response Timeline and Policies
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Appendix III
Internal Revenue Service Facility Closures1
As of Date
Closed
March 17, 2020
9
March 27, 2020
68
April 2, 2020
400
April 10, 2020
480
April 25, 2020
477
May 8, 2020
477
May 22, 2020
511
As of Date
Closed With
Limited Access
Closed With
No Access
Open for Mission-Essential
Functions and Nonportable Work
Open for Normal
Operations2
June 5, 2020
444
3
64
0
June 20, 2020
395
0
116
0
July 2, 2020
316
0
195
0
July 17, 2020
0
2
509
0
July 31, 2020
0
3
508
0
August 14, 2020
0
1
510
0
August 28, 2020
0
8
503
0
September 11, 2020
0
1
510
0
September 18, 2020
0
3
508
0
September 25, 2020
0
3
509
0
October 2, 2020
0
2
510
0
October 9, 2020
0
4
508
0
October 16, 2020
0
1
511
0
October 23, 2020
0
1
503
0
October 30, 2020
0
5
499
0
November 6, 2020
0
13
503
0
November 13, 2020
0
1
503
0
November 20, 2020
0
2
502
0
November 27, 2020
0
2
502
0
November 30, 2020
0
3
501
0
Source: Daily IRS e-mails to the Department of the Treasury. TIGTA has not independently validated
these data.
1 The total count of IRS facilities changed during the pandemic. As of November 30, 2020, the IRS had 504 facilities
whose status it reported daily to the Department of the Treasury.
2 On June 5, 2020, the IRS began reporting facility status using four categories. Prior to June 5, 2020, it only
presented the number of closed IRS facilities.
3 With the exception of building closures in Maitland, Florida, from October 28 through 30; Brockton, Massachusetts,
on November 19; and Texarkana, Arkansas, on November 27 for cleaning and sanitation in accordance with
CDC guidelines, the remaining office closures (closed with no access) from July 17, 2020, onward are not associated
with COVID-19.
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Interim Report – IRS COVID-19 Response Timeline and Policies
to Protect Employee Health and Safety
Appendix IV
Federal Guidelines and Best Practices
Centers for Disease Control and Prevention1
•
CDC Facilities COVID-19 Screening (November 12, 2020)
•
Cleaning and Disinfecting Your Facility (October 10, 2020)
•
Cleaning and Disinfection for Community Facilities (updated May 27, 2020)
•
COVID-19 Associated Hospitalization Related to Underlying Medical Conditions
(August 8, 2020)
•
COVID-19 Critical Infrastructure Sector Response Planning (updated November 16, 2020)
•
COVID-19 Employer Information for Office Buildings (updated October 29, 2020)
•
Frequently Asked Questions (updated November 20, 2020)
•
General Business Frequently Asked Questions (updated July 11, 2020)
•
Guidance for Reopening Buildings After Prolonged Shutdown or Reduced Operation (updated
September 22, 2020)
•
How to Protect Yourself and Others (updated December 31, 2020)
•
Implementing Safety Practices for Critical Infrastructure Workers Who May Have Had Exposure
to a Person with Suspected or Confirmed COVID-19 (updated April 20, 2020)
•
Interim Guidance for Businesses and Employers Responding to Coronavirus Disease 2019
(COVID-19) (updated May 6, 2020)
•
Interim Guidance for Discontinuation of Isolation for Persons with COVID-19 Not in Healthcare
Settings (updated July 20, 2020)
•
Operational Considerations for Personal Protective Equipment in the Context of Global Supply
Shortages for Coronavirus Disease 2019 (COVID-19) Pandemic: Non-US Healthcare Settings
(updated November 19, 2020)
•
Public Health Guidance for Community-Related Exposure (updated November 16, 2020)
•
Reopening Guidance for Cleaning and Disinfecting Public Spaces, Workplaces, Businesses,
Schools, and Homes (updated May 7, 2020)
•
Resuming Business Toolkit (May 27, 2020)
•
Social Distancing (updated November 17, 2020)
•
Use Masks to Slow the Spread of COVID-19 (updated December 21, 2020)
Government Accountability Office
•
GAO-20-650T, Federal Workforce: Key Considerations for Agencies Returning Employees to
Workplaces During Pandemics (June 25, 2020)
1 The CDC has continuously updated its COVID-19 guidance. The dates shown in this appendix are the original
issuance dates unless otherwise noted. If an updated version was reviewed, we noted the date the guidance was
revised.
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Interim Report – IRS COVID-19 Response Timeline and Policies
to Protect Employee Health and Safety
Office of Management and Budget
•
M-20-13, Updated Guidance on Telework Flexibilities in Response to Coronavirus
(March 12, 2020)
•
M-20-14, Updated Federal Travel Guidance in Response to Coronavirus (March 14, 2020)
•
M-20-15, Updated Guidance for the National Capital Region on Telework Flexibilities in
Response to Coronavirus (March 15, 2020)
•
M-20-16, Federal Agency Operational Alignment to Slow the Spread of Coronavirus COVID-19
(March 17, 2020)
•
M-20-18, Managing Federal Contract Performance Issues Associated with the Novel
Coronavirus (COVID-19) (March 20, 2020)
•
M-20-19, Harnessing Technology to Support Mission Continuity (March 22, 2020)
•
M-20-23, Aligning Federal Agency Operations with the National Guidelines for Opening Up
America Again (April 20, 2020)
Office of Personnel Management
•
Annual Leave and Other Paid Time Off Guidance (June 18, 2020)
•
CPM 2020-01, 2019 Novel Coronavirus (February 3, 2020)
•
CPM 2020-02, Human Resources Flexibilities Available for Federal Employees Impacted by the
2019 Novel Coronavirus (February 7, 2020)
•
CPM 2020-04, Preliminary Guidance to Agencies during Coronavirus Disease 2019 (COVID-19)
(March 3, 2020)
•
CPM 2020-05, Coronavirus Disease 2019 (COVID-19): Additional Guidance (March 7, 2020)
Occupational Safety and Health Administration
•
OSHA 3990-03 2020, Guidance on Preparing Workplaces for COVID-19 (March 9, 2020)
•
OSHA 4045-06 2020, Guidance on Returning to Work (June 17, 2020)
The White House
•
Opening Up America Again (April 16, 2020)
Source: TIGTA-generated chart based on Federal guidelines and best practices considered as part of
this review.
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Interim Report – IRS COVID-19 Response Timeline and Policies
to Protect Employee Health and Safety
Appendix V
Glossary of Terms
Term
Definition
Call Center Operations
Call centers are distributed all over the country and reside at more than
25 sites, including all 10 campuses.
Filing Season
The period from January through mid-April when most individual income
tax returns are filed.
National Treasury
Employees Union
According to its website, the National Treasury Employees Union is the
Nation’s largest independent union of Federal employees, representing
150,000 workers in 33 departments and agencies (including the IRS and
other bureaus of the Department of the Treasury). It represents the Federal
workforce in the courts, at the bargaining table, and in the media.
Pandemic
A pandemic is the worldwide spread of a new disease.
Pulse Survey
A tool management used to obtain real-time employee responses and
identify issues for immediate resolution.
Submission Processing
Center
Submission processing centers receive, process, and archive tax information
returns, issue tax notices, process refunds, and account for all tax revenues.
The IRS has four submission processing centers located in Fresno, California;
Kansas City, Missouri; Austin, Texas; and, Ogden, Utah.
Weather and Safety Leave
May be permitted when weather or other safety-related conditions prevent
employees from safely traveling or safely performing work at an approved
location, such as the official duty station or telework location.
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Interim Report – IRS COVID-19 Response Timeline and Policies
to Protect Employee Health and Safety
Appendix VI
Abbreviations
CDC
Centers for Disease Control and Prevention
COVID-19
Coronavirus Disease 2019
CPM
Compensation Policy Memorandum
GAO
Government Accountability Office
IRS
Internal Revenue Service
OMB
Office of Management and Budget
OPM
Office of Personnel Management
TIGTA
Treasury Inspector General for Tax Administration
To report fraud, waste, or abuse,
call our toll-free hotline at:
(800) 366-4484
By Web:
www.treasury.gov/tigta/
Or Write:
Treasury Inspector General for Tax Administration
P.O. Box 589
Ben Franklin Station
Washington, D.C. 20044-0589
Information you provide is confidential, and you may remain anonymous.File and source
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