COVID-19: Federal Telework Increased during the Pandemic, but More Reliable Data Are Needed (GAO-22-104282)
Summary
GAO-22-104282, a February 2022 report from the United States Government Accountability Office to congressional addressees, titled COVID-19: Federal Telework Increased during the Pandemic, but More Reliable Data Are Needed to Support Oversight. GAO reports that the Office of Personnel Management (OPM) has made limited progress addressing long-standing data issues, and that GAO collected telework information directly from 24 agencies. The report states that all 24 agencies increased their use of telework in response to the COVID-19 pandemic. It states that Congress should consider requiring OPM to set a deadline to develop an implementation plan to improve the reliability of information in its federal payroll data system.
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United States Government Accountability Office
Report to Congressional Addressees
COVID-19
February 2022
Federal Telework
Increased during the
Pandemic, but More
Reliable Data Are
Needed to Support
Oversight
GAO-22-104282
February 2022
COVID-19
Federal Telework Increased during the Pandemic, but
More Reliable Data Are Needed to Support Oversight
Highlights of GAO-22-104282, a report to
congressional addressees
Why GAO Did This Study What GAO Found
Federal agencies use telework to help The Office of Personnel Management (OPM) collects data on federal telework to
accomplish their missions and maintain report annually to Congress, but has made limited progress addressing long-
operations, especially during standing data issues. In 2016, GAO made four recommendations to OPM related
emergencies, such as the COVID-19 to improving the reliability of its federal payroll data system, including telework
pandemic. In March 2020, the Office of information. OPM agreed with the recommendations and has implemented one
Management and Budget instructed related to data standards. However, OPM has not developed a plan to address
agencies to maximize the use of the remaining three recommendations—consistently monitor error reports,
telework to allow federal employees to integrate payroll data into a larger suite of databases, and strengthen internal
remain safe while working from
control activities. Developing a plan to address these recommendations would
alternative locations and maintaining
better position OPM to improve its reporting of telework and provide more
mission critical workforce needs.
accurate and useful information to Congress.
The CARES Act includes a provision
for GAO to report on ongoing COVID- Given the issues with OPM’s data, GAO collected telework information directly
19 monitoring and oversight efforts. In from 24 agencies. These data initially had limitations so GAO followed up with
this report, GAO (1) assesses OPM’s each agency to clarify outliers and collect missing data. The data showed that all
progress in addressing telework data 24 agencies increased their use of telework in response to the COVID-19
limitations and describes federal pandemic. Pre-pandemic, in January 2020, 13 agencies reported at least a
agencies’ use of telework during the quarter of their employees teleworked to some degree. By April 2020, all 24
COVID-19 pandemic, and (2) agencies reported at least a quarter of employees teleworked, with nine agencies
describes actions agencies have taken reporting at least 90 percent of their employees teleworked. Similarly, by April
to address telework-related challenges through June 2020, more agencies had employees teleworking full-time. Pre-
identified during the COVID-19 pandemic, at nearly all 24 agencies, less than a quarter of teleworking
pandemic and considerations for future employees did so full time. During the pandemic, 14 agencies had at least a
operating postures. quarter of teleworking employees doing so full time.
For this report, GAO collected and Agencies described a range of telework-related challenges during the pandemic
analyzed telework data and related and tried to address them (see figure).
documents from 24 major federal
agencies from selected time periods
before and during the pandemic. GAO
also interviewed OPM and selected
agencies’ officials.
What GAO Recommends
Congress should consider requiring
OPM to set a deadline to develop an
implementation plan to improve the
reliability of information in its federal
payroll data system, Enterprise Human
Resources Integration, including
telework information. Agencies are considering future workplace changes that include modifications to
requirements to report regularly to an agency worksite. Additionally, agencies are
Nine of the 24 agencies provided
technical comments, which GAO
considering reducing facilities and infrastructure.
incorporated as appropriate. As agencies contemplate the future of work for millions of federal employees, it is
important for OPM to have accurate data on federal telework to support
View GAO-22-104282. For more information,
contact Alissa H. Czyz at (202) 512-6806 or
oversight. GAO reiterates the importance of having its recommendations
czyza@gao.gov. implemented promptly.
United States Government Accountability Office
Contents
Letter 1
Background 4
All Agencies Reported Increased Telework Use during the
COVID-19 Pandemic, but Long-standing Data Issues Persist 8
Agencies Took Steps to Try to Address Telework-Related
Challenges and Anticipate Future Workplace Changes 19
Conclusions 28
Matter for Congressional Consideration 29
Agency Comments 29
Appendix I Scope and Methodology 33
Appendix II Government-wide Telework-Related Guidance
Issued in Response to the COVID-19 Pandemic 36
Appendix III Comments from the U.S. Agency for International Development 41
Appendix IV Comments from the Social Security Administration 42
Appendix V GAO Contact and Staff Acknowledgments 43
Table
Table 1: Government-wide OMB and OPM Telework-Related
Guidance in Response to the COVID-19 Pandemic 39
Figures
Figure 1: Telework Hours as a Percentage of Total Work Hours
before and during the COVID-19 Pandemic 9
Figure 2: Proportion of Federal Employees Teleworking before
and during the COVID-19 Pandemic 12
Page i GAO-22-104282 Federal Telework
Figure 3: Percentage of Teleworkers with More than Half Their
Time in Telework Status, before and during the COVID-
19 Pandemic 14
Figure 4: Percentage of Teleworkers Who Teleworked Full-time,
before and during the COVID-19 Pandemic 16
Figure 5. Agencies Identified Challenges Related to Telework
during the COVID-19 Pandemic 19
Figure 6: Workplace Changes and Related Actions That Federal
Agencies Are Considering 25
Abbreviations
CDC Centers for Disease Control and Prevention
CFO Act Chief Financial Officers Act of 1990
COVID-19 Coronavirus Disease 2019
DHS Department of Homeland Security
DOD Department of Defense
DOE Department of Energy
DOT Department of Transportation
EPSLA Emergency Paid Sick Leave Act
EHRI Enterprise Human Resources Integration
GSA General Services Administration
HUD Department of Housing and Urban Development
NASA National Aeronautics and Space Administration
NSF National Science Foundation
OIG Office of Inspector General
OMB Office of Management and Budget
OPM Office of Personnel Management
SSA Social Security Administration
State Department of State
the act Telework Enhancement Act of 2010
USDA U.S. Department of Agriculture
VA Department of Veterans Affairs
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Page ii GAO-22-104282 Federal Telework
Letter
441 G St. N.W.
Washington, DC 20548
February 8, 2022
Congressional Addressees
Telework is an important human capital tool that federal agencies can
leverage to help accomplish their missions and serve the American
people, especially during times of emergency. Congress affirmed this
more than a decade ago with the Telework Enhancement Act of 2010 (the
act). The act required agencies to develop telework policies and the
Office of Personnel Management (OPM) to provide guidance and report
on telework use across the federal government.1 However, our prior work
has shown that OPM has faced challenges collecting and reporting
accurate federal government telework data to Congress and we
recommended that OPM address these challenges.2
In March 2020, in response to the Coronavirus Disease 2019 (COVID-19)
pandemic, the Office of Management and Budget (OMB) issued guidance
instructing agencies to maximize the use of telework to allow federal
employees to remain safe while working from alternative locations and
maintaining mission-critical workforce needs.3 Further, in November 2021,
OPM encouraged agencies to re-evaluate their telework policies and fully
1Pub. L. No. 111-292, 124 Stat. 3165 (2010), codified primarily at chapter 65 of title 5,
United States Code. The act defined telework as a work flexibility arrangement under
which an employee performs the duties and responsibilities of such employee’s position,
and other authorized activities, from an approved worksite other than the location from
which the employee would otherwise work.
2GAO, Federal Telework: Additional Controls Could Strengthen Telework Program
Compliance and Data Reporting, GAO-17-247 (Washington, D.C.: Feb. 17, 2017). We
recommended that OPM should strengthen controls for reviewing, validating, and
reporting telework data in annual Status of Telework in the Federal Government reports.
OPM did not concur with our recommendation. In September 2021, OPM officials told us
the agency continues to disagree with the recommendation. We continue to believe that
strengthening OPM’s controls would improve the quality of telework data for its reports to
Congress.
3Office of Management and Budget, Federal Agency Operational Alignment to Slow the
Spread of Coronavirus COVID-19, OMB Memorandum M-20-16 (Washington, D.C.:
2020).
Page 1 GAO-22-104282 Federal Telework
integrate telework into their culture based on experiences during the
pandemic.4
The CARES Act includes a provision for us to report on our ongoing
monitoring and oversight efforts related to the COVID-19 pandemic.5 This
report is part of our body of work in response to the CARES Act.6 It
focuses on the federal government’s use of telework in response to the
COVID-19 pandemic. In this report, we (1) describe federal agencies’ use
of telework during the COVID-19 pandemic and assess OPM’s progress
in addressing telework data limitations and (2) describe actions agencies
have taken to address telework-related challenges identified during the
COVID-19 pandemic and considerations for future operating postures.
To review agencies’ use of telework during the COVID-19 pandemic, we
collected and analyzed telework data and related documents from 24
major federal agencies from selected time periods before and during the
COVID-19 pandemic in 2019 (July through September 2019) and during
the pandemic in 2020 (January through March 2020, April through June
2020, and July through September 2020).7 For data on the hours spent
teleworking and the proportion of time teleworkers spent in telework
status, we used quarterly totals provided by the agencies. For data on the
proportion of employees’ teleworking, we use data for a single pay period
4Office of Personnel Management, 2021 Guide to Telework and Remote Work in the
Federal Government: Leveraging Telework and Remote Work in the Federal Government
to Better Meet Our Human Capital Needs and Improve Mission Delivery, (Nov. 12, 2021).
5Pub. L. No. 116-136, § 19010, 134 Stat. 281, 579-81 (2020).
6We regularly issue government-wide reports on the federal response to COVID-19. For
the latest report, see GAO, COVID-19: Significant Improvements Are Needed for
Overseeing Relief Funds and Leading Responses to Public Health Emergencies, GAO-
22-105291 (Washington, D.C.: Jan. 27, 2022). Our next government-wide report will be
issued in April 2022 and will be available on GAO’s website at
https://www.gao.gov/coronavirus.
7The 24 agencies are those identified in the Chief Financial Officers (CFO) Act of 1990, as
amended. 31 U.S.C. § 901. The 24 CFO Act agencies are the Departments of Agriculture,
Commerce, Defense, Education, Energy, Health and Human Services, Homeland
Security, Housing and Urban Development, Interior, Justice, Labor, State, Transportation,
Treasury, and Veterans Affairs; National Aeronautics and Space Administration;
Environmental Protection Agency; United States Agency for International Development;
General Services Administration; National Science Foundation; Nuclear Regulatory
Commission; Office of Personnel Management; Small Business Administration; and Social
Security Administration.
Page 2 GAO-22-104282 Federal Telework
at the beginning of each quarter.8 Individual agencies gathered and
reported these data on their civilian employees from a variety of systems,
which limits the precision and comparability of data across agencies. We
mitigated these limitations by reporting agency telework participation as
ranges and making broad comparisons across agencies. While we found
issues with agencies’ data, we determined the data, with the appropriate
discussion of limitations, were sufficiently reliable for describing agencies’
use of telework during the pandemic.9
To assess OPM’s progress in addressing telework data limitations, we
reviewed our previous work on telework data and related
recommendations. We also reviewed our key telework practices that
federal agencies should implement to help ensure successful telework
programs, as well as Standards for Internal Control in the Federal
Government, which calls for effective internal control systems that use
reliable internal and external data sources.10 We interviewed OPM
officials on their progress with implementing these recommendations and
discuss related data issues in this report. See appendix I for more details
on our data analysis.
To describe how agencies addressed challenges with telework use during
the COVID-19 pandemic and considerations for the future use of
telework, we collected and analyzed written responses from all 24
agencies on their challenges related to telework during the COVID-19
pandemic and actions taken to try to address these challenges, as well as
plans for agencies’ use of telework in the future. We also interviewed
three selected agencies—the U.S. Departments of Agriculture, Energy,
and the Social Security Administration—to obtain additional information
on challenges and actions taken to address those challenges during the
pandemic. We selected these agencies based on workforce size and pre-
8We use a pay period for this purpose because the number of employees at an agency is
subject to greater fluctuation over a full quarter.
9The following agencies could not report complete telework data in the format we
requested: NASA (excludes remote workers); the Departments of Justice (excludes
Federal Bureau of Investigation), Education (excludes Office of Inspector General (OIG)),
and State (excludes: overseas employees and contractors); Nuclear Regulatory
Commission (excludes OIG); and United States Agency for International Development
(excludes foreign service officers and contractors).
10GAO, Standards for Internal Control in the Federal Government, GAO-14-704G
(Washington, D.C.: Sept. 2014); and Human Capital: Further Guidance, Assistance, and
Coordination Can Improve Federal Telework Efforts, GAO-03-679 (Washington, D.C.: July
18, 2003).
Page 3 GAO-22-104282 Federal Telework
pandemic telework participation to obtain various perspectives on
telework.
For both objectives, we obtained additional information related to agency
use of telework during the COVID-19 pandemic from agency officials
within the 24 agencies both in writing and through interviews. To
characterize agency actions in response to telework challenges and
considerations of their future operating postures, we use the terms “nearly
all” to represent 21 to 24 agencies; “many” for 11 to 15 agencies; and
“several” for six to 10 agencies. For more detailed information on our
scope and methodology, see appendix I.
We conducted this performance audit from April 2020 to February 2022 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 objectives. We believe that
the evidence obtained provides a reasonable basis for our findings and
conclusions based on our audit objectives.
Background
The Telework Congress has encouraged federal agencies to expand federal employee
Enhancement Act of 2010 participation in telework most recently by passing the Telework
Enhancement Act of 2010.11 The act requires executive agencies to
and Our Prior Related
establish telework policies, incorporate telework into their respective
Work continuity of operations plans, ensure that employees have an approved
agreement on file prior to teleworking, and provide interactive telework
training to employees eligible to telework and managers of teleworkers.12
The act also assigns OPM leadership responsibilities including: (1)
providing policy and related guidance for telework in specified areas, (2)
assisting each agency in establishing appropriate qualitative and
quantitative measures and teleworking goals, (3) identifying best
11Prior to this act, the most significant congressional action related to telework was
included in a fiscal year 2001 appropriations provision. This provision required agencies to
establish policies under which eligible employees could participate in telework to the
maximum extent possible without diminished employee performance. OPM was tasked
with ensuring application of this requirement to an increasing percentage of the federal
workforce overtime. Pub. L. No. 106-346, Department of Transportation and Related
Agencies Appropriations, 2001, tit. III, § 359, 114 Stat. 1356, 1356A-36.
125 U.S.C. §§ 6502-6504.
Page 4 GAO-22-104282 Federal Telework
practices and recommendations for the federal government, and (4)
reviewing the outcomes associated with an increase in telework.13
The act also requires OPM to issue an annual report to Congress on the
status of telework in the federal government.14 Specifically, the act
requires OPM to report on, among other things, agencies’ goals related to
increasing participation in telework, whether or not the agencies met their
goals, and if not, what actions agencies are taking to identify and
eliminate barriers to maximizing telework opportunities. Since 2001, OPM
has surveyed executive agencies with an annual data call and reported to
Congress on the status of telework.15
In addition to the annual data call, OPM also maintains data on telework
use in its Enterprise Human Resources Integration (EHRI) system. EHRI
is OPM’s primary warehouse for data about federal employees. OPM
designed EHRI to leverage its existing IT infrastructure, staff, and tools to
integrate federal personnel, payroll, training, and retirement databases.16
The payroll database within EHRI provides information on how federal
employees allocate their time—reflected in hours charged to specific
categories of work and use of leave. This database contains fields for
telework data, which are potentially useful for assessment and
comparison of telework use across the government.
135 U.S.C. § 6504(b); Pub. L. No. 111-292, § 4, 124 Stat. at 3173.
14Specifically, OPM, in consultation with the Chief Human Capital Officers Council, is to
report to House and Senate oversight committees on the telework programs of each
executive agency. 5 U.S.C. § 6506(b).
15The conference report accompanying the fiscal year 2001 appropriations bill H.R. 4475,
which included the provision on telework, required OPM to report to Congress on the
effectiveness of the telework program within one year. H. Conf. Rep. No. 106-940, at 151
(2000).
16EHRI was developed following the electronic government initiative in 2001. This initiative
was aimed at using information technology to enhance the access to and delivery of
government information and service to citizens, business partners, and employees. It also
was designed to improve the internal efficiency and effectiveness of the federal
government.
Page 5 GAO-22-104282 Federal Telework
In 2012, we reported that OPM had been concerned about the reliability
of telework data it received from executive agencies through its annual
data call over the prior decade.17
In 2016, we found that several issues affected the reliability of the EHRI
payroll system, including the telework variables within the database. We
made five recommendations, including four to improve the reliability of the
data:18
update EHRI payroll database documentation to be consistent with
current field definitions and requirements, including the Guide to
Human Resources Reporting and the Guide to Data Standards, Part
B;
consistently monitor system-generated error and edit check reports
and ensure that timely action is taken to address identified issues (we
later designated this as a priority recommendation in a letter to OPM);
develop a schedule for executing plans to integrate the payroll data
into the larger suite of EHRI databases; and
evaluate existing internal control activities and develop new control
activities for EHRI payroll data, such as implementing transactional
edit checks that leverage the information in the other EHRI datasets.
OPM concurred with our recommendations and implemented the first of
the four listed above in 2019. As of December 2021, OPM had not
implemented the other three recommendations, which we discuss later in
this report.
Additionally in 2017, we found that OPM may be missing opportunities to
improve these data because it does not always follow up with agencies
on significant data differences or outliers. Also, the errors and invalid data
in OPM’s annual reports to Congress reduce the usefulness of these
reports. We recommended OPM strengthen controls for reviewing,
validating, and reporting telework data in annual Status of Telework in the
Federal Government reports.19 OPM continues to disagree with this
recommendation. In December 2021, OPM said it had not implemented
17GAO, Federal Telework: Program Measurement Continues to Confront Data Reliability
Issues, GAO-12-519 (Washington, D.C.: Apr. 19, 2012).
18GAO, Federal Human Resources Data, OPM Should Improve the Availability and
Reliability of Payroll Data to Support Accountability and Workforce Analytics, GAO-17-127
(Washington, D.C.: Oct. 7, 2016).
19GAO-17-247.
Page 6 GAO-22-104282 Federal Telework
the recommendation but told us it has taken some steps to try to mitigate
data accuracy issues to the extent possible. We continue to believe that
strengthening controls on telework data would improve the quality of
OPM’s reports to Congress.
In our prior work, we have also identified key practices for federal
agencies to implement with their telework programs. These key practices
can be grouped under seven categories: (1) program planning, (2)
telework policies, (3) performance management, (4) managerial support,
(5) training and publicizing, (6) technology, and (7) program evaluation.20
These telework key practices—several of which are required by statute—
provide a roadmap for federal agencies to successfully implement their
telework program.
Federal Guidance on Prior to the President declaring COVID-19 a national emergency on
Maximizing Telework March 13, 2020, OPM began issuing guidance to remind agencies about
available workplace flexibilities and to encourage agencies to review and
during the COVID-19 update their telework policies.21 At the start of the pandemic, OMB and
Pandemic OPM encouraged agencies to maximize flexibilities for telework-eligible
employees in areas of high community transmission as well as telework-
eligible employees identified by the Centers for Disease Control and
Prevention (CDC) as being at high risk for complications from COVID-19.
OMB guidance further encouraged the use of weather and safety leave
for those high-risk employees ineligible for telework.22
OMB subsequently issued updated guidance that requested agencies
within the National Capital Region to maximize telework flexibilities for all
telework-eligible employees based on operational needs as determined
by agency heads.23 Additional OMB guidance directed agencies to use
the full extent of their legal authority and discretion to reduce and
20GAO-03-679.
21Office of Personnel Management, Human Resources Flexibilities and Authorities for the
2019 Novel Coronavirus, OPM CPM 2020-02 Attachment (Washington, D.C.: Feb. 7,
2020), and Coronavirus Disease 2019 (COVID-19): Additional Guidance, OPM CPM
2020-05 (Washington, D.C.: Mar. 7, 2020).
22Office of Management and Budget, Updated Guidance on Telework Flexibilities in
Response to Coronavirus, OMB Memorandum M-20-13 (Washington, D.C.: Mar. 12,
2020).
23Office of Management and Budget, Updated Guidance for the National Capital Region
on Telework Flexibilities in Response to Coronavirus, OMB Memorandum M-20-15
(Washington, D.C.: Mar. 15, 2020).
Page 7 GAO-22-104282 Federal Telework
reprioritize nonmission-critical services to free up capacity for critical
services. This guidance also directed agencies to maximize telework
across the nation for the federal workforce to slow down the transmission
of COVID-19, while maintaining mission critical workforce needs.24 See
appendix II for more detail on OMB and OPM guidance on maximum
telework, alternative work schedules, and leave use in response to the
COVID-19 pandemic.
All Agencies
Reported Increased
Telework Use during
the COVID-19
Pandemic, but
Long-standing Data
Issues Persist
All 24 Agencies Reported According to the data we collected, total telework use by agencies
Increases in Telework substantially increased at the outset of the pandemic (March 2020), and
continued over two fiscal quarters, among all agencies that provided data
during the Pandemic (see fig. 1).25
24Office of Management and Budget, Federal Agency Operational Alignment to Slow the
Spread of Coronavirus COVID-19, OMB Memorandum M-20-16 (Washington, D.C.: Mar.
17, 2020).
25The Social Security Administration did not provide data on the number of hours
employees were in telework status.
Page 8 GAO-22-104282 Federal Telework
Figure 1: Telework Hours as a Percentage of Total Work Hours before and during the COVID-19 Pandemic
Note: We requested data from 24 agencies on telework use. These agencies tracked and reported
data using a variety of systems. We determined that these data were sufficiently reliable to use for
broad comparisons across agencies regarding telework use during the COVID-19 pandemic. Not all
agencies could provide data for all data elements requested. The Social Security Administration did
not provide data on telework hours.
a
The January through March 2020 quarter includes telework use before and during the pandemic.
Page 9 GAO-22-104282 Federal Telework
b
The Department of Transportation and the National Science Foundation provided data for July
through September 2019 that diverged substantially from values provided for the prior two quarters.
Thus, we used data provided for the previous quarter (April through June 2019) to better demonstrate
a comparison to typical pre-pandemic values.
As shown in figure 1, nearly all these agencies reported less than 30
percent of their employees’ work hours were in telework status prior to the
pandemic.26 However, more than half of these agencies exceeded about
80 percent or more of total work time in telework status for at least one
fiscal quarter during the pandemic.
Agencies’ telework postures during the pandemic varied based on agency
mission, job location, and the type of work employees perform. For
example, officials at the Department of Veterans Affairs (VA) told us they
temporarily granted full-time telework to employees under the agency’s
maximum-telework posture. They also offered telework options to a
significant number of employees previously ineligible to telework by
expanding the use of telehealth services to veterans.27 They said that, in
accordance with CDC guidance and local conditions, they varied the
effective dates of maximum allowable telework at each VA location.
According to VA, several factors influenced its approval of new telework
levels and eligible employees during the pandemic. These included: (1)
the ability to realign or modify mission-critical work to a virtual
environment, (2) whether any essential services required the employee’s
physical presence at the worksite, (3) whether the employee was in a
high-risk population for severe adverse effects from COVID-19, and (4)
the local availability of telework equipment.
National Science Foundation (NSF) officials noted that prior to the
pandemic, they had a robust telework policy that was highly used across
the agency. For example, employees could charge up to 80 hours of
telework per bi-weekly pay period depending on the level of approval
obtained.28 Further, the majority of NSF’s workforce had telework
agreements in place prior to the pandemic. Thus, its supervisors and
26The Department of Transportation and the National Science Foundation provided data
for July through September 2019 that diverged substantially from values provided for the
prior two quarters; therefore, we used data provided for the previous quarter (April through
June 2019) to better demonstrate a comparison to typical pre-pandemic values.
27Telehealth is the use of communications technologies to provide health care from a
distance.
28According to NSF’s policy, permanent requests for 5 days of telework per week would
require a change in duty station to the approved alternate worksite, which may result in
higher or lower locality pay.
Page 10 GAO-22-104282 Federal Telework
employees were already accustomed to telework. Agency officials said
this facilitated NSF’s transition to a maximum-telework posture. During
the pandemic, NSF employees could charge up to 80 hours of telework
per pay period without supervisory approval. As NSF transitioned into a
maximum-telework posture due to COVID-19, officials reported there was
no major effect to the workforce or its IT capabilities since they were
already tested and proven.
Increases in telework among agencies include, to some extent, increases
in the number of employees who teleworked or the amount of time
employees spent in telework status or both. Figure 2 presents data on the
proportion of employees using telework as a percentage of all employees
at a specific agency during selected pay periods prior to and during the
COVID-19 pandemic.29 All 24 agencies reported increases in the
percentage of employees who teleworked during the pandemic.30
Notably, about half of agencies reported that less than 25 percent of their
employees teleworked prior to the pandemic, while all agencies reported
about 25 percent or more of employees teleworked during the pandemic.
29For the General Services Administration; Departments of Housing and Urban
Development, Labor, and the Treasury; National Science Foundation, and the Social
Security Administration, data in the January 2020 pay period diverged substantially from
data in the three prior periods provided by these agencies. So, we used the most recent
data provided from a prior pay period (September 2019) to better demonstrate a
comparison to typical pre-pandemic values.
30Department of Health and Human Services data showed an increase in employees
teleworking, but insufficient to change their reporting category.
Page 11 GAO-22-104282 Federal Telework
Figure 2: Proportion of Federal Employees Teleworking before and during the COVID-19 Pandemic
Note: We requested data from 24 agencies on telework use. These agencies tracked and reported
data using a variety of systems. We determined that these data were sufficiently reliable to use for
broad comparisons across agencies regarding telework use during the COVID-19 pandemic. We
used individual pay periods from January 2020, April 2020, and July 2020 to represent those months
because the number of employees at an agency is subject to greater fluctuation over a full quarter.
a
General Services Administration, Departments of Housing and Urban Development, Labor, and the
Treasury, National Science Foundation, and Social Security Administration, data in the January 2020
Page 12 GAO-22-104282 Federal Telework
pay period diverged substantially from data in the three prior periods provided by these agencies.
Thus, we used the most recent data provided from a prior pay period (July 2019) to better
demonstrate a comparison to typical pre-pandemic values.
Among teleworkers, the proportion of work time spent in telework status
substantially increased during the pandemic for all agencies that provided
data.31 Prior to the pandemic, only two agencies reported that a majority
of their teleworkers worked at least half their hours in telework status.
This increased slightly from January 2020 through March 2020 as
agencies transitioned to a maximum-telework posture. By the July
through September 2020 time period, seven of the 21 agencies reported
at least half of their employees who teleworked were doing so for more
than half their work hours. The other 14 reported that more than 75
percent of their employees who teleworked did so for more than half their
work hours (see fig. 3).
31Two agencies, the Departments of Housing and Urban Development and Transportation
did not provide these data. The Department of the Interior was unable to provide
comparable data.
Page 13 GAO-22-104282 Federal Telework
Figure 3: Percentage of Teleworkers with More than Half Their Time in Telework Status, before and during the COVID-19
Pandemic
Note: We requested data from 24 agencies on telework use. These agencies tracked and reported
data using a variety of systems. We determined that these data were sufficiently reliable to use for
broad comparisons across agencies regarding telework use during the COVID-19 pandemic. The
Department of Interior was unable to provide comparable data. Two agencies (the Departments of
Transportation and Housing and Urban Development) did not provide these data.
a
The January through March 2020 quarter included telework use before and during the beginning of
the pandemic.
Page 14 GAO-22-104282 Federal Telework
b
The Departments of Labor and the Treasury provided data for July through September 2019 that
diverged substantially from values provided for the prior two quarters. Thus, we used data provided
for the previous quarter (April through June 2019) to better demonstrate a comparison to typical pre-
pandemic values.
The use of full-time telework (i.e., 100 percent of an employee’s work
time) also increased substantially among teleworking employees during
the pandemic.32 Prior to the pandemic, the Department of Commerce was
the only agency that reported more than about 25 percent of employees
who teleworked did so full time, due in large part to employees at its U.S.
Patent and Trademark Office. However, by the early part of the COVID-
19 pandemic, 14 other agencies reported more than about 25 percent of
their employees teleworked full time. Of the 14, six reported about 25 to
50 percent of their employees teleworked full time, three reported about
50 percent to 75 percent of their employees teleworked full time, and five
agencies reported about 75 percent or more of their employees
teleworked full time (see fig. 4).
32Two agencies, the Departments of Housing and Urban Development and Transportation,
did not provide these data. The Department of Interior was unable to provide comparable
data.
Page 15 GAO-22-104282 Federal Telework
Figure 4: Percentage of Teleworkers Who Teleworked Full-time, before and during the COVID-19 Pandemic
Note: We requested data from 24 agencies on telework use. These agencies tracked and reported
data using a variety of systems. We determined that these data were sufficiently reliable to use for
broad comparisons across agencies regarding telework use during the COVID-19 pandemic. The
Department of the Interior was unable to provide comparable data. Two agencies (the Departments of
Transportation and Housing and Urban Development) did not provide these data.
a
The January through March 2020 quarter included telework use before and during the beginning of
the pandemic.
Page 16 GAO-22-104282 Federal Telework
OPM Has Made Progress OPM has taken steps to improve its collection of government-wide
Collecting Government- telework information but has not fully addressed long-standing data
issues. In 2019, in response to our 2016 recommendation, OPM updated
Wide Telework Information
its Enterprise Human Resources Integration (EHRI) database payroll data
but Has Not Fully standards to include data on the number and instances of telework use by
Addressed Long-standing federal employees and the number of hours of telework used,
Data Issues implementing one of our four recommendations related to the reliability of
the payroll system.33 The inclusion of these standards should offer some
improvement to the consistency of telework data across agencies.
However, OPM’s continued lack of progress on other recommendations
from our 2016 report contributes to ongoing concerns about the reliability
of federal telework data. While OPM concurred with our
recommendations, it has not consistently monitored error reports nor has
it yet improved internal controls for EHRI data quality. In addition, OPM
has not developed a schedule for integrating payroll data into a larger
suite of EHRI databases and evaluating and developing new internal
control activities. OPM officials said the agency does not have the
resources needed to implement new data initiatives such as improving
EHRI internal controls.
OPM officials agreed that payroll data in EHRI could be eventually
substituted for OPM’s current telework data call but to do so would first
require implementation of the above recommendations. As of December
2021, OPM had not developed a plan to implement our remaining
recommendations to address EHRI data reliability issues. Developing a
plan to guide implementation of our remaining recommendations would
better position OPM to consider these data-improvement activities within
the context of other agency activities, determine how best to allocate
available resources, and develop steps and a timeline for carrying out
these activities. Until OPM develops a plan and timeline for implementing
these recommendations, long-standing data issues will continue to
persist.
The responses we received from our data collection for this report
illustrate the continued inconsistency and limitations of agency and
government-wide data outside of the EHRI payroll system. In 2017, we
found that agencies may report to OPM’s annual data call using a variety
of systems that define and track telework measures differently.34 As we
33GAO-17-127.
34GAO-17-247.
Page 17 GAO-22-104282 Federal Telework
previously recommended to OPM, we followed up with those agencies to
identify and address data outliers, including significant changes in data
across time periods, to describe the limitations of these data in this report.
Our key telework practices highlight, among other things, the importance
of using data to evaluate telework programs.35 Further, according to
Standards for Internal Control in the Federal Government, effective
internal control systems have certain attributes, including reliable internal
and external sources that provide data that are reasonably free from error
and bias and faithfully represent what they purport to represent.36 Having
robust telework data is important for managing and improving telework
programs. Reliable telework data from EHRI—along with other qualitative
and quantitative information, such as from the Federal Employee
Viewpoint Survey37—can be used to make informed management
decisions about investing resources, planning for continuity of operations
events, assessing compliance with the act, and managing physical space
needs.38 Until OPM develops a plan to fully implement our
recommendations to improve data reliability issues with its EHRI payroll
data, it will continue to be unable to precisely assess telework usage
across agencies and provide a full and accurate picture to Congress to
support oversight.
35GAO-03-679.
36GAO-14-704G.
37OPM’s Federal Employee Viewpoint Survey measures employees’ perceptions of
whether, and to what extent, conditions characteristic of successful organizations are
present in their agencies.
38GAO-17-247.
Page 18 GAO-22-104282 Federal Telework
Agencies Took Steps
to Try to Address
Telework-Related
Challenges and
Anticipate Future
Workplace Changes
Agencies Took Actions to Agencies identified challenges transitioning to maximum telework at the
Address Telework onset of the COVID-19 pandemic relating to three main areas (see fig.
5).39
Challenges While
Implementing Maximum
Figure 5. Agencies Identified Challenges Related to Telework during the COVID-19
Telework during the Pandemic
Pandemic
39Separate from this engagement, since 1997 we have periodically surveyed mid and
upper-level managers at 24 major federal agencies on various federal management and
performance topics as part of our Federal Mangers Survey. In 2020, we revised the
survey to include questions asking managers for their perspectives on their agencies’
actions to maintain the continuity of operations, including the expanded use of telework
and alternative work schedules, during the pandemic. For additional information about the
survey, including the results on these questions, see GAO, Supplemental Material: 2020
Federal Managers Survey: Results on Government Performance and Management
Issues, GAO-21-537SP (Washington, D.C.: July 27, 2021).
Page 19 GAO-22-104282 Federal Telework
Work portability/replicating on-site work processes. Several agencies
reported that some positions and procedures were not portable and that
they needed additional time at the outset of the pandemic to revise
guidance and policies to accommodate full-time telework for eligible
employees occupying those positions. Agencies also experienced
challenges replicating the office environment and some processes in a
remote setting. These included challenges with hiring, security checks
and fingerprinting new employees, mail delivery and processing, and
accessing office supplies and equipment.
Department of Energy (DOE) officials reported that not all of their
employees were able to transition to maximum telework because their
work could not be completed outside of their duty station. For example,
personnel security office employees could not immediately telework
because their work required paper files located on site. For staff who
wanted to telework, management had to identify portable work
assignments and ensure there was sufficient work for teleworkers to
complete. After initial adjustments, DOE’s personnel security employees
teleworked for the first 3 months of the pandemic. While DOE officials told
us that they began digitizing files several years ago to make paper-
dependent work portable, completing this effort requires labor and
electronic systems DOE currently lacks.
DOE officials also reported challenges with onboarding some new
employees. They cited issues with training and mentoring newly hired
engineers in a virtual environment. DOE engineers responsible for
training new hires needed to spend considerable amounts of time
converting on-the-job learning to a digital format at the beginning of the
pandemic. These engineers had to develop their own virtual training
program to help new hires understand work processes. However, this
approach had limitations. According to DOE officials, some on-the-job
training did not translate to virtual or paper explanations because of the
complicated nature of the work.
According to Department of Homeland Security (DHS) officials, much of
their agency’s mission—involving 65 percent of its employees—must be
carried out in person and on site, which presented an obstacle to telework
during the pandemic. This includes the work of Transportation Security
Administration screeners, Customs and Border Protection officers, Border
Patrol agents, U.S. Immigration and Customs Enforcement and Removal
Operations officers, Homeland Security Investigations agents, and U.S.
Secret Service agents. DHS officials said that to help address the need
for these employees to be in person to fulfill their duties during the
Page 20 GAO-22-104282 Federal Telework
pandemic, DHS relied primarily on personal protective equipment and
flexible work schedules that prioritized worker safety and reduced the
number of employees on site at once. DHS officials told us that its
employees whose missions did not require on-site presence were
teleworking almost 100 percent since the pandemic began.
Information technology. Agency officials reported a variety of IT
challenges at the onset of the pandemic and took steps to try to mitigate
these issues.40 These challenges included equipment shortages, lack of
training, and limited network capacity. Agencies told us they needed to
ensure that teleworkers had the right technology to perform their duties
successfully. Other areas of importance to agencies included assessing
organizational and teleworker technology needs, addressing access and
security issues related to telework, and providing technical support when
needed.
The Social Security Administration (SSA), for example, reported that it
faced challenges transitioning the work of its call center operators to a
telework environment. According to SSA, nearly 4,000 of its customer call
center agents did not telework prior to the COVID-19 pandemic. SSA
explained that it was in the initial stages of replacing its telephone
infrastructure at the onset of the pandemic and the transition to maximum
telework required the agency to re-engineer the way it used current
technology to provide all customer call center agents the ability to answer
calls until its new agency-wide telephone system could be installed. When
SSA transitioned to maximum telework in March 2020, the agency said it
had enough equipment for only about one-third of these agents to
perform their duties while teleworking.
SSA officials told us that call center agents without remote equipment
were placed on administrative leave or weather and safety leave.
Additionally, it took a couple of weeks for the agency to provide the
customer call center agents on leave with the essential equipment that
allowed them to telework. However, SSA officials reported that internet
connectivity issues created challenges for employees receiving calls on
its 800-customer service number. As a result, SSA operated with a limited
40We previously reported on (1) selected agencies’ initial experiences in providing the IT
needed to support remote access for maximum telework, and (2) the extent to which
selected agencies followed federal information security guidance for their IT systems that
provide remote access. See GAO, COVID-19: Selected Agencies Overcame Technology
Challenges to Support Telework but Need to Fully Assess Security Controls, GAO-21-583
(Washington, D.C.: Sept. 30, 2021).
Page 21 GAO-22-104282 Federal Telework
number of employees available to respond to the 800 number calls from
the public. This resulted in longer-than-normal call-wait times. SSA
officials said that by June 2020, they had equipped employees with
necessary technology to answer the increasing number of calls while
teleworking.
SSA’s Office of the Inspector General reported that only 27 percent of
teleservice center employees were answering calls on the national 800-
number in mid-March of 2020. As of October 2020, according to the
report, nearly all call center employees were answering calls, with
approximately 1 percent on weather and safety leave who were unable to
answer calls remotely due to internet connectivity issues. The report also
stated that while SSA reduced the amount of callers receiving a busy
message, this was partially enabled by reducing hours for the national
800-number.41
The Department of Defense (DOD) faced similar network and IT system
capacity challenges as it transitioned to a maximum-telework posture.
DOD officials said that the agency was unable to initially support the
majority of its employees working remotely in response to the pandemic.
They experienced system slowness and frequent occurrences where
personnel were inadvertently disconnected from the agency network. In
addition, remote access to classified systems was unavailable. Thus,
employees working on classified systems had to come on site to perform
their work. To address these challenges, DOD’s chief information officer
convened a task force to address immediate IT issues in three areas: (1)
providing access to collaboration and office productivity tools, (2)
improving network capacity for remote users, and (3) issuing telework IT
and cybersecurity guidance to ensure appropriate access to available
classified capabilities and continued protection of DOD information. In
response, DOD officials said they provisioned user accounts within 30
days of moving to a maximum-telework posture and rolled out new
software packages which helped employees collaborate across the
department. The agency also increased network capacity for its virtual
private networks, allowing more employees to telework.42
41Social Security Administration, Office of Inspector General, Congressional Response
Report – The Social Security Administration’s Telephone Services During June 2020, A-
05-20-50998 (Baltimore, MD: April 2021).
42A virtual private network is a technology that establishes an encrypted connection
between a teleworker’s device and an agency’s network. This provides the teleworker with
secure access to many of the agency’s computing resources.
Page 22 GAO-22-104282 Federal Telework
Employee engagement/work-life balance. Several agencies reported
that they faced challenges with employees who experienced decreased
engagement or employees who found it difficult to maintain a healthy
work-life balance during the COVID-19 pandemic. We have previously
reported that engaged employees are committed to the organization and
the mission, and are more likely to put forth extra effort to get the job
done.43
For example, National Science Foundation (NSF) officials reported
challenges with ensuring resiliency and balancing agency mission
accomplishment and the health and well-being of its workforce. In
response, the agency adopted strategies and procedures to help staff
adapt to its new teleworking environment. These actions included: (1)
allowing maximum work flexibilities to empower employees to manage
their schedules; (2) helping to ensure technology could support a
significant increase in teleworkers; (3) expanding work-life support
services; (4) setting up regular, dedicated time for employees to connect
with one another; and (5) hosting regular virtual agency-wide meetings,
virtual awards ceremonies, public service recognition week activities, and
employee appreciation activities. Further, NSF’s Work-Life team offered
several suggestions to help colleagues remain connected. These
suggestions included using technology to cultivate community, build
relationships, engage employees, and foster morale (e.g., virtual exercise
classes).
DOE reported work-life balance challenges faced by employees and
brought about by flexible schedules instituted to facilitate maximum
telework. DOE officials noted that with work schedule flexibilities and the
changes to work processes during the pandemic, the boundaries between
work and home life became blurred, often resulting in employees working
longer hours and extended workweeks. DOE suspended core work hours
and encouraged supervisors to exercise maximum flexibility with regard
to their employees’ work schedules. This allowed employees a greater
work-life balance while teleworking. Additionally, teleworking employees
responsible for caregiving while facing day care or school closures
because of COVID-19 were eligible for up to 20 hours of excused
absences (i.e., paid leave) per pay period throughout the pandemic.
43GAO, Federal Workforce: Additional Analysis and Sharing of Promising Practices Could
Improve Employee Engagement and Performance, GAO-15-585 (Washington, D.C.: July
14, 2015).
Page 23 GAO-22-104282 Federal Telework
Agencies Are Considering Following June 2021 guidance from OPM, OMB, and the General
Future Workplace Services Administration (GSA) for safely returning employees to work
sites, agencies began examining their telework programs for additional
Changes Related to changes.44 Further, OPM’s November 2021 guidance encouraged
Telework and Remote agencies to consider expanding telework and remote work for suitable
Work positions and in accordance with an agency’s mission and services.45
Agencies told us they are considering future workforce changes that
include (1) instituting more flexible work arrangements, (2) establishing or
updating remote work policies, and (3) reassessing facilities and
infrastructure (see fig. 6).
44Office of Management and Budget, Integrating Planning for A Safe Increased Return of
Federal Employees and Contractors to Physical Workplaces with Post-Reentry Personnel
Policies and Work Environment, Memorandum M-21-25 (Washington, D.C.: June 10,
2021).
45Office of Personnel Management, 2021 Guide to Telework and Remote Work in the
Federal Government: Leveraging Telework and Remote Work in the Federal Government
to Better Meet Our Human Capital Needs and Improve Mission Delivery. (Washington,
D.C.: Nov. 12, 2021).
Page 24 GAO-22-104282 Federal Telework
Figure 6: Workplace Changes and Related Actions That Federal Agencies Are Considering
Instituting more flexible work arrangements. Some agencies
employed outreach tools such as surveys, focus groups, and listening
sessions with managers and employees to learn more about their
telework experiences during the pandemic and expectations for work in
the future. Based on feedback from these outreach tools, agencies are
planning future changes to work arrangements such as flexible work
schedules and expanded use of telework and remote work. For example:
DOE surveyed its employees about telework experiences from
February through May 2021 and future preferences regarding
telework. DOE also conducted listening sessions with managers and
employees that provided an interactive, collaborative space for
employees and managers to share experiences, ideas, and concerns
in small group settings. DOE officials said the agency plans to use
results of the survey and listening sessions to help the agency better
Page 25 GAO-22-104282 Federal Telework
understand the opportunities and concerns around expanded telework
to inform the agency’s planning for its workforce of the future.
The Department of Transportation (DOT) administered employee
focus group sessions and short pulse surveys to learn about
employees’ work experiences before and during the COVID-19
pandemic. The agency told us it wanted to identify employees’
preferences for telework and employees’ vision of the DOT future
workplace. The agency plans to use this information to inform
potential changes to its telework and other workplace flexibility
policies and procedures going forward. According to DOT, preliminary
analysis indicates that managers and employees would generally
prefer more frequent telework opportunities compared to the agency’s
telework volume before the pandemic.
Consistent with updated OPM guidance, some agencies reported that
they are reviewing positions that previously required employees to be on
site to determine whether these positions could be telework ready in the
future. According to the U.S. Department of Agriculture (USDA), in many
cases these reviews need to be done on a case-by-case and mission-
specific basis. For example, USDA is reviewing positions across its
mission areas to identify those that could be made suitable for telework.
As part of its effort, USDA issued guidance to its mission areas to review
the current duty stations of their positions, occupations, and current and
planned recruitments, and to identify those positions with duties that may
be effectively performed virtually post-pandemic.
Department of State (State) officials told us they are reviewing their U.S.-
based positions for telework eligibility based on the mission and function
of the position. They said they will use the assessment results to inform
new telework agreements and schedules for all U.S.-based State
employees, but that State’s Chiefs of Diplomatic Missions will retain
discretion over post-specific policies for overseas telework. According to
State officials, per Department guidance, these policies do not permit
regularly scheduled or routine telework for U.S. direct hire employees but
do allow for situational telework. The agency explained that overseas
posts’ telework policies may be dependent on varied local conditions such
as security concerns, proximity of the personal residence to the mission
where the employee is assigned, and local labor laws.
Many agencies reported they have also begun reassessing use of flexible
work arrangements to include increasing the number of telework days
and more flexible telework conditions that allow for extended workdays
Page 26 GAO-22-104282 Federal Telework
and workweeks. This will allow employees to balance the completion of
work assignments and address dependent care responsibilities.
The Department of Housing and Urban Development (HUD) reported
it is reviewing limitations of its pre-pandemic telework policy. This
policy bars employees from teleworking more than 3 days per week.
The agency is also considering expanding the number of remote work
arrangements and establishing hoteling or office-sharing
arrangements for remote workers and teleworkers.46
NASA told us it plans to allow employees—when they return to on-site
work locations—to continue maximum use of flexible work schedules
to include more flexible work hours, telework, and remote work
arrangements.47 Looking ahead, NASA anticipates that employees’
maximum use of flexible work schedules will result in a hybrid
workforce that will become its standard operating model in the future.
Establishing or updating remote work policies. Nearly all agencies are
also considering developing or expanding remote work policies based on
their experiences with telework during the COVID-19 pandemic. GSA
officials reported that the agency is assessing its use of remote work. The
agency is categorizing positions based on position requirements and the
agency’s mission to identify positions appropriate for remote work.
DHS reported that its components are reviewing opportunities to increase
remote work for their eligible employees. For example, in April 2020, U.S.
Citizenship and Immigration Services—a DHS component—released
guidance for establishing remote work agreements on a limited basis. In
October 2021, the component released updated remote work guidance to
offer local and long-distance remote work on a more liberal basis. This
component’s remote work policy has been incorporated into DHS interim
guidance and added to its telework policy. According to DHS officials,
remote work opportunities may increase the agency’s ability to recruit
new employees and expand its remote work arrangements with current
employees.
46Hoteling is an alternate work arrangement in which (1) employees work in one facility
(facility A) part of the time and at one or more alternative worksites the rest of the time,
and (2) when working in facility A, these employees use nondedicated, nonpermanent
workspaces assigned for use by reservation on an as-needed basis.
47Flexible hours are the part of the workday when employees may choose their time of
arrival and departure within limits set by their agencies. This can enable employees to
select and alter their work schedules to better fit personal needs and help balance work,
personal, and family responsibilities.
Page 27 GAO-22-104282 Federal Telework
Reassessing facilities and infrastructure. Telework experiences over
the course of the pandemic have prompted some agencies to begin
reconsidering their physical facilities and infrastructure to meet future
workforce needs. For example, USDA launched an agency-wide survey
across office locations to gauge which employees (positions) might likely
telework to a greater extent in the future. USDA’s survey collected
information about facilities USDA leases or owns, type of space the
agency occupies, composition of workforce (agency employees or
contractors), and space utilization. According to USDA, this effort is to
help it adjust its office space utilization to correspond with its expected
teleworking workforce. USDA stated that it will be able to decide on office
space based on anticipated agency needs as the agency’s nationwide
office and facilities footprint will depend on decisions of its individual sub
agencies. Additionally, NASA is assessing how the increase in telework
and remote work will affect facilities and infrastructure.
SSA officials told us that the agency is discussing the implications of the
pandemic on its workforce as it considers changes to its office space.
According to SSA, most of its buildings are leased from GSA. Prior to the
pandemic, SSA had several large-scale office space plans in the pipeline
but has not moved forward with any changes because of the uncertainties
surrounding the pandemic.
Conclusions Telework is a tool that allows agencies to provide employees flexibilities
on where they work as they fulfill agency missions. The use of telework
also allows the government to maintain operations during periods of
emergency, as evidenced by large increases in telework during the
COVID-19 pandemic. Telework data can inform management decisions
about investing resources, planning for continuity of operations events,
assessing compliance with the Telework Enhancement Act of 2010, and
managing physical space needs. While it is encouraging that OPM has
taken some steps to improve its collection of government-wide telework
information, it has not developed a plan to address long-standing data
reliability issues that would improve its oversight of agencies’ telework
and provide more accurate and useful information to Congress. Now
more than ever, having accurate information is critical as OPM and
agencies consider the future of work for millions of federal employees.
Page 28 GAO-22-104282 Federal Telework
Matter for We are making the following matter for congressional consideration:
Congressional Congress should consider requiring OPM to develop an implementation
Consideration plan to improve the reliability of information in its federal payroll data
system, Enterprise Human Resources Integration, including telework
information. In doing so, Congress should consider providing OPM a
deadline for completing the plan.
Agency Comments We provided a draft of this report to the 24 CFO Act agencies for review
and comment. We received written comments from the U.S. Agency for
International Development and the Social Security Administration that are
reprinted in appendixes III and IV. The Social Security Administration also
provided technical comments, along with the Departments of Commerce,
Homeland Security, Interior, Labor, and State; the Office of Personnel
Management; the Small Business Administration; and the Nuclear
Regulatory Commission, which we incorporated as appropriate. The
remaining 14 agencies informed us that they had no comments.
We are sending copies to the appropriate congressional committees and
the 24 CFO Act agencies. In addition, the report will be available at no
charge on the GAO website at http://www.gao.gov. If you or your staffs
have any questions about this report, please contact Alissa Czyz at (202)
512-6806 or czyza@gao.gov. Contact points for our Offices of
Congressional Relations and Public Affairs may be found on the last page
of our report. Key contributors to this report are listed in appendix IV.
Alissa H. Czyz
Acting Director, Strategic Issues
Page 29 GAO-22-104282 Federal Telework
List of Addressees
The Honorable Patrick Leahy
Chairman
The Honorable Richard Shelby
Vice Chairman
Committee on Appropriations
United States Senate
The Honorable Ron Wyden
Chairman
The Honorable Mike Crapo
Ranking Member
Committee on Finance
United States Senate
The Honorable Patty Murray
Chair
The Honorable Richard Burr
Ranking Member
Committee on Health, Education, Labor, and Pensions
United States Senate
The Honorable Gary C. Peters
Chairman
The Honorable Rob Portman
Ranking Member
Committee on Homeland Security and Governmental Affairs
United States Senate
The Honorable Margaret Wood Hassan
Chair
Subcommittee on Emerging Threats and Spending Oversight
Committee on Homeland Security and Governmental Affairs
United States Senate
The Honorable Kyrsten Sinema
Chair
The Honorable James Lankford
Ranking Member
Subcommittee on Government Operations and Border Management
Committee on Homeland Security and Governmental Affairs
United States Senate
Page 30 GAO-22-104282 Federal Telework
The Honorable Rosa L. DeLauro
Chair
The Honorable Kay Granger
Ranking Member
Committee on Appropriations
House of Representatives
The Honorable Frank Pallone, Jr.
Chairman
The Honorable Cathy McMorris Rodgers
Republican Leader
Committee on Energy and Commerce
House of Representatives
The Honorable Bennie G. Thompson
Chairman
The Honorable John Katko
Ranking Member
Committee on Homeland Security
House of Representatives
The Honorable Carolyn B. Maloney
Chairwoman
The Honorable James Comer
Ranking Member
Committee on Oversight and Reform
House of Representatives
The Honorable Mark Takano
Chairman
Committee on Veterans’ Affairs
House of Representatives
Honorable Richard Neal
Chair
The Honorable Kevin Brady
Republican Leader
Committee on Ways and Means
House of Representatives
Page 31 GAO-22-104282 Federal Telework
The Honorable Chris Pappas
Chairman
Subcommittee on Oversight and Investigations
Committee on Veterans’ Affairs
House of Representatives
The Honorable Mark DeSaulnier
House of Representatives
Page 32 GAO-22-104282 Federal Telework
Appendix I: Scope and Methodology
Appendix I: Scope and Methodology
To describe federal agencies’ use of telework during the COVID-19
pandemic and assess the Office of Personnel Management’s (OPM)
progress in addressing telework data limitations we collected and
analyzed telework data and related documents from the 24 major federal
agencies using a structured data collection instrument.1 For (1) the
number of hours employees worked in person or via telework and (2) the
number of employees who teleworked for specified portions of their time,
we requested and received data for selected quarters. These data were
collected from selected quarters (1) before the COVID-19 pandemic in
2019 (July through September 2019), (2) as agencies transitioned into a
pandemic posture (January through March 2020), and (3) during the
pandemic in 2020 (April through June 2020 and July through September
2020) to better understand telework use before and during the COVID-19
pandemic.
To account for potential seasonal variation in telework, we also requested
data for two additional quarters prior to the pandemic (January through
March 2019 and April through June 2019). We generally determined that
the proportion of total agency work hours spent in telework status and the
proportion of time employees who teleworked spent in telework status
were consistent across all three pre-pandemic quarters. However, in
some cases, data for the July to September 2019 quarter appeared to be
atypical when compared to the prior two quarters. In those cases, we
present the data from the prior quarter (April through June 2019) to
ensure comparisons to a more typical pre-pandemic value.2
For the number of employees and number of teleworkers, we requested
and received data for selected pay periods, since these numbers have
greater fluctuations over the course of an entire quarter. These data were
collected for pay periods before and during the pandemic, including
January 2020, April 2020, and July 2020. To account for potential
seasonal variation in telework, we also requested and received data for
the same three pay periods in 2019. We generally determined that the
number of employees teleworking was consistent across all three 2019
pay periods and the January 2020 pay period. However, in some cases,
data for January 2020 appeared to be atypical when compared to other
1The 24 agencies are those identified in the Chief Financial Officers Act of 1990, as
amended. 31 U.S.C. § 901(b). The Department of Commerce provided separate telework
data for the U.S. Patent and Trademark Office, which we combined with Commerce data
in our analysis.
2These cases are identified whenever they appear in our report.
Page 33 GAO-22-104282 Federal Telework
Appendix I: Scope and Methodology
pre-pandemic periods. In those cases, we present the data from the prior
pay period for which we received data (July 2019) to ensure comparisons
to a more typical pre-pandemic value.3
The individual agencies gathered and reported telework data from a
variety of systems they use to track similar data.4 This results in some
limitations related to the precision and comparability of data within and
across agencies. We independently collected and followed-up on
telework data from the 24 major federal agencies on their use of telework
during the pandemic. All 24 agencies provided data on telework use by
employees. However, several agencies were unable to provide telework
data for all employees.5 Further, some agencies’ data had limitations
related to the precision and comparability of data within and across
agencies, which we note in appropriate sections of the report. We also
found that agencies reported on the proportion of time spent teleworking
using inconsistent sources that sometimes reflect use, other times reflect
policy, and other times reflect agency telework agreements.
To mitigate these limitations, we followed up with each agency to clarify
outliers, collect missing data, and fully understand related limitations. To
address data limitations, we report on the data collected as ranges rather
than precise values, use different dates for selected indicators, and note
areas where we saw atypical results and other outliers throughout. We
determined the data were sufficiently reliable to demonstrate agencies’
use of telework during the COVID-19 pandemic.
To assess OPM’s progress in addressing telework data limitations, we
reviewed our previous work on telework data and related
recommendations. We also reviewed our key telework practices that
federal agencies should implement to help ensure successful telework
3These cases are identified whenever they appear in our report.
4Agencies may have independently analyzed their use of telework during the COVID-19
pandemic and used different sources of data. The Nuclear Regulatory Commission told us
that it used facility badge reader data to estimate its percentage of employees teleworking
data to estimate a slightly higher percentage of employees teleworking.
5The following agencies could not report complete telework data in the format we
requested: NASA (excludes remote workers); the Departments of Justice (excludes
Federal Bureau of Investigation), Education (excludes the Office of the Inspector General
(OIG)), and State (excludes: overseas employees and contractors); Nuclear Regulatory
Commission (excludes OIG); and United States Agency for International Development
(excludes foreign-service officers and contractors).
Page 34 GAO-22-104282 Federal Telework
Appendix I: Scope and Methodology
programs, as well as Standards for Internal Control in the Federal
Government.6 We also interviewed OPM officials on their progress with
implementing these recommendations, and discuss related data issues in
this report. We evaluated their responses against our key telework
practice focused on the importance of using data to evaluate telework
programs and attributes of Standards for Internal Control in the Federal
Government focused on effective internal control systems.
To describe actions agencies have taken to address telework-related
challenges identified during the COVID-19 pandemic and considerations
for future operating postures, we collected and analyzed written
responses from all 24 CFO Act agencies. We did this to obtain illustrative
examples on agency challenges related to telework during the COVID-19
pandemic, actions taken to address these challenges, and plans for
agency use of telework in the future. We also interviewed agency officials,
managers, and union representatives at three selected agencies—the
Departments of Agriculture and Energy, and the Social Security
Administration—to obtain illustrative examples of challenges and
successes they experienced with telework during the pandemic and their
plans for future telework. We randomly selected these agencies
controlling for workforce size and pre-pandemic telework participation to
achieve diversity in both these characteristics.
We conducted this performance audit from April 2020 to February 2022 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 objectives. We believe that
the evidence obtained provides a reasonable basis for our findings and
conclusions based on our audit objectives.
6GAO, Standards for Internal Control in the Federal Government, GAO-14-704G
(Washington, D.C.: Sept. 2014); and Human Capital: Further Guidance Assistance, and
Coordination Can Improve Federal Telework Efforts, GAO-03-679 (Washington, D.C., July
18, 2003).
Page 35 GAO-22-104282 Federal Telework
Appendix II: Government-wide Telework-
Appendix II: Government-wide Telework-
Related Guidance Issued in Response to the
Related Guidance Issued in Response to the
COVID-19 Pandemic
COVID-19 Pandemic
This appendix contains government-wide guidance issued by the Office of
Management and Budget (OMB) and the Office of Personnel
Management (OPM) outlining guidance on the use of telework-related
flexibilities agencies could use to facilitate a transition to maximum
telework at the outset of and during the COVID-19 pandemic. These
included workplace flexibilities such as: authority to move to maximum
telework; the use of leave, dependent care, evacuation payment
authority; and flexible work schedules. The guidance also addressed
agency reentry plans and post-reentry personnel policies.
Key aspects of the government-wide guidance issued in February and
March of 2020 in response to the COVID-19 pandemic are highlighted
below.
Maximum telework. To facilitate employees’ transition to maximum
telework, OPM instructed agencies to address in their telework policies
potential situations that may prevent or affect an employee’s ability to
effectively perform job duties at home. This included policies regarding
the conditions under which employees may telework if they had a young
child or other person requiring the presence of a caregiver in the home.1
OPM’s guidance reminded agencies that OPM’s regulation on evacuation
payments authority was another option available to agencies to maximize
telework.2 This OPM regulation authorizes agencies to order employees
to telework from home or at an alternate work location during a pandemic
health crisis without having an approved telework agreement in place, as
required by the Telework Enhancement Act of 2010.3
Alternative work schedules. This workplace flexibility provides
employees with options to alter their fixed work schedules to address
work and home obligations while teleworking. Alternative work schedules
include flexible and compressed work schedules. These flexibilities allow
employees to set their own start or stop times within the limits set by the
agency, or to complete their biweekly work requirement in less than 10
1Office of Personnel Management, Coronavirus Disease 2019 (COVID-19): Additional
Guidance and Questions and Answers on Human Resources Flexibilities and Authorities
for Coronavirus Disease 2019 (COVID-19), OPM CPM 2020-05 & attachment
(Washington, D.C.: Mar. 7, 2020).
25 C.F.R. § 550.409.
3The act mandates that employees have an approved telework agreement to telework. 5
U.S.C. § 6502(b)(2).
Page 36 GAO-22-104282 Federal Telework
Appendix II: Government-wide Telework-
Related Guidance Issued in Response to the
COVID-19 Pandemic
workdays.4 Additionally, under flexible work schedules an employee may
choose to have shorter workdays and work more than the normal 10
workdays (e.g., work on Saturday). OPM guidance encouraged the use of
these flexible work schedules for employees with dependent care
responsibilities. The more flexible schedule allowed for additional time
during the day to perform both daily work and caregiving responsibilities.
Leave use. OMB and OPM guidance addressed the use of sick leave,
weather and safety leave, and other leave categories as appropriate to
maintain safety for employees at high risk for serious complications from
COVID-19 or for those employees ineligible to telework.5
OPM also outlined the appropriate use of Emergency Paid Sick Leave Act
(EPSLA) leave which was included in the Families First Coronavirus
Response Act.6 EPSLA provided employees with up to 2 weeks (up to 80
hours) of paid sick leave in specified circumstances related to COVID-19.7
For example, an employee could use EPSLA leave to care for a son or
daughter if the school or place of care the son or daughter attended was
closed for COVID-19 precautions.
In June 2021, government-wide guidance instructed agencies to integrate
their reentry plans of federal employees to physical workspaces with their
post-reentry personnel policies and work environment. The guidance
advised that planning should be comprised of (1) a phased plan for
reentry and post-reentry, and (2) an agency update of its COVID-19
workplace safety plan pursuant to current CDC guidelines. In October
2021, we reported agencies’ initial 2020 reentry plans did not consistently
4According to OPM’s Handbook on Alternative Work Schedules, the decision to establish
an alternative work schedule program is at the discretion of the agency head, although the
discretion is subject to the obligation to negotiate with the exclusive representative(s) of
bargaining unit employees.
5Office of Personnel Management, Human Resources Flexibilities Available for Federal
Employees Impacted by the 2019 Novel Coronavirus, OPM Memorandum CPM 2020-02
(Washington, D.C.: Feb. 7, 2020); OPM Memorandum CPM 2020-05; Office of
Management and Budget, Updated Guidance on Telework Flexibilities in Response to
Coronavirus, OMB Memorandum M-20-13 (Washington, D.C.: Mar. 12, 2020); and Office
of Management and Budget, Updated Guidance for the National Capital Region on
Telework Flexibilities in Response to Coronavirus, OMB Memorandum M-20-15
(Washington, D.C.: Mar. 15, 2020).
6Pub. L. No. 116-127, div. E, 134 Stat. 178, 195 (2020).
7This leave provision was made available for use from April 1, 2020 through December
31, 2020.
Page 37 GAO-22-104282 Federal Telework
Appendix II: Government-wide Telework-
Related Guidance Issued in Response to the
COVID-19 Pandemic
cover all aspects of federal guidance. However, agencies’ 2021 plans
generally aligned with federal guidance, after the establishment of a new
task force on COVID-related workplace safety and the release of updated
model safety principles.8 Additionally, the June 2021 guidance included
information on use of telework and remote work, hours of work, and
performance management.9
In November 2021, OPM issued updated telework guidance that provides
agencies with practical resources and information to help contextualize
the continued evolution of telework as a critical workplace flexibility. The
update included a new part providing federal agencies with policy
guidance on remote work. OPM defines remote work as an alternative
work arrangement that involves an employee performing official duties at
an approved alternative worksite away from an agency worksite, without
regularly returning to the agency worksite during each pay period. The
updated guidance also encourages agencies to re-evaluate positions that
traditionally have been seen as ineligible for telework to see what
elements of those jobs may still be done from home, and to make those
employees eligible at least for situational telework.10
Table 1 lists telework-related guidance documents disseminated
immediately prior to and during the COVID-19 pandemic in the order of
their issuance.
8GAO, COVID-19: Federal Agencies’ Initial Reentry and Workplace Safety Planning,
GAO-22-104295 (Washington, D.C.: Oct. 25, 2021).
9Office of Management and Budget, Office of Personnel Management, and General
Services Administration, Integrating Planning for A Safe Increased Return of Federal
Employees and Contractors to Physical Workplaces with Post-Reentry Personnel Policies
and Work Environment, OMB-M-21-25 (Washington, D.C.: June 10, 2021).
10Office of Personnel Management, 2021 Guide to Telework and Remote Work in the
Federal Government (Washington, D.C.: Nov. 12, 2021).
Page 38 GAO-22-104282 Federal Telework
Appendix II: Government-wide Telework-
Related Guidance Issued in Response to the
COVID-19 Pandemic
Table 1: Government-wide OMB and OPM Telework-Related Guidance in Response to the COVID-19 Pandemic
OMB and OPM Guidance Related Workplace Flexibilities
Evacuation Payment Authority Technology/Collaboration Tools
Workforce Reentry and Post
Flexible Work Schedules
Maximum Telework Dependent Care
Use of Leave Reentry Personnel Policies Remote Work
OPM CPM 2020-02 & attachment: Human
Resources Flexibilities Available for Federal
✓ ✓ n/a ✓ n/a n/a n/a n/a
Employees Impacted by the 2019 Novel
Coronavirus (February 7, 2020)
OPM CPM 2020-05 & attachment:
Coronavirus Disease 2019 (COVID-19)
Additional Guidance and Questions and
✓ ✓ ✓ n/a ✓ n/a n/a n/a
Answers on Human Resources Flexibilities
and Authorities for Coronavirus Disease
2019 (COVID-19) (March 7, 2020)
OMB M-20-13 Updated Guidance on
Telework Flexibilities in Response to ✓ ✓ n/a n/a n/a n/a n/a n/a
Coronavirus (March 12, 2020)
OMB M-20-15 Updated Guidance for the
National Capital Region on Telework
✓ ✓ n/a n/a n/a n/a n/a n/a
Flexibilities in Response to Coronavirus
(March 15, 2020)
OMB M-20-16 Federal Agency Operational
Alignment to Slow the Spread of ✓ n/a n/a n/a n/a n/a n/a n/a
Coronavirus COVID-19 (March 17, 2020)
OMB M-20-19 Harnessing Technology to
n/a n/a n/a n/a n/a ✓ n/a n/a
Support Mission Continuity (March 22, 2020)
OPM Fact Sheet Options for Telework-
Eligible Employees with Caregiving n/a ✓ ✓ ✓ ✓ n/a n/a n/a
Responsibilities (March 27, 2020)
OMB M-20-23 Aligning Federal Agency
Operations with the National Guidelines for ✓ ✓ n/a n/a n/a n/a ✓ n/a
Opening Up America Again (April 20, 2020)a
Page 39 GAO-22-104282 Federal Telework
Appendix II: Government-wide Telework-
Related Guidance Issued in Response to the
COVID-19 Pandemic
OMB and OPM Guidance Related Workplace Flexibilities
Evacuation Payment Authority Technology/Collaboration Tools
Workforce Reentry and Post
Flexible Work Schedules
Maximum Telework Dependent Care
Use of Leave Reentry Personnel Policies Remote Work
OPM Fact Sheet: The Use of Flexible Work
Schedules in Response to Coronavirus n/a n/a n/a ✓ n/a n/a n/a n/a
Disease 2019 (COVID-19) (May 27, 2020)
OMB M-21-15 COVID-19 Safe Federal
Workplace: Agency Model Safety Principles ✓ n/a n/a n/a n/a n/a ✓ n/a
(January 24, 2021)
OMB M-21-25 Integrating Planning for A
Safe Increased Return of Federal
Employees and Contractors to Physical
✓ n/a ✓ ✓ ✓ ✓ ✓ ✓
Workplaces with Post-Reentry Personnel
Policies and Work Environment (June 10,
2021)b
OPM CPM 2021-17 Additional Guidance on
Post-Reentry Personnel Policies and Work n/a ✓ ✓ ✓ ✓ ✓ ✓ ✓
Environment (July 23, 2021)
OPM 2021 Guide to Telework and Remote
Work in the Federal Government:
Leveraging Telework and Remote Work in
n/a ✓ ✓ ✓ ✓ ✓ n/a ✓
the Federal Government to Better Meet Our
Human Capital Needs and Improve Mission
Delivery (November 12, 2021)
Legend: ✓= Related workforce flexibility included in the guidance. n/a=not applicable.
Source: GAO analysis of Office of Management and Budget and Office of Personnel Management guidance. | GAO-22-104282
a
OMB M-20-23 was rescinded by OMB M-21-25.
b
General Services Administration co-authored OMB M-21-25.
Page 40 GAO-22-104282 Federal Telework
Appendix III: Comments from the U.S.
Appendix III: Comments from the U.S. Agency
for International Development
Agency for International Development
Page 41 GAO-22-104282 Federal Telework
Appendix IV: Comments from the Social
Appendix IV: Comments from the Social
Security Administration
Security Administration
Page 42 GAO-22-104282 Federal Telework
Appendix V: GAO Contact and Staff
Appendix V: GAO Contact and Staff
Acknowledgments
Acknowledgments
GAO Contact Alissa H. Czyz at (202) 512-6806 or czyza@gao.gov
Staff In addition to the contact named above, key contributors to this report
were Clifton G. Douglas Jr. (Assistant Director), Keith O’Brien (Analyst in
Acknowledgments Charge), Crystal Bernard, and Ulyana Panchishin. In addition, Jacqueline
Chapin, Caitlin Cusati, Ann Czapiewski, Karin Fangman, Steven Putansu,
and Michelle B. Rosenberg made significant contributions to this report.
(104282)
Page 43 GAO-22-104282 Federal Telework
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