AUDIT REPORT

**TELECOMMUTING -- GOING THE DISTANCE OR NOT?**

![](media/image1.png)

**Report No: FY 2004-02**

**Prepared by:**

## Office of Enterprise Performance

July 16, 2004

Distribution: ACT-1/2/3, ACB-1, ACF-1, ACH-1, ACK-1, ACX-1

TABLE OF CONTENTS

PREFACE . . . . . . . . . 2

EXECUTIVE SUMMARY . . . . . . . 3

INTRODUCTION

Background . . . . . . . 8

Purpose . . . . . . . . 8

Scope and Methodology . . . . . . 9

FINDINGS AND RECOMMENDATIONS

Program Compliance . . . . . . . 10

Table 1. Telecommuting Agreement Compliance Summary . 10

Other Program Practices . . . . . . 12

Suitable Positions and Tasks . . . . . 12

Table 2. Current Telecommuter's Position Titles,

Series, and Grade . . . . . 13

> Employee Suitability Traits . . . . . 14

Monitoring Work . . . . . . 15

Program Participation Level . . . . . 15

Table 3. Telecommuting Participation Gap Analysis . . 16

> Program Cost-Benefit Analysis . . . 17

Program Successes and Barriers . . . . 19

CONCLUSION . . . . . . . . 20

APPENDIX 1- TELECOMMUTING AGREEMENT

COMPLIANCE CHECKLIST . . . . . 21

APPENDIX 2 -- EXTRACT FROM TELECOMMUTING

AGREEMENTS: FUNCTIONS, TASKS, AND

SPECIFIC ASSIGNMENTS FOR TELECOMMUTERS . . 22

REFERENCES . . . . . . . . 25

AUDIT REPORT

**TELECOMMUTING - GOING THE DISTANCE OR NOT?**

**PREFACE**

# 

# 

# This report is the result of an audit of the Technical Center's Telecommuting Program.

# 

# Its purpose is to**:** (1) follow-up on recommendations in the January 9, 2001, evaluation report prepared by the former Appraisal and Planning Staff; (2) determine Center implementation compliance as compared to the legislative intent stated in public laws, national policies, and guidelines established by the Office of Personnel Management (OPM), the Department of Transportation (DOT), the Federal Aviation Administration (FAA), and the FAA William J. Hughes Technical Center; (3) determine participation level and impact on Center operations and operating costs; and (4) identify position functions and "suitability" traits for participation in the telecommuting program.

\_/s/ on file Maudie M. Powell\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_
\_\_7/16/04\_\_\_\_

(for) Annie B. Clark Date

Program Director

Office of Enterprise Performance

\_/s/ on file Anne Harlan\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_
\_\_7/26/04\_\_\_\_

Anne Harlan Date

Director, William J. Hughes Technical Center

Approved: \_\_\_X\_\_\_\_ Disapproved\_\_\_\_\_\_\_

AUDIT REPORT

**TELECOMMUTING- GOING THE DISTANCE OR NOT?**

**EXECUTIVE SUMMARY**

# 

Telecommuting has been an option for federal workers since 1994,
offering potential for employer and employee benefits while reducing
environmental impact. The DOT Secretary has stated that "telecommuting
is consistent with DOT performance goals of reducing highway congestion
and mobile source emissions. It is the policy of DOT to encourage the
use of telecommuting to the maximum extent possible."

In addition, government executives have directed agencies to identify
employees that would be eligible for participating in the program based
on assigned tasks and employee suitability. Appropriation legislation
established goals for program participation beginning at 25% of the
eligible employees. The FAA William J. Hughes Technical Center
participation is 2.58% of an estimated 698 potentially eligible
employees in its 822 total workforce. On a broad assumption to make this
calculation, all managerial and secretarial positions were eliminated
from the population of "eligible employees" because of the
characteristics of these positions and frequent comments identifying
them as unsuitable.

This audit was performed as part of the Technical Center's Fiscal Year
2004 Internal Audit Plan developed by the Office of Enterprise
Performance. Its purpose is to: (1) follow-up on recommendations in the
January 9, 2001, evaluation report prepared by the former Appraisal and
Planning Staff; (2) determine Center implementation compliance as
compared to the legislative intent stated in public law and national
policies and guidelines established by the Office of Personnel
Management (OPM), DOT, FAA, and the FAA William J. Hughes Technical
Center; (3) determine participation level and impact on Center
operations and operating costs; and

\(4\) identify position functions and "suitability" traits for
participation in the telecommuting program.

Two auditors and a business analyst from the Office of Enterprise
Performance; ad hoc representatives from the Office of Innovations and
Solutions; Office of Human Capital Strategies; Office of Operations,
Technology, and Acquisition; and the Human Resources Management Division
performed this audit.

A total of 18 employees were identified as current participants in the
telecommuting program as of February 29, 2004, according to the
telecommuting agreements on file with the Telecommuting Program
Coordinator. Each participant and their respective manager were
interviewed. The random selection of and interviews with 15
non-participating employees, 15 non-participating managers, senior
management, and two union officials revealed a "non-participating"
perspective of the telecommuting program and its influence on Center
operations.

The FAA Telecommuting Handbook states that "each employee who wishes to
telecommute and his/her supervisor must sign a written telecommuting
agreement that specifies the terms and conditions of participation in
the program." The review and analysis of the 18 telecommuting agreements
found that all the agreement requirements identified in the FAA
Telecommuting Handbook were not included in all 18 agreements but the
missing information did not impact program implementation.
Inconsistencies were found in managers allowing employees to "work at
home" on infrequent and irregular bases but not as participants in the
telecommuting program or in compliance with any other policy that
defines duty station designations.

The current 18 telecommuters are assigned to 13 different positions,
five of them being electronics engineers. The tasks current
telecommuters perform when telecommuting are those that:

-   Require thinking and writing such as data analysis; reviewing grants
    or cases; and writing regulations, decisions, or reports;

-   Are telephone-intensive such as setting up a conference, obtaining
    information, and contacting customers, and

-   Are computer-oriented such as programming, data entry and database
    maintenance, and word processing.

Current telecommuters have been participating for varying periods,
ranging from as little as 2 months up to more than 7 years. The average
length of time for telecommuting is 3 years among the current
participants.

During their interviews, employees and managers estimated that 25% to
100% of their assigned functions could be performed in a telecommuting
environment, but participants telecommute only one (20-25%) of their 4
to 5 day workweek. The employees said they do not participate more
because they either do not believe the manager would support more
telecommuting days or they do not want to increase the potential of
coworkers' negative perceptions of the program, i.e., another free day
off or not working. Discussion of telecommuting by and among employees
and managers is limited. Managers said more employees are not
participating because the employees have not asked and the managers also
expect that if one employee is allowed to telecommute, many more or all
their employees will want to telecommute. Furthermore, managers said
they do not encourage more participation because they do not have
metrics to measure telecommuters' performance. Those managers who have
participated by supervising a telecommuter say they use product or
service deliverables, timeliness, and quality in monitoring
telecommuters' work.

Some managers said they have allowed employees to "work at home" on
irregular and infrequent schedules but did not consider this alternate
work location as telecommuting. This practice is non-compliant with the
telecommuting policies nor is this practice covered by other policies
that allow employees to perform official duties at a location other than
the "assigned duty station." This is not a consistent practiced among
the managers interviewed.

Program costs and savings could not be identified and substantiated
because information for a quantitative cost-benefit analysis is either
limited or not available. This audit identified approximately \$2,006 in
one-time capital investment costs and \$180 yearly recurring cost
associated with the 18 telecommuters. The only direct savings identified
was \$1,687 annually for electricity to operate telecommuters'
computers. Expanded program participation has potential to increase the
electricity savings and provide opportunities for cost avoidance in
areas such as space by using multiple occupancy work stations, parking,
and lower contractual support general and administrative (G&A) rates.

Interview commentary identified program benefits or successes and
challenges but these have not been or are not easily measured or
quantified. The benefits cited included:

-   Reduced commuting time and expenses

-   Reduced stress and fatigue attributed to travel

-   Reduced impact on environment

-   Increased productivity resulting from fewer workplace distractions

-   Increased job satisfaction

-   Increased time with family

-   Increased morale

-   Improved employee-supervisor relationship

-   Reduced use of sick leave (returning to work sooner in medical
    cases; such as broken limbs, flu or colds, recovery from surgery,
    family situations, or travel time to medical appointments)

-   Increased commitment to completing assignments

-   Reduced backlog

-   Higher implied and perceived trust

Cited challenges include:

-   Non-participants' attitude that telecommuters are not working on
    their telecommuting day

-   Metrics do not exist for monitoring work

-   Perception of favoritism in approving telecommuting

-   Expectation that if one employee is approved to telecommute, all
    will want to telecommute

-   Lack of trust on the part of managers

Finding 1. The telecommuting agreement non-compliances have little to no
impact on program implementation.

Recommendation 1. Managers, employees, and the Telecommuting Program
Coordinator use a checklist, such as Appendix 1, when developing and
updating telecommuting agreements to ensure compliance with
Telecommuting Handbook requirements.

Action: Assigned Managers

Program Coordinator, ACT-10

Due Date: August 31, 2004

Recommendation 2. Each participant and the respective manager jointly
review and update the telecommuting agreement as necessary to ensure
each FAA Telecommuting Handbook requirement is completely and clearly
met in the document on file with the employee, manager, and the
Telecommuting Program Coordinator.

**Action:** Assigned Managers

Program Coordinator, ACT-10

**Due Date:** August 31, 2004

**Finding 2.** Irregular and infrequent "work at home" not authorized by
a telecommuting agreement or other alternate duty station policies are
non-compliances and inconsistencies that distort perceptions and actual
participation in the telecommuting program.

**Recommendation 3**. All official duties performed at locations other
than the assigned permanent or temporary duty station must be covered by
an existing agency policy or officially approved and documented.

**Action:** Assigned Managers

**Due Date:** Continuously

**Finding 3**. Time and attendance records disclosed that one
telecommuter received administrative leave for a normal worksite
emergency on a scheduled telecommuting day according to the
telecommuting schedule on file. Managers and employees often agree to ad
hoc changes to the telecommuting agreement schedule. This practice can
increase the potential for such administrative oversights in time and
attendance reporting and approval. Supervising a telecommuter requires
additional scrutiny in approving time and attendance reports and
administrative leave.

**Recommendation 4.** Correspondence (generally provided by ACT-10)
authorizing approval of administrative leave for emergency or special
situations at the normal worksite should also specify applicability to
telecommuters.

**Action:** Program Coordinator, ACT-10

**Due Date:** Continuous

**[Finding 4]{.underline}**. Limited efforts are made to increase
employee awareness of and participation in the telecommuting program.

**Recommendation 5.** Increase program awareness and feasibility by
various educational and communication means among employees and
managers.

**Action:** Office of Human Capital Strategies

Program Coordinator, ACT-10

**Due Date:** August 31, 2004

**Recommendation 6.** Senior management clearly communicate its position
on the program and hold managers accountable for implementing this
position.

**Action:** Technical Center Director

**Due Date:** August 16, 2004

**Recommendation 7.** Continue the Technical Center telecommuting
program.

**Action:** Technical Center Managers

Program Coordinator, ACT-10

**Due Date:** Continuous

**Recommendation 8.** Provide informational copies of FAA required
reports on telecommuting participation to the Office of Enterprise
Performance for trend analysis, using this report as the baseline.

**Action:** Program Coordinator, ACT-10

Office of Enterprise Performance

**Due Date:** Continuous starting September 30, 2004

**Recommendation 9**. Determine the ACT positions eligible for
telecommuting to be used as an accurate baseline for future reviews and
program activities.

**Action:** Office of Enterprise Performance

Program Coordinator, ACT-10

**Due Date:** September 30, 2004

**[Finding 5]{.underline}**. Telecommuting agreements are records
subject to agency records retention standards and should be available as
needed for program reviews, audits, evaluations, and other reporting
requirements.

**Recommendation 10.** The program coordinator must retain telecommuting
agreements for 5 years after telecommuting is terminated as specified in
the agency's records retention schedule.

**Action:** Program Coordinator, ACT-10

**Due Date:** Continuous

**CONCLUSION**

The telecommuting program implemented by the Technical Center has some
minor non-compliance in the agreements as defined in the DOT Order and
FAA Telecommuting Handbook but these have not impacted program
implementation. Non-compliances and inconsistencies exist in "work at
home" practices not covered by either the telecommuting or other
official alternate duty station policies. The audit team was not able to
measure or quantify the benefits, savings, costs, or cost avoidance
associated with telecommuting at the Technical Center. The level of
participation is 2.58% of the estimated 698 potentially eligible
employees in the 822 workforce. There are opportunities to increase
telecommuting participation, awareness, cost savings, and other benefits
identified in the intent of the telecommuting program.

**AUDIT REPORT**

**TELECOMMUTING - GOING THE DISTANCE OR NOT?**

# 

**INTRODUCTION**

# 

# **BACKGROUND**

The Department of Transportation (DOT) established a telecommuting
program in the early 1990's in response to the Presidential National
Performance Review. The DOT and FAA policies and procedures are
published in DOT Order 1501.1, dated March 26, 2003; and the FAA
Telecommuting Handbook, dated May 1997. The Technical Center
established, approved, and implemented its telecommuting program in
1994. The Human Resource Management Division, ACT-10, provides the
program coordinator. Employees and managers who participate in
telecommuting make it a workable, effective, and successful program
under the parameters that it is voluntary for employees and a management
tool for managers.

Appropriation language in the FY 2001 Department of Transportation and
Related Agencies Appropriations Act, Public Law 106-346, Section 359
conveyed the intent to substantially increase telecommuting
participation. It set an initial goal of 25% of eligible employees for
telecommuting. The DOT Secretary stated, "It is the policy of DOT to
encourage the use of telecommuting to the maximum extent possible",
considering telecommuting is consistent with DOT performance goals of
reducing highway congestion and mobile source emissions. FAA has
identified 19,559 positions suitable for telecommuting. In concert, the
Office of Personnel Management Director, when distributing [Telework: A
Management Priority, A Guide for Managers, Supervisors, and Telework
Coordinators]{.underline} in May 2003, stated "managers who aggressively
encourage the use of telework for the right employees and the right
situations will contribute to the overall performance of the Federal
Government."

As recently as April 16 and May 8, [The Press of Atlantic
City]{.underline} published articles stating that the Environmental
Protection Agency (EPA) found New Jersey, specifically Atlantic County,
to be one of several states that failed to meet EPA air quality
standards. A telecommuting program could impact these findings. In
addition, many government and private organizations credit telecommuting
for mutual benefits in the areas of recruiting, motivating workers,
increased productivity, worker retention, reduced sick leave usage,
reduced traffic congestion, less impact on limited energy and
transportation resources, and reduced mobile exhausts into the
environment.

# 

# **PURPOSE**

This audit was performed at the request of the Center Director to review
the consistency of implementation of telecommuting across the
organization. In addition, the audit team performed the audit to: (1)
follow-up on recommendations in the January 9, 2001, evaluation report
prepared by the former Appraisal and Planning Staff; (2) determine
Center implementation compliance as compared to the legislative intent
stated in public laws; and national policies and guidelines established
by the OPM, DOT, FAA, and the FAA William J. Hughes Technical Center;
(3) determine participation level and impact on Center operations and
operating costs; and (4) identify position functions and "suitability"
traits for participation in the telecommuting program.

**SCOPE AND METHODOLOGY**

This audit included all personnel assigned to the Technical Center
organization as of

January 1, 2004. The DOT Telecommuting Order 1501.1 dated March 26,
2003; and the 1997 FAA Telecommuting Handbook provided the basis for
determining compliance. These documents also identified expected
benefits, plans, and actions for the program. Action taken in response
to the recommendations of the previous telecommuting program evaluation
was assessed to determine the impact on the program as it is currently
implemented. Other issues and concerns reported in the January 9, 2001
report were addressed.

A total of 18 employees were identified as participating in the
telecommuting program as of February 29, 2004 according to the
telecommuting agreements on file with the Telecommuting Program
Coordinator in the Human Resource Management Division, ACT-10. Thirteen
(13) first-line managers were identified for the telecommuters. Each
participant and the respective manager were interviewed. Only a partial
identification of past participants could be made; thus the use of this
information for trends in program participation and assessment is
limited.

A non-participant's perspective was obtained from interviews with 15
employees and 15 managers randomly selected. During the data collection
phase, the audit team found one randomly selected employee started
telecommuting a month after the initial date identified in the scope.
The team agreed to expand the time scope to February 29, 2003, causing
the increase to 18. The senior management staff and two Technical Center
local union officials were interviewed.

The audit team relied on commentary for assessing the benefits of the
program. Quantifiable measurements on benefits, costs, savings, or cost
avoidance were not readily available or could not easily be
substantiated beyond corroborative comments from multiple interviewees.

Audit team members from the Office of Enterprise Performance and ad hoc
representatives from the Office of Innovations and Solutions; Office of
Human Capital Strategies; Office of Operations, Technology, and
Acquisition; and the Human Resources Management Division (ACT-10)
performed this audit. They are:

Carolyn McKinney-Bobo Alan Cannizzaro John DiNofrio Maudie M. Powell
Wanda Harris Lana Haug

> Phyllis Schlegel

**FINDINGS, RECOMMENTATIONS, AND CONCLUSION**

# **Program Compliance**

[Telecommuting Agreements]{.underline}

The FAA Telecommuting Handbook states that, "each employee who wishes to
telecommute and his/her supervisor must sign a written telecommuting
agreement that specifies the terms and conditions of participation in
the program." The handbook further states that telecommuting agreements
must include, as a minimum, the following information:

-   Telecommuting location (e.g., employee's home address, specific
    telecenter, etc.);

-   Duration of employee's participation (either permanent or for a
    specified time period);

-   Telecommuting schedule (e.g., identify specific days each week, pay
    period, or month that the employee will telecommute);

-   A list of specific duties to be performed while telecommuting;

-   Procedures for administrative tasks (such as time and attendance,
    leave, etc.); and

-   Procedures for work processes (such as submission and review of
    completed work, participation in meetings and conference calls,
    etc.).

Copies of participants' telecommuting agreements served as the sole
source for identifying current program participants, and the primary
data source and artifact evidencing compliance. The review and analysis
of telecommuting agreements found that all the agreement requirements
identified in the FAA Telecommuting Handbook were not included in all 18
agreements. The audit team developed a checklist, Appendix 1, to review
and analyze telecommuting agreements and found the following.

**Table 1. Telecommuting Agreement Compliance Summary**

Requirement No. Complying No. Non-Complying

Telecommuting Location 18 0

Duration of Employee's Participation 7 11

Telecommuting Work Schedule

Frequency 17 1

Specific Days 17 1

Work Hours 8 10

Duties to Be Performed 18 0

Telephone Access 18 0

Agreement Signatures

Employee 18 0

Supervisor 18 0

Annual Review 17 1

Self-Certification Safety Checklist 17 1

Other terms and conditions defined in the FAA Telecommuting Handbook
were reviewed using the checklist. Special attention was paid to the
condition that prohibited telecommuting for less than a full day and
excused time for telecommuters, concerns from the previous report. The
team found no evidence that current participants' work schedules
approved telecommuting for less than a full day.

On the other hand, one instance was found when a review of time and
attendance records disclosed that one telecommuter received
administrative leave for a normal worksite emergency on a scheduled
telecommuting day according to the telecommuting schedule on file. This
situation may be insignificant because interviews with employees and
managers disclosed managers and employees often agree to ad hoc changes
to the telecommuting agreement schedule to accommodate work activities
without documentation or changing the telecommuting agreement. This
practice can increase the potential for such administrative oversights
in time and attendance reporting and approval. Supervising a
telecommuter requires additional scrutiny in approving time and
attendance reports and administrative leave.

Telecommuting agreements also define the specific days the employee
works at the telecommuting site. The scheduled telecommuting days could
not be discerned in one agreement. Most managers and employees said they
have either changed or cancelled a scheduled telecommuting day to
respond to work requirements. Examples of situations requiring such
changes included lab test activities, system/equipment demonstrations,
travel requirements, and mandatory in-person meetings and working
sessions. The managers and employees say these ad hoc changes are
identified and agreed upon in advance. The change may be documented in
an email between the manager and employee, not as an amendment to the
telecommuting agreement, but most often is a verbal agreement.

Interviews with managers disclosed that employees have been authorized
to "work at home" on situational bases. This infrequent or irregular
work at home was not documented because the managers did not consider
this practice to be within the definition of telecommuting as defined in
the FAA Telecommuting Handbook. The team considered this practice to be
non-compliant and inconsistent with approved policies and guidelines
related to official duty station designations. Agency policies related
to alternate duty stations do no address performing official duties "at
home" outside of the provisions of the telecommuting program, which
requires documentation.

Finding 1. The telecommuting agreement non-compliances have little to no
impact on program implementation. Still, there is potential for negative
impacts in failure to identify "work schedule." Both participating and
non-participating managers expressed concerns with the availability of
the telecommuter for official duties. Without specific work hours
identified in the agreement, employees/co-workers not familiar with the
telecommuter's work schedule may experience difficulties in
communications and coordination. There's potential for the
non-participants to develop perceptions that the telecommuter is "not
working" or there is reduced accessibility when telecommuting if others
try making contact before or after the scheduled work hours.

Recommendation 1. Managers, employees, and the Telecommuting Program
Coordinator use a checklist, such as Appendix 1, when developing and
updating telecommuting agreements to ensure compliance with FAA
Telecommuting Handbook requirements.

### Recommendation 2. Each participant and the respective manager jointly review and update the telecommuting agreement as necessary to ensure each FAA Telecommuting Handbook requirement is completely and clearly met in the document on file with the employee, manager, and the Telecommuting Program Coordinator.

**Finding 2.** Irregular and infrequent "work at home" not authorized by
a telecommuting agreement or other alternate duty station policies are
non-compliances and inconsistencies that distort the perceptions and
actual participation in the telecommuting program.

**Recommendation 3**. All official duties performed at locations other
than the assigned permanent or temporary duty station must be covered by
an existing policy or officially approved and documented.

**Finding 3.** Approval of administrative leave for emergency or other
conditions at the normal worksite is prohibited for an employee on a
scheduled telecommuting day. Mutual, advance, short-term, and ad hoc
changes to the telecommuting agreement schedule are permitted by the
handbook, but can increase the potential for administrative oversights
in time and attendance reporting and approval. Supervising a
telecommuter requires additional scrutiny in approving time and
attendance reports and excused absences for employees.

**Recommendation 4.** Correspondence (generally provided by ACT-10)
authorizing approval of administrative leave for emergency or special
situations at the normal worksite should also specify applicability to
telecommuters.

**[Other Program Practices]{.underline}**

[Suitable Positions and Tasks]{.underline}

Participants in the telecommuting program are assigned to a variety of
positions in both the FG and core compensation (FV) pay schedules. The
current 18 telecommuters hold the following positions.

Table 2. Current Telecommuter's Position Titles, Series, and Grade

  -----------------------------------------------------------------------
  [Number]{.underline} [Position Title]{.underline}

  1 Management Analyst, FG-343-13

  1 Engineering Research Psychologist, FG-0180-13

  1 Program/Management Analyst, FV-343-J

  5 Electronics Engineer, FG-855-14

  1 Electronics Engineer, FG-855-12

  1 Program/Management Analyst, FG-343-12

  1 Emergency Management Specialist, FV-301-G

  1 Computer Specialist, FG-334-14

  1 Automation Specialist, FG-301-12

  1 Operational Research Analyst, FG-1515-14

  1 Computer Specialist, FG-334-13

  1 Computer Scientist, FG-1550-14

  1 Meteorologist, FG-1340-14

  1 Safety & Occupational Health Manager, FG-0018-13
  -----------------------------------------------------------------------

Studies by OPM, other federal agencies, and private industry have
identified the following positions as telecommuting candidates.

-   writer/editor

-   scientist

-   investigator

-   psychologist

-   environmental engineer

-   budget analyst

-   computer scientist

For some positions initially considered unsuitable for telecommuting,
breaking down the position into individual tasks is a recommended course
of action for reaching a definitive conclusion.

Discussions with employees and managers, and reviewing the 18
telecommuting agreements provided a list of functions, tasks, and
assignments the telecommuters perform. Excerpts from the complete list
provided in Apprndix 2 follow.

-   Document reviews -- procedures, work authorizations, environmental
    bulletins, proposal documentation, contractor invoices, process
    documentation, test plans, system engineering plans and documents

# Analysis - budget analysis for service contract; analyze design issues in identified systems; analyze customer feedback process and results, risk, test data, and results; conduct operational and technical analyses; service volume studies

-   Research - research requirements, aviation safety data, system
    engineering plans and documents

# Development - develop customer feedback reports, program schedules, measures for program operations, plans and procedures for operational testing, meeting agenda, minutes and follow-up actions, productivity improvements, tools, metrics, and reporting systems

# Report preparation - audit reports and operations plans, demonstrations, models, and samples

# Software - code development and maintenance, data reduction, performance capabilities and limitations

# Coordination - special projects with other agencies/organizations, installation and set-up of test bed

# Communication (via email, telecon) - provide weekly and monthly status reports, teleconferences with software project developers, briefings, and meetings

# Other tasks - draft responses to inquiries and questions from management, evaluations of NAS change proposals, project desktop procedures, updating database, process EEO complaints, budgetary and financial planning, monitoring, reconciliation and reviews

These tasks have the characteristics various government agencies' and
private organizations' policies, handbooks, and guidance suggest as
suitable for telecommuting. They include:

-   Work that requires thinking and writing, such as data analysis,
    reviewing grants or cases and writing regulations, decisions or
    reports;

-   Telephone-intensive tasks such as setting up a conference, obtaining
    information, and contacting customers; and

-   Computer-oriented tasks, such as programming, data entry, and word
    processing.

Both employees and managers agreed that certain Technical Center
functions are not suitable for telecommuting. System testing that
requires use of the unique laboratory facilities, and functions
requiring personal contact with customers, such as managerial and
secretarial, are not suitable according to interviewees' comments.
Opinions on the suitability of various clerical and administrative
support positions varied, but a breakdown to individual tasks may reveal
a different determination about telecommuting as infrequently as one day
a week or per pay period. Consideration is also given to whether access
can be obtained to operating systems and databases (such as PRISM and
DELPHI) via the Internet or other means (such as Soft Token accounts)
from the alternate work location. The OPM manual warns that, "What is
critical is that any position is not automatically ruled out as
telecommuting suitable."

[Employee Suitability Traits]{.underline}

The FAA Telecommuting Handbooks states that a "suitable employee" for
telecommuting must have at least a fully satisfactory performance
rating. In addition, other descriptions and suitable traits cited by
those interviewed and reference documents include:

-   Capabilities

-   Self motivation

-   Integrity

-   Experience level

-   Requires minimal supervision

-   Work ethics

-   Plan work schedule

-   Meets deadlines

-   Computer or technology literate

OPM's Telework Manual contains an assessment tool that employees or
managers can use to aid in determining the appropriateness of
telecommuting for an employee or position. This manual is posted on
OPM's Internet site (http://www.opm.gov).

[Monitoring Work]{.underline}

Just as guidance consistently states that the telecommuter's work must
be clearly defined and monitored, the DOT Order 1501.1 states that
employees and managers, "must have a common understanding of the work
objectives, desired results and evaluation criteria. Measurement tools
such as status reports, progress reviews, and milestones may be used to
measure and evaluate employee performance."

Managers interviewed stated the inability to develop metrics for work
and productivity is a barrier to encouraging telecommuting. Those
managers who have participated by supervising a telecommuter say they
use product or service deliverables, timeliness, and quality in
monitoring telecommuters' work. These are comparable to the guidance
given in the DOT Order 1501.1. Most commented that the telecommuter's
performance has, at least, remained the same, but in many cases
increased in terms of quantity, quality, and timeliness although
specific measures were not available. According to the managers, no
schedules or due dates within the telecommuter's control have been
missed as a result of the employee telecommuting.

[Program Participation Level]{.underline}

Although legislation and executives have mentioned increasing the level
of participation in the telecommuting program, the current Technical
Center participation is 2.58% (18 of 698 estimated potentially eligible
employees {excludes managers and secretaries} among the 822 workforce).
Compared to the participation level when the January 2001 report was
issued, the number of telecommuters increased from 13 to 18 over the
3-year period. The FAA headquarters Telecommuting Coordinator has
indicated that the initial federal goal in the appropriation legislation
was 25% of eligible employees with anticipated steady increases. The FAA
headquarters Telecommuting Coordinator reported that, on a national
basis, FAA has only 3.9% of its 19,559 eligible employees participating.
When reviewing these statistics, one must keep in mind the parameters of
telecommuting; it is voluntary for employees and a management tool for
managers.

When interviewing selected employees and managers, they estimated that
between 25% and 100% of the employee's and organization's assigned
functions could be performed in a telecommuting environment. Managers
estimated as few as none and as many as 11 (representing 100% of the
assigned staff) of their employees performed tasks suitable for
telecommuting. Two employees are telecommuting to the maximum extent
based on the estimated suitable portion of their functions; one
telecommutes 10 days the other 5 days per pay period. In other cases,
employees estimated 80% of their work could be performed at the
telecommuting site, but they telecommute only one (20-25%) of their 4 to
5 day workweek. The table below shows the "gap" based on a 10-day pay
period and opportunities for expanded participation.

**TABLE 3. TELECOMMUTING PARTICIPATION GAP ANALYSIS**

  ------------------------ ----------- ----------- --------------- ------------
                           Estimated   Potential                   

  Employee \#              \% Suitable \# Days     Actual #Days    Difference

  #1                       25%         2           3 (FMF)         1

  #2                       50%         5           2 (WW)          -3

  #3                       50%         5           4(WFWF)         -1

  #4                       60%         5           5 (MTThTTh)     0

  #5                       90%         7           2 (ThTh)        -5

  #6                       40%         4           2 (ThTh)        -2

  #7                       50%         4           2 (ThTh)        -2

  #8                       50%         5           4 (MFMF)        -1

  #9                       80%         8           2 (TT)          -6

  #10                      100%        10          10 (M-F, M-F)   0

  #11                      90%         9           6(MWFMWF)       -3

  #12                      100%        10          4 (MThMTh)      -6

  #13                      80%         6           2 (FF)          -4

  #14                      25%         2           1 (F)           -1

  #15                      95%         7           2 (ThTh)        -5

  #16                      50%         4           2 (MM)          -2

  #17                      60%         4           2 (FF)          -2

  #18                      80%         8           2 (FF)          -6
  ------------------------ ----------- ----------- --------------- ------------

Employees interviewed indicated that they do not participate more
because they either do not believe the manager would support more
telecommuting days or they do not want to increase the potential of
coworkers' negative perceptions of the program (i.e. telecommuter not
working or "getting a free day off.") Managers indicate that one reason
more employees are not participating is the employees have not asked nor
have they encouraged program participation. The lack of metrics to
measure telecommuters' performance also dissuades managers from
encouraging more participation. They also expect that if one employee is
allowed to telecommute, many more or all their employees will want to
telecommute.

Two denials of telecommuting requests were found among the selected
employees and managers during the audit. The reasons for the denials
were deemed appropriate for the work situation; i.e., the proposed tasks
were not suitable to be performed in the telecommuting environment. Yet,
some non-participants said they would like to telecommute but they had
not requested it because the manager had revealed individual opposition
to the program, implying denial of any request.

Current telecommuters have been participating for varying periods. Some
have been telecommuting for as little as 2 months up to more than 7
years. The average length of time for telecommuting is 3 years among the
current participants. The longevity of individual participation can be a
metric for the program indicating that telecommuting can work for
extended periods of time.

The audit team was not able to obtain complete information on past
participants in the telecommuting program from the January 2001 report
to the present. Agreements for six past participants were made available
to the team. The review of these agreements was limited because a
determination could not be made on what portion of the total past
population was represented. Telecommuting agreements, the source for
identifying telecommuters, are disposed once notification is received
that an employee is no longer telecommuting. Likewise, old versions of
telecommuting agreements are not retained when an update is submitted to
the program coordinator. Changes made during the telecommuting period
cannot be identified without the historical documentation. This
historical information could be useful for identifying variations in
program participation.

In some cases, the current participates have telecommuted under the
supervision of multiple managers. When the staff assignment changed, the
telecommuting request and approval process was repeated with the newly
assigned manager and the employees were able to continue the program
under terms acceptable to both parties.

Almost all interviews disclosed that telecommuting is not an openly
discussed topic. Both participating and non-participating managers and
employees said they only discuss telecommuting when asked about it. Few
participants said they had gotten inquiries from their coworkers about
the program or they had not initiated discussion with anyone other than
the manager. Most non-participants said they had little or no knowledge
about the telecommuting program and how it is implemented. Many
employees said they do not know enough about the program to determine if
it is something they would like to do or if they and their position are
suitable. The non-participating managers made the same response when
asked about their knowledge of telecommuting. The interest level was
high for more information on the program.

[Program Cost-Benefit Analysis]{.underline}

[Costs Savings and Avoidance]{.underline}

Efforts to identify costs associated with establishing and operating the
Technical Center telecommuting program produced limited quantitative
data. Through the interviews, the audit team found that most
telecommuters use their personal equipment, Internet services, and
telephone service while telecommuting. In one case, an employee was
allowed to use excess government computers at the telecommuting site. In
another case, the organization made a capital investment of \$2,006 to
purchase a new computer, printer, and speakerphone to establish an
employee's telecommuting worksite about 2 years ago. The organization
continues to maintain the equipment as needed but maintenance costs were
not available. Another telecommuter is reimbursed for official toll
telephone calls estimated at \$15 a month or \$180 per year. Using these
broad estimates for the current 18 telecommuters, the direct cost to the
Technical Center was approximately \$2,006 start-up and about \$180 per
year recurring, or approximately \$2000 per.employee. In the commercial
arena, some organizations invest \$4,000 to \$6,000 per employee to
allow individuals to telecommute. The Center incurred little direct cost
to establish the telecommuting program and the program is producing
equally limited direct, monetary savings as discussed below.

From a different perspective, quantitative data on cost savings and
other benefits associated with the telecommuting program did not exist
or could not be measured and substantiated, only corroborated by
commentary. However, employees and managers cited benefits including:

-   Reduced commuting time, expenses, stress, fatigue attributed to
    travel

-   Reduced impact on environment

-   Increased productivity resulting from fewer workplace distractions

-   Increased job satisfaction

-   Increased time with family

-   Increased morale

-   Improved employee-supervisor relationship, higher implied and
    perceived trust

-   Reduced use of sick leave including returning to work sooner in
    medical cases (such as broken limbs, flu or colds, or recovery from
    surgery, or family situations)

```{=html}
<!-- -->
```
-   Increased quality and timeliness in services and products

-   Telecommuters' work performance remained the same or increased

-   Tasks completed within approximately half the expected time

-   Increased commitment to completing assignments

-   Reduced backlog

Reduction in an organization's operating cost is [commonly]{.underline}
stated as a result of telecommuting. Obvious areas for reductions can be
utilities and space requirements. For the Technical Center,
consideration is also given to parking requirements. Although detailed
operating cost data is not currently captured for Technical Center on a
per capita basis, the audit team developed a sample quantitative
estimate for cost savings in utilities based on the 18 participants and
cost avoidance in other areas if participation levels increased.

[Electricity]{.underline}

During the course of a pay period (2 weeks), the 18 telecommuters work
at their alternate location a total of 59 days. Using an electrical
engineer's estimate for electricity to run an average computer
workstation for this period, the estimate is a \$1,687.40 reduction in
the annual utility costs. This estimated energy reduction does not
include further decreases, if any, for climate control to compensate for
the compute and body heat generated.

[Work Space]{.underline}

Idle, vacant office space (estimated cost of \$2400 per year per 64
square foot cubicle based on Office of Enterprise Performance cost data)
on telecommuting days is not contributing to program savings.
Opportunities exist for additional cost savings if telecommuting
participation increased to 5% of the total workforce and workspace is
shared. The term "multiple occupancy workstation" (MOWS) is used to
refer to sharing workspace. Center management has identified a shortage
of space on Center implying a financial impact to address the need.
Telecommuting offers an option to resolve and contain the cost for the
situation. For example, if 50 employees participated in telecommuting,
had schedules that allowed them to employ MOWS, the computation yields
\$60,000 annual cost avoidance. Interviews with telecommuters and
non-participating employees revealed a mixed opinion on MOWS, yet the
local union officials expressed support of the concept for increased
telecommuting participation and savings for the organization.

Another option on workspace is that its use could be offered to on-site
contractors, causing a lower general and administrative (G&A) rate in
contract negotiations. The lower G&A rate equates to reduced contract
dollars for contractor support efforts.

[Parking]{.underline}

Telecommuting offers an option for cost avoidance by reducing the number
of vehicles requiring parking space, thus avoiding cost associated with
parking facility upgrades and additions.

[Program Successes and Barriers]{.underline}

Managers and employees generally agreed on the successes and barriers of
the program. The interviews identified program components that are
working and barriers that keep more employees and managers from
participating. In addition to the benefits cited earlier, the following
positive comments were offered.

-   Improves agency image in being considerate of employees' needs

-   Relieves stress in the work environment

-   Provides flexibility for where work is performed

On the other hand, the barriers to participation included:

-   Perception of favoritism in approving telecommuting

-   Expectation that if one employee is approved to telecommute, all
    will want to telecommute

-   Lack of trust on the part of managers.

**[Finding 4]{.underline}** Limited efforts are made to increase
employee awareness of and participation in the telecommuting program.

**Recommendation 5.** Increase program awareness and feasibility by
various educational and communication means among employees and
managers.

**Recommendation 6.** Senior management should clearly communicate its
position on the program and hold managers accountable for implementing
this position.

**Recommendation 7.** Continue the Technical Center telecommuting
program.

**Recommendation 8.** Provide informational copies of FAA required
reports on telecommuting participation to the Office of Enterprise
Performance for trend analysis, using this report as the baseline.

**Recommendation 9.** Determine the ACT positions eligible for
telecommuting to be used as an accurate baseline for future reviews and
program activities.

**[Finding 5]{.underline}**. Telecommuting agreements are records
subject to agency records retention standards and should be available as
needed for program reviews, audits, evaluations, and other reporting
requirements.

**Recommendation 10.** The program coordinator must retain telecommuting
agreements for 5 years after telecommuting is terminated as specified in
the agency's records retention schedule.

**CONCLUSION**

The telecommuting program implemented by the Technical Center has some
minor non-compliance in the agreements as defined in the DOT Order and
FAA Telecommuting Handbook but these have not impacted program
implementation. Inconsistencies exist in "work at home" practices not
covered by either the telecommuting or other official alternate duty
station policies. The audit team was not able to measure or quantify the
benefits, savings, costs, or cost avoidance associated with
telecommuting at the Technical Center. The level of participation is
2.58% of the estimated 698 eligible employees in the 822 workforce.
There are opportunities to increase telecommuting participation,
awareness, cost savings, and other benefits identified in the intent of
the telecommuting program.

**APPENDIX 1. TELECOMMUTING AGREEMENT CHECKLIST**

  ------------------------------------------- ------------------ ---------
  TELECOMMUTING AGREEMENT REVIEW/CHECKLIST                       

  FOR REQUIRED COMPONENTS/PROVISIONS                             

  Requirement                                 Comply (y or n)    

  **Name**                                                       

  **Position Description**                                       

  Title                                                          

  Series                                                         

  Grade                                                          

  **Organization**                                               

  **TC Location**                                                

  Home                                                           

  Telecenter                                                     

  Virtual Office                                                 

  **TC Location Phone \#**                                       

  **TC Schedule**                                                

  AWS                                                            

  AWS RDO                                                        

  #Days                                                          

  Specific Days                                                  

  Work Hours                                                     

  Lunch Duration                                                 

  **Duties/Tasks/Projects Assigned**                             

  **#Duties/Tasks/Projects Defined**                             

  **Work Review/Monitoring Defined**                             

  **Agreement Format**                                           

  Handbook Template                                              

  Tailored Format                                                

  **All Terms and Conditions Stated**                            

  **GFE/Supplies/Services**                                      

  Equipment Inventory by Barcode                                 

  Supplies Provided                                              

  Software Provided                                              

  Telephone Services                                             

  Other Services                                                 

  **Self Certification Safety Checklist**                        

  **Safety Checklist Signed and Dated**                          

  Employee                                                       

  Supervisor                                                     

  Date less than a year                                          

  **Agreement Signed and Dated**                                 

  Employee                                                       

  Supervisor                                                     

  **Date on Agreement**                                          

  Less than a year                                               

  **Copy to HR Coordinator**                                     
  ------------------------------------------- ------------------ ---------

**APPENDIX 2**

**Functions, Tasks, and Specific Assignments Performed by
Telecommuters**

**(extraction from existing telecommuting agreements)**

# Document Reviews

-   Review work instructions and procedures

-   Review and approve work authorizations (financial)

-   Review environmental bulletins

-   Requirements review

-   Review proposal documentation

-   Review contractor invoices

-   Review and comment on process documentation

-   Review reference documentation and literature on projects

-   Review and evaluate test plans

-   Review reports and deliverables

-   Review and maintain access and usage for database

-   Review and comment on system engineering plans and documents

# Analysis

-   Budget analysis for service contract

-   Analyze radar and tracking design issues in identified systems

-   Analyze customer feedback process and results

-   Compile and analyze test data and results

-   Risk analysis

-   Conduct operational and technical analyses

-   Performance and requirements analyses pertaining to NAS safety and
    security

-   Annual service volume studies

# Research

-   Research requirements

-   Research and assemble aviation safety data

-   Research on system engineering plans and documents

# Development

-   Program schedule development

-   Develop customer feedback reports

-   Develop measures for program operations

-   Develop plans and procedures for OT (operational testing)

-   Develop meeting agenda, minutes, and follow-up actions

-   Development documentation

-   Develop productivity improvements, tools, metrics, and reporting
    systems

-   System engineering process development and evaluation

-   Document performance risks and limitations

-   Requirements and data dictionary development and database entry

# Report Preparation

-   Prepare audit reports

-   Prepare, coordinate, promulgate, and maintain operations plans

-   Prepare demonstrations, models, and samples

-   Drafting and preparing reports

# Software

-   Software development and maintenance

-   Data reduction

-   Software code development

-   Investigate software and hardware implementations

-   Performance capabilities and limitations

# Coordination

-   Coordinate special projects with other agencies/organizations

-   Coordinate installation and set-up of test bed

# Communication (via email, telecon)

-   Provide weekly and monthly status reports

-   Teleconferences with software project developers

-   Participate in telephone briefings, teleconferences and meetings

# Other tasks 

-   Draft responses to inquiries and questions from management

-   Respond to action items from headquarters

-   Issue studies

-   Design change recommendations; evaluations of NAS change proposals

-   Draft or propose NAS baseline or process change documents

-   Prepare plans and approaches to resolve design issues, participate
    as NAS CCB

-   Draft reports, white papers, and methods of solution

-   Validation and improvement of capabilities

-   Flight test data processing

-   Generate project desktop procedures

-   Monitor expenditures for support contractors

-   Evaluate documents for processing and updating database

-   Process EEO complaints

-   Project management, risk analysis, and project planning

-   Prepare, review, and comment on documents such as policies, subject
    matter plans, process descriptions, test procedures, various reports

-   Budgetary and financial planning, monitoring, reconciliation, and
    reviews

-   Preparation of budget requests, reviews, and reconcile

-   Data analysis and project studies

-   Develop and verify requirements

-   Data entry and database maintenance

**REFERENCES**

Department of Defense Telework Guide

DOT Order 1501.1, Department of Transportation Telecommuting Policy,
March 26, 2003

FAA Order 1350.15C, Records Organization, Transfer, and Destruction
Standards**,** 8/29/01

FAA Telecommuting Handbook, May, 1997

FAA William J. Hughes Technical Center, Evaluation of the Telecommuting
Program at the William J. Hughes Technical, Report No. FY-01-1, January
9, 2001

Fast Company Magazine, "Marcus Buckingham Thinks Your Boss Has an
Attitude Problem," http://www.fastcompany.com/magazine/49/Buckingham.htm

Federal Human Resources Week, "Three 'musts' for successful flexiplace
programs,"

December 13, 1999, page 505

Office of Personnel Management and General Services Administration,
"Interagency Telework Site, <http://www.telework.gov/>

FAA WJH Technical Center Telecommuting Audit Team Interview Instruments:
Participants, Non-Participating Employees, Participating Managers,
Non-Participating Managers, Executive Managers

[The Press of Atlantic City]{.underline}, April 16 and May 8.

U.S. Office of Personnel Management, Telework: A Management Priority A
Guide for Managers, Supervisors, and Telework Coordinators, May 2003

Workforce Performance Newsletter Reprint (OPM), "Telecommuting Requires
Topnotch Performance Management", Winter 2001