TELEWORK:

Weighing the Information,

Determining an Appropriate Approach

A Report to the President and the Congress of the United States 

by the U.S. Merit Systems Protection Board

OCTOBER 2011
THE CHAIRMAN

U.S. MERIT SYSTEMS PROTECTION BOARD

1615 M Street, NW

Washington, DC 20419

The President

President of the Senate

Speaker of the House of Representatives

Dear Sirs:

In accordance with the requirements of 5 U.S.C. § 1204(a)(3), it is my honor to submit this 

U.S. Merit Systems Protection Board report, Telework: Weighing the Information, Determining an Appropriate 

Approach. Federal organizations continue to be interested in the role that telework can play in efficient and 

effective use of the workforce. This report uses survey data from Federal employees and supervisors, and other 

information, to provide a holistic depiction of the key benefits, concerns, and implementation considerations 

for organizations to weigh when determining how to integrate telework into their business strategy. 

The results of our study confirm that telework can result in many benefits for organizations and 

employees alike. Further, and of critical importance, our findings indicate that the benefits of telework can 

occur while maintaining productivity and performance, if telework is managed appropriately. A key step 

that organizations must take in implementing an effective telework program is to ensure supervisors have 

the necessary skills and support to manage performance in a telework environment. Good performance 

management skills will be critical for enabling supervisors to make wise decisions about using telework 

in their work units and ensuring fair treatment of teleworkers and nonteleworkers. In addition, the 

organizational leadership must foster a culture that is conducive to telework, and ensure a well thoughtout technology infrastructure that allows for access to necessary business tools and continuity in work 

unit dynamics. Flexibility in perspective about telework will be key, as will continuous evaluation of 

the effectiveness of telework. These strategies will be critical for realizing the benefits of telework and 

mitigating concerns. 

The report’s central message is the importance of weighing the applicable benefits of and concerns 

about telework with legal requirements and implementation considerations when making decisions about 

how to appropriately use telework in a given situation. I believe you will find this report useful as you 

consider issues affecting the Federal Government’s ability to operate efficiently and effectively in these 

challenging times.

Respectfully,

Susan Tsui Grundmann 

Enclosure
TELEWORK:

Weighing the Information,

Determining an Appropriate Approach

TELEWORK:

A Report to the President and the Congress of the United States 

by the U.S. Merit Systems Protection Board
U.S. Merit Systems Protection Board

Susan Tsui Grundmann, Chairman

Anne M. Wagner, Vice Chairman

Mary M. Rose, Member

Office of Policy and Evaluation

Director

John Crum, Ph.D.

Deputy Director

Laura Shugrue

Project Management Team

Julie Osowski, Ph.D.

Tanya L. Page

Allison Wiley

DeeAnn Batten, Ph.D.

Project Analysts

James J. Tsugawa

J. Peter Leeds, Ph.D.
Table of Contents

A Report by the U.S. Merit Systems Protection Board

Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i

Findings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i

Recommendations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iii

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Study Methodology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

Important Things to Keep in Mind When Reading This Report . . . . . . . 7

Telework as a Business Strategy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

Direct Benefits of Telework for Organizations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

Direct Benefits of Telework for Employees . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

Indirect Benefits of Telework for Organizations . . . . . . . . . . . . . . . . . . . . . . . . . . . 14

Telework and Productivity and Performance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20

Summary of the Business Case for Telework . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24

Concerns About Telework . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

Telework and Work Unit Performance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

Telework and Work Unit Dynamics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26

Telework and Teleworker Responsiveness and Availability . . . . . . . . . . . . . . . . . . . 29

Summary of Concerns About Telework . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30

Potential Considerations for Implementing a Telework Program . . . 33

Culture and Leadership Preparedness for Telework . . . . . . . . . . . . . . . . . . . . . . . . 33

Supervisor Preparedness . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35

Logistical Preparedness: Technology, Equipment, 

Technical Support, and Security . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41

Logistical Preparedness: Telework Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43

Deciding on an Appropriate Approach to Telework . . . . . . . . . . . . . . . . . . . . . . . . 44

Summary of Implementation Considerations . . . . . . . . . . . . . . . . . . . . . . . . . . . . 47

Conclusions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49

Recommendations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53

Organizational Leaders, Supervisors, and Employees . . . . . . . . . . . . . . . . . . . . . . . 53

Organizational Leaders . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53

Supervisors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54

Employees . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56
Telework: Weighing the Information, Determining an Appropriate Approach

Table of Contents

Appendix A: 

Telework Survey . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57

Appendix B: 

MSPB Employee Engagement Scale . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 69

Appendix C: 

Additional Information on Study Methodology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 71

Appendix D: 

Importance of Factors in Employees’ Decisions To Request Approval 

to Telework on a Routine Basis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 75

Appendix E: 

Importance of Factors in Supervisors’ Decisions to Support or Deny 

Employees’ Requests to Telecommute on a Routine Basis . . . . . . . . . . . . . . . . . . . . . . . 77

Appendix F: 

Importance of Factors in Employees’ Decisions To Not Request 

Approval to Telework on a Routine Basis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 79
A Report by the U.S. Merit Systems Protection Board i

Executive Summary

The Federal Government has a responsibility to use the Federal workforce in an efficient 

and effective manner.1 Such usage requires that Federal organizations implement 

policies, practices, and procedures that strategically balance organizational and human 

capital needs. If used appropriately, workplace flexibilities such as telework can function as 

such a practice. According to the Telework Enhancement Act of 2010, telework is “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.”2 With telework, instead of physically 

commuting to the office to perform work responsibilities followed by commuting home, 

teleworkers simply “commute” to their home office area or to another approved geographically 

close location to perform their work. Telework, which provides flexibility in where and when 

work is accomplished, is a tool that can be leveraged within an organization’s overall business 

strategy as one means to further mission accomplishment. 

Federal organizations continue to be interested in the role that telework can play in efficient 

and effective use of the workforce. This report is based on the analysis of survey data of Federal 

employee, supervisor, manager, and executive experiences with—and perceptions of—telework 

in the Federal workplace, as well as a review of various news articles, a sample of relevant 

professional literature, and interviews with leaders in telework. The report details a number of 

benefits, concerns, and implementation considerations for telework that we believe are likely to 

be of interest to most organizations. The report’s central message is the importance of weighing 

applicable benefits of and any concerns about telework in conjunction with legal requirements 

and implementation considerations when making decisions about how to appropriately use 

telework in a given situation. 

Findings

Telework Can Directly Benefit Organizations. Telework can support continuity of operations 

plans and organizational preparedness for emergency situations. Additionally, it can potentially 

reduce organizations’ need for physical office space and its accompanying real estate and related 

expenses. These direct benefits could have a significant impact on organizational functioning in 

particular situations. 

Telework Can Directly Benefit Employees. Telework can support employees’ work/life balance 

through reducing their commutes, allowing employees more personal time in the absence of a 

commute, and possibly granting them flexibility to work when they are most capable. These 

1 5 U.S.C. § 2301(b)(5). 

2 5 U.S.C. § 6501(3).
Executive Summary

ii Telework: Weighing the Information, Determining an Appropriate Approach

direct benefits can—collectively—help employees better balance their professional and personal 

schedules. 

Telework Can Bring Indirect Benefits to Organizations. Although the direct benefits of telework 

to organizations and employees are unquestionably valuable, they do not necessarily make 

the business case for telework by themselves. We contend that the real value of telework for 

organizations comes indirectly through telework’s direct impact on employee work/life balance. 

Specifically, by virtue of supporting employee work/life balance, telework can indirectly provide 

significant benefits for organizations in the areas of recruitment, retention, and employee 

engagement. Further, and of critical importance, it appears that the benefits of telework can 

occur with generally maintained productivity and performance. Yet, we emphasize that the 

benefits of telework are contingent on wise decisions about an appropriate approach to telework 

for a given situation, as well as on the effective employee management within that approach. 

Telework Can Raise Concerns. Supervisors play a critical role in ensuring the success of a telework 

program and they need to feel comfortable in that role. However, some supervisors have concerns 

about how telework will affect mission accomplishment, and specifically, the functioning of their 

work units. Further, some believe that support for telework has been given too freely without 

providing adequate attention to addressing telework concerns. We draw attention to their 

concerns, organized into three areas:

•	 Work unit performance;

•	 Work unit dynamics; and

•	 Teleworker responsiveness and availability.

Although there are organizations and situations where these concerns may be warranted, our 

survey data generally suggest that most supervisors, employee nonteleworkers, and employee 

routine teleworkers believe that work outcomes relevant to telework concerns can be maintained 

in a telework environment. Yet, our data reveal some potential room for improvement. 

Specifically, our data also indicate that some supervisors and employee nonteleworkers believe 

that telework has had a negative impact on some of these work outcomes. The occurrence of 

such perceptions and of telework concerns in general underscores the criticality of ensuring that 

wise decisions are made about an appropriate approach to telework for a given situation and that 

employees are managed effectively within that approach. Similarly, good decisions about the use 

of telework can help mitigate concerns and prevent them from becoming realities.

However, we caution that some telework concerns—and some of the perceived and actual 

negative impacts of telework—may stem from issues or problems for which there are no readily 

apparent solutions. Thus, in making decisions about telework as a business tool, organizations 

should be prepared to identify areas where they are willing to make some trade-offs in order to 

reap the benefits that telework can offer. While this threshold for trade-offs and the incidence 

and range of actual negative effects of telework are likely to vary across and within organizations, 

a common goal should be ensuring a net positive return for the organization. 
Executive Summary

A Report by the U.S. Merit Systems Protection Board iii

Recommendations

Organizational Leaders, Supervisors, and Employees

•	 Determine an appropriate technology, equipment, technical support, and security 

infrastructure for telework. Assist organizational leaders in devising a plan to identify and 

address where they are and where they need to be in terms of technology, equipment, 

technical support, and security in order to make telework a success. 

•	 Be flexible about telework. Recognize that the optimal approach to telework is likely 

to evolve over time within each work unit and organization as a whole, and require 

an iterative process. Challenge assumptions about the best approach to telework. The 

more flexible and open you are to trying new approaches, working through issues, and 

identifying best practices, the greater the potential for determining the most appropriate 

approach for leveraging telework to meet mission goals. 

•	 Talk about telework. Share information with one another about telework and discuss 

relevant benefits and any concerns. Discussions could include strategies for ensuring 

effective communication, teamwork, and work relationships in a telework environment, 

as well as teleworker responsiveness and availability. 

Organizational Leaders

•	 Ensure culture and leadership preparedness for telework. Recognize that implementing 

telework will require at least some degree of culture change in many organizations. 

Ensure that leaders’ words and behaviors guide the organization’s culture to adapt to 

and accommodate telework. Leaders can foster such a culture by taking such steps as 

providing guidance and support on the telework approach, providing transparency about 

telework’s challenges, and supporting appropriate participation in telework as well as 

participating themselves. 

•	 Ensure supervisor preparedness for managing teleworkers and nonteleworkers. Work 

with supervisors to ensure that they are prepared for their role and can effectively 

manage teleworkers and nonteleworkers. In particular, make sure supervisors have good 

performance management skills. Good performance management practices are important 

for building employee-supervisor relationships based on mutual trust. Trust can work 

in concert with information gathered from good performance management practices to 

enable supervisors to make wise decisions about using telework in their work units (e.g., 

decisions about eligibility and continuation of use). Good performance management will 

also be important for ensuring fair treatment of teleworkers and nonteleworkers. Identify 

supervisors’ skill areas in need of improvement and provide the necessary support and 

developmental resources. 

•	 Decide on an appropriate approach to telework. Determine the extent to which 

telework can and should be implemented in the organization’s environment. Weigh 

benefits of and any concerns about telework in conjunction with legal requirements 

and implementation considerations. Then, decide on an appropriate approach. Pilot 

programs may assist in making appropriate decisions about what works best and in 

tailoring the approach to telework to the organization’s needs. As decisions are made, 

identify, measure, and track metrics to evaluate program functioning and make 

adjustments as necessary. 
Executive Summary

iv Telework: Weighing the Information, Determining an Appropriate Approach

Supervisors

•	 Work with organizational leaders to determine appropriate use of telework. Begin by 

identifying work unit needs in relation to telework. Also identify any concerns about the 

impact of telework and determine possible strategies for mitigating them.

•	 Determine your preparedness for managing in a telework environment. Ensure you have 

the performance management skills necessary to manage the workforce, both teleworkers 

and nonteleworkers. 

•	 Exercise performance management skills. Practice the performance management skills 

that will be necessary for work unit and ultimately organizational performance and that 

will also be important for building employee-supervisor relationships based on mutual 

trust. Also, exercise discretion to tailor management style and practices to the needs of 

different employees. 

•	 Use performance management information to make wise decisions about telework. Use 

performance management information to make good decisions about telework eligibility 

and continuation of use, and to ensure fair treatment of teleworkers and nonteleworkers. 

This will be necessary for allowing the benefits of telework to be realized and for 

mitigating or preventing concerns about telework from becoming realities. Additionally, 

wise decisions in these areas will help supervisors ensure that they are using telework 

in a manner conducive to work unit communication, teamwork and relationship 

dynamics, employee responsiveness and availability, and ultimately individual and 

work unit performance. Finally, good decisions can help supervisors ensure and provide 

transparency that all employees are being managed and treated fairly regardless of where 

they are working. 

•	 Ensure fair treatment of teleworkers and nonteleworkers. Treat teleworkers and 

nonteleworkers the same way. The Telework Enhancement Act of 2010 specifically 

states that “teleworkers and nonteleworkers are treated the same for purposes of—

(A) periodic appraisals of job performance of employees; (B) training, rewarding, 

reassigning, promoting, reducing in grade, retaining, and removing employees; (C) work 

requirements; or (D) other acts involving managerial discretion . . . .”3 Such acts would 

include the distribution of work assignments. Good performance management practices 

can help supervisors exercise good and fair judgment in these areas and make decisions 

based on employee merit and not employee location. 

3 5 U.S.C. § 6503(a)(3) (internal punctuation omitted).
Executive Summary

A Report by the U.S. Merit Systems Protection Board v

Employees

•	 Consider whether telework would be right for you. Telework-eligible employees should 

conduct a self-assessment to determine whether they want to telework.4 This should 

include determination that your home environment is suitable for telework. You 

should also make sure you can accomplish the same quantity and quality of work 

while teleworking as when working in the office. Further, make sure you can maintain 

appropriate communication, teamwork, and work relationships while teleworking and 

can abide by standards for responsiveness and availability. Telework-ineligible employees 

who would like to telework could consider talking with their supervisors about their 

status to determine if there is an opportunity for them to become eligible and the 

necessary criteria for achieving eligibility. 

•	 Maintain performance and fully engage in performance management with supervisors. 

Whether teleworking or not, employees should be committed to maintaining their 

performance. Work cooperatively with your supervisor regarding your performance 

management. Discuss any impact that your telework—or others’ telework—is having on 

your ability to get your work done. 

•	 Maintain work unit dynamics. Teleworking employees need to maintain appropriate 

communication, teamwork, and work relationships with the office, customers, and other 

relevant parties while teleworking. Similarly, nonteleworkers should be agreeable to using 

available technology to maintain appropriate communication, teamwork, and work 

relationships with teleworkers. Employees should discuss any impact that telework is 

having on the work unit’s ability to effectively maintain these critical dynamics.

•	 Abide by standards for responsiveness and availability. Teleworkers should work with 

their supervisor and work unit to ensure that they are responsive to and available for 

necessary contact, participating in necessary meetings, and contributing to unexpected 

assignments. This also includes being responsive to office coverage needs. Similarly, 

nonteleworkers should be agreeable to using available technology to support teleworkers’ 

efforts to be responsive to and available for such matters.

4For information for employees about participating in telework, see U.S. Office of Personnel Management, 

Guide to Telework in the Federal Government, April 2011, “Employees,” pp. 26-29. This guide can be accessed from: 

http://www.telework.gov/guidance_and_legislation/telework_guide/telework_guide.pdf.
A Report by the U.S. Merit Systems Protection Board 1

Introduction

As enumerated within the merit system principles and codified by law, the Federal 

Government has a responsibility to use the Federal workforce in an efficient and effective 

 manner.5 Such usage requires, as a foundation, a match between human capital needs, 

interests, and capabilities and an organization’s needs, mission, and goals. The exact elements 

that build upon this match and form the structure of each organization-workforce relationship 

are likely to vary. However, a common element is that policies, practices, and procedures need to 

be implemented within organizations that strategically balance organizational and human capital 

needs, strengthen their connection, and guide them towards efficiency and effectiveness. If used 

appropriately, workplace flexibilities such as telework can function as such a practice. 

What Is Telework?

According to the Telework Enhancement Act of 2010, telework is “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.”6 With telework, instead of physically commuting to 

the office to perform work responsibilities followed by commuting home, teleworkers simply 

“commute” to their home office area or to another approved geographically close location to 

perform their work. 

Telework, which provides flexibility in where and when work is accomplished, is a tool that can 

be leveraged within an organization’s overall business strategy as one means to further mission 

accomplishment. 

Interest in Telework

The concept and practice of telework have had a long history in the Federal Government. As 

early as 1957, before the term “telework” was coined, a Federal Government policy was in place 

that approved individuals on a case-by-case basis to be paid for working at home.7 This type of 

work arrangement was subsequently expanded upon and advanced as a strategy to recruit and 

retain talented individuals, and encourage more family friendly work places.8 Additionally, there 

was interest in seeing if the Federal Government could operate efficiently and effectively using 

nontraditional work schedules and arrangements. 

5 5 U.S.C. § 2301(b)(5).

6 5 U.S.C. § 6501(3).

7Wendell Joice, U.S. General Services Administration, The Evolution of Telework in the Federal Government, 

February 2000.

8 Ibid.
Introduction

2 Telework: Weighing the Information, Determining an Appropriate Approach

More recently, there has been increased interest in the role that telework can play in the efficient 

and effective use of the workforce. Such interest has stemmed in part from the changing nature 

of work and how and where that work can be accomplished. Specifically, job functions have 

changed from primarily clerical work to more knowledge-based work. In tandem, advances in 

computer systems, the internet, and related technology such as mobile communication devices 

have occurred at a rapid pace and have allowed individuals to access work and work-related 

information and to perform such work from locations other than the traditional office (and at 

times other than traditional work hours). Such changes have dramatically reduced the need for 

and practicality of requiring physical presence at an office. Further, Federal organizations and jobs 

have expanded onto a more national and global scale, which has necessitated identifying ways to 

accomplish work that do not require all employees to be located at a communal office and which 

avoid the burden and expense of regular Government travel. In conjunction with all of these 

changes (current difficult economic conditions notwithstanding), the job market for talented 

knowledge workers has become increasingly competitive, not just between the public and 

private sectors, but also within the public sector. This reality, coupled with a wave of anticipated 

retirements and the host of changes outlined above, has compelled Federal organizations to 

identify strategies, such as telework, to attract and retain talented individuals and to contribute to 

the efficient and effective use of the Federal workforce. 

Finally, legislative attention has been given in regards to telework in the Federal Government. 

As described in the U.S. Office of Personnel Management’s (OPM’s) Guide to Telework in the 

Federal Government (April 2011), a series of laws have been enacted concerning the use of 

telework. Specifically, beginning in 2000, a law (P.L. 106-346, § 359) stipulated that “each 

executive agency shall establish a policy under which eligible employees of the agency may 

participate in telecommuting to the maximum extent possible without diminished employee 

performance.”9 Following this mandate, in 2004, laws (P.L. 108-199, Division B, §627 and P.L. 

108-447, Division B, § 622) prescribed particular agencies to expand participation in telework. 

Most recently, the Telework Enhancement Act of 2010 was enacted. As stated in OPM’s Telework 

Guide, “[t]he Act is a key factor in the Federal Government’s ability to achieve greater flexibility 

in managing its workforce through the use of telework. The law specifies roles, responsibilities 

and expectations for all Federal executive agencies with regard to telework policies; employee 

eligibility and participation; program implementation; and reporting[,]” as well as designating 

responsibilities to particular agencies.10 

In light of this range of interest in telework, it is prudent to understand how telework can 

enable the Federal Government to efficiently and effectively use the workforce for mission 

accomplishment. 

9U.S. Office of Personnel Management, Guide to Telework in the Federal Government, April 2011, pp. 2-3 

(quoting P.L. 106-346 § 359) (internal punctuation omitted). This guide can be accessed from:

http://www.telework.gov/guidance_and_legislation/telework_guide/telework_guide.pdf.

10Ibid., p. 3. 
Introduction

A Report by the U.S. Merit Systems Protection Board 3

Purpose of This Study

In line with the merit system principle of efficient and effective use of the Federal workforce,11 

this study was conducted to examine Federal employee, supervisor, manager, and executive 

experiences with—and perceptions of—telework in the Federal workplace. We also obtained 

information relevant to telework from a review of various news articles, a sample of relevant 

professional literature, and interviews with leaders in telework. This information was collected 

to provide a holistic depiction of potential benefits of telework for organizations and employees, 

as well as potential concerns about telework. Organizations can use this information in weighing 

the pros and cons about telework to make wise decisions about the appropriate approach to 

telework for their situations. In addition, we offer several considerations that may be of interest 

to organizations as they decide on appropriate approaches to telework for their situations and 

implement their telework programs. This resultant report can assist organizations in making 

decisions about how to best integrate the telework flexibility into their business strategy and 

leverage it to meet mission needs. 

115 U.S.C.§ 2301(b)(5). 

A Report by the U.S. Merit Systems Protection Board 5

Study

Methodology

I

nformation for this report was primarily derived from the results of a web-based survey 

administered by MSPB in 2009 to a subset of Federal employees, supervisors, managers, 

and executives who provided their experiences with and perceptions about telework. A copy 

of the survey is included in Appendix A. Respondents answered questions designed for them 

based on their role (e.g., supervisor, employee) in the organization. Many of the survey questions 

about organizational issues were taken or adapted from previous MSPB surveys. Since previous 

MSPB research indicated that increased employee engagement is associated with several desirable 

outcomes for organizations,12 we were interested in examining whether telework affected 

employee engagement. Therefore, the 16 employee engagement questions—comprising MSPB’s 

Engagement Scale—from the 2005 Merit Principles Survey, were also included on our telework 

survey. A copy of this Engagement Scale along with information about the scoring protocol for 

the scale is included in Appendix B. Additional information for the report was extracted from a 

review of various news articles, a sample of relevant professional literature, and interviews with 

leaders in telework. 

We were very interested in examining responses to several survey items based on whether 

employee respondents’ reported never teleworking or teleworking on a routine basis (i.e., at least 

1 day per week). The perspectives and experiences of those employees who telework routinely and 

those who do not telework are equally important in understanding how telework operates. The 

perspective of supervisors is also critical. Together, the input from these individuals allows for a 

balanced analysis of the impact of telework on performance and other important work outcomes. 

Therefore, we believe this study makes a significant contribution to understanding how telework 

operates through incorporating the perspectives of employee nonteleworkers, employee routine 

teleworkers, and supervisors. 

In selecting the survey sample, we sought to select organizations and occupations that together 

covered the range of missions and occupations that are appropriate for telework. While telework 

can theoretically be used to some degree in most organizations, it is not appropriate for all 

organizations or for all occupations. Therefore, the survey sample was drawn from selected 

professional and administrative occupational series that appear to be generally appropriate for 

telework. Law enforcement organizations such as those in the Department of Defense and the 

Department of Justice, and organizations that require the physical presence of employees in 

particular settings such as laboratories or maintenance facilities, were not included in the sample 

because telework is unlikely to be appropriate for many occupations in these organizations. 

Given these factors and our desire to limit the size of the sample of respondents and minimize the 

survey burden on employees, we limited the size of our sample to 20,000 participants. 

12U.S. Merit Systems Protection Board, The Power of Federal Employee Engagement, September 2008.
Study Methodology

6 Telework: Weighing the Information, Determining an Appropriate Approach

A total of 18,406 surveys were delivered, and of those received, 9,773 met our survey completion 

requirement for analysis, resulting in a response rate of 53.1 percent usable surveys. Our analyses 

did not indicate a response bias so no further correction was required in this area, but the results 

of the analyses reported here were weighted to reflect the occupational composition of the 

agencies surveyed. More information about our sampling plan, the agencies and occupations 

sampled, and the analysis and weighting procedures we used is included in Appendix C.

Results reported here are generalizable only to the organizations and occupations that we 

surveyed. While the results are not generalizable Governmentwide, to the degree that other 

organizations have similar missions or occupational makeup, these results may be useful and 

informative. Thus, we believe this report on telework benefits, concerns, and implementation 

considerations can assist a wide range of organizations in determining appropriate approaches to 

telework for their situations.
A Report by the U.S. Merit Systems Protection Board 7

Important Things

to Keep in Mind When 

Reading This Report

Perceptions vs. Facts

It is important for the reader to remember that our survey data are based on the experiences and 

perceptions of the respondents. While the items about experiences are based on facts (e.g., Have 

you requested approval to telework on a routine basis), the items about perceptions are based 

on the personal beliefs of the respondent (e.g., overall, I am satisfied with my job, I am treated 

with respect at work). However, people’s perceptions are likely to be reflected in their behavior. 

For example, the extent to which employees believe their supervisor supports and encourages 

telework may influence whether they request to telework.

Survey Question Response Options 

Most of the survey questions had five response options (e.g., Very Unimportant, Unimportant, 

Neither Important nor Unimportant, Important, and Very Important). When five choices were 

offered, we analyzed and reported the results by combining the two positive choices as if they 

were a single positive response and by combining the two negative choices as if they were a single 

negative response. The middle or neutral option was reported as endorsed. For example, for the 

question, “How important were the following factors in your decision to request telework on a 

routine basis: The amount of time it takes to commute,” respondents who selected either “Very 

Important” or “Important” were reported as indicating that the factor was “Important.” Similarly, 

respondents who chose “Very Unimportant” or “Unimportant” were reported as indicating that 

the factor was “Unimportant.” Respondents who selected “Neither Important nor Unimportant” 

were reported as indicating that the factor was “Neither Important nor Unimportant.” This 

practice helps us more easily analyze and report the data. Some survey items contained a “Don’t 

know” or “Not applicable” option. Responses to these options were not included in the analyses 

of those items. 

Telework at Home vs. Telework at a Telework Center 

Our survey data does not differentiate between individuals who telework by working at home 

versus those who telework at a telework center. Thus, to the extent that there are differences in 

telework outcomes based on telework setting, our survey was not intended to capture them. 

Further, the discussion of our survey data in the sections that follow does not seek to address any 

such differences, or to focus on factors uniquely pertinent to working at home or working at a 

telework center. 
Important Things to Keep in Mind When Reading This Report

8 Telework: Weighing the Information, Determining an Appropriate Approach

Definition of Survey Respondents 

•	 Employees –When we analyzed the survey data for this study and reported the results, 

we defined employees to include individuals who self-identified themselves on our survey 

as being either “non-supervisors” or “team-leaders.” 

•	 Supervisors – When we analyzed the survey data for this study and reported the results, 

we defined supervisors to include individuals who self-identified themselves on our 

survey as being “supervisors,” “managers,” or “executives.” 

•	 Routine teleworkers – When we analyzed the survey data for this study and reported 

the results, we defined routine teleworkers to include individuals who indicated on our 

survey that they telework at least 1 day per week from their home or from a telework 

center, which we equate as meaning that they telework at least 2 days per pay period. 

•	 Ad hoc teleworkers – When we analyzed the survey data for this study and reported 

the results, we defined ad hoc teleworkers to include individuals who indicated on our 

survey that they telework on an ad hoc basis from their home or from a telework center. 

•	 Nonteleworkers – When we analyzed the survey data for this study and reported the 

results, we defined nonteleworkers to include individuals who indicated on our survey 

that they never telework from their home or from a telework center. 
A Report by the U.S. Merit Systems Protection Board 9

Telework 

as a

Business Strategy

Telework is a tool that can be leveraged within an organization’s suite of workplace 

flexibilities to aid in mission accomplishment. Similar to other workplace flexibilities, 

telework can bring benefits if implemented appropriately and managed properly. As 

discussed in this chapter, telework has the potential to bring not only direct benefits to both 

organizations and employees, but also additional indirect benefits to organizations by virtue of 

the direct benefits to employees. 

We have focused on the particular direct and indirect benefits below because we believe that 

they are likely to be of interest to most organizations. While we believe we have provided 

a good starting point, organizations are encouraged to determine the applicability of these 

benefits to their situation, as well as to identify any others that may be pertinent. Naturally, each 

organization is likely to experience benefits of telework to a different degree based on unique 

factors of their situation. 

Direct Benefits of Telework for Organizations

Continuity of Operations. A critical way that telework can directly benefit organizations is 

through its usefulness as a continuity of operations strategy.13 Telework can serve as an essential 

tool for effectively maintaining operations during emergencies or other situations that would 

necessitate a geographically dispersed workforce capable of carrying out mission accomplishment. 

The importance of continuing operations during national security emergencies has long been 

recognized and continues to be important today. 

Not only is it critical for organizations to be able to operate during a national security emergency, 

such as a terrorist attack, but it is also imperative that they are able to function during 

inclement weather, a pandemic health crisis, or any other event that would prevent employees 

from commuting to and working in their offices. For example, in February 2010, the Federal 

Government in the Washington, D.C., area was forced to close for several days because of 

blizzards that prevented many individuals in the National Capital area from safely traveling to 

their normal organization worksite. However, because some employees were able to telework, 

it was estimated that “the Federal Government offset approximately $30 [million] per day in 

lost productivity during the February storms as a result of telework.”14 Although significant, 

13For important information related to incorporating telework into agency continuation of operations plans, see 

the Telework Enhancement Act of 2010 (P.L. 111-292) accessed from http://www.gpo.gov/fdsys/pkg/PLAW111publ292/pdf/PLAW-111publ292.pdf and see U.S. Office of Personnel Management, Guide to Telework in the 

Federal Government, April 2011, accessed from http://www.telework.gov/guidance_and_legislation/telework_guide/

telework_guide.pdf.

14Work-Life Programs: Attracting, Retaining and Empowering the Federal Workforce: Hearing before the S. Comm. on 

Oversight of Govt. Mgmt., the Fed. Workforce and the District of Columbia, 111th Cong. (2010) (statement of Jonathan 

Foley, Sr. Advisor to the Dir. U.S. Office of Pers. Mgmt.). Accessed from: http://www.opm.gov/News_Events/

congress/testimony/111thCongress/05_04_2010.asp.
Telework as a Business Strategy

10 Telework: Weighing the Information, Determining an Appropriate Approach

the savings could most likely have been much greater and the disruption to Federal work much 

smaller if more employees had been prepared and able to telework. In general, if the threat to 

safety from inclement weather prevents an employee from commuting to work and the employee 

is telework-eligible, he or she could opt to telework as opposed to taking leave.15 Indeed, 

employees who had previously teleworked were more prepared to work from the safety of their 

homes during this winter emergency, and the importance of this preparedness would naturally be 

critical for other emergency situations. As is evident in Figure 1, our survey results indicate that a 

larger percentage of employee routine teleworkers agreed that they know what they need to do to 

continue working in the event of an emergency, as compared with employees who telework on an 

ad hoc basis and employee nonteleworkers. 

Figure 1. Employees’ reported agreement with the statement, “I know what I am to do 

to continue working in the event of a local or national emergency related to weather, 

security, pandemic or other disruption.”

Attempting to telework during an emergency situation might be challenging for those who 

telework rarely or not at all. This is because unlike those who have teleworked regularly, these 

individuals have not had the opportunity to identify and address remote access problems that 

could arise.16 Further, it would likely be more difficult for such individuals to reach Information 

Technology support staff to resolve their problems during these situations. 

Overall, having staff who telework on a routine or even ad hoc basis is consistent with 

organizational preparedness to maintain operations during an emergency situation. However, 

“[a]ccording to the Office of Personnel Management, only 44 of 78 agencies have made telework 

part of their COOP planning.”17 Fortunately this number is likely to increase as the Telework 

Enhancement Act of 2010 requires that “[e]ach executive agency shall incorporate telework into 

the continuity of operations plan of that agency.”18 

15See U.S. Office of Personnel Management, Washington, D.C., Area, Dismissal and Closure Procedures, December 2010. 

16Michael Hardy, “Snowfuggedaboudit: Practical experience reveals telework isn’t as easy as it sounds,” Federal 

Computer Week, Feb. 16, 2010, accessed from: http://fcw.com/articles/2010/02/16/telework-in-snowstorm-notalways-easy.aspx. See quoted comments within the article from Jon Eisenberg, a manager at National Academies.

17John Moore, “4 Ingredients of a Telework Success,” Federal Computer Week, Nov. 3, 2010, accessed from: 

http://fcw.com/articles/2010/11/08/feat-telework-toolkit.aspx. 

18See 5 U.S.C. § 6504(d)(1).
Telework as a Business Strategy

A Report by the U.S. Merit Systems Protection Board 11

Work Space Efficiency. Another way that telework can directly benefit organizations is 

through reducing their need for physical office space. This reduction could translate into 

lower expenses for organizations in real estate and related building costs (e.g., heating/

cooling, electricity, water). Telework could allow for such outcomes through arrangements 

where employees telework on alternative days so that they can share existing office space. Or, 

organizations could offer hoteling arrangements. For example, the United States Patent and 

Trademark Office (USPTO) was able to increase the number of employees at the Alexandria, 

VA, campus to meet mission accomplishment needs without acquiring additional office space 

by expanding its telework hoteling program. In this program, employees give up their offices to 

work from home at least 90 percent of the workweek and then utilize workspace in temporary 

offices when they need to be physically present at the worksite. USPTO reported that this 

arrangement has allowed them to avoid over $19 million in real estate and related costs.19 

Although avoiding costs on such a large scale appears attractive, hoteling or other similar nearly 

full-time telework arrangements may not be suitable for all organizations. Before making a 

decision to use such telework arrangements, organizations would need to examine a host of 

factors including mission, culture, job functions, work unit dynamics, security requirements, 

and supervisor and employee preparedness and willingness to have telework occur on a nearly 

full-time basis. As we discuss in more detail in subsequent sections, telework decisions need to 

be made as business decisions that weigh the pros and cons for organizations and employees. 

Therefore, organizations need to realistically determine whether the direct benefits that could 

accompany using telework to reduce office space and avoid related expenses would be worth any 

potential or real challenges that would accompany such a decision. 

Summary of Direct Benefits of Telework for Organizations. The direct benefits of telework to 

organizations in the areas of COOP and the potential for reduced office space are important, but 

they do not necessarily make the business case for telework on their own. For one, the emergency 

situations upon which the direct benefit of telework as a COOP strategy is based may not occur 

with enough frequency to warrant increased attention to telework. For example, there are usually 

only a few days a year when employees would be required to work remotely because of inclement 

weather conditions. Secondly, in regard to the direct benefit of work space and related expense 

reduction, not all organizations are able to allow the full-time or nearly full-time telework that 

would be necessary to reap this benefit. Thus, while these two direct benefits to organizations 

are no doubt important and could potentially have a dramatic impact on organizational 

functioning in particular situations, they do not really address everyday benefits of telework for 

most organizations. However, as discussed in the next sections, more everyday benefits that could 

better make the business case for telework occur through the direct benefits for employees, and 

by virtue of these benefits, the indirect benefits for organizations. 

Direct Benefits of Telework for Employees

Work/Life Balance. Efficient and effective mission accomplishment by organizations requires 

a foundation of highly skilled and capable employees. Because organizational success is predicated 

on this robust human capital foundation, organizations should foster conditions that allow 

employees to be at their best while they are working. Telework can function as such a condition, 

as it is consistent with promoting employee work/life balance, a direct benefit to employees. 

Indeed, “telework allows employees to better manage their work and family obligations, thereby 

19Information obtained during an interview on January 20, 2011 with representatives from the U.S. Patent and 

Trademark Office. 
Telework as a Business Strategy

12 Telework: Weighing the Information, Determining an Appropriate Approach

retaining a more resilient, results-oriented Federal workforce better able to meet agency mission 

and goals.”20 As is evident in Figure 2, our survey results indicate that the vast majority of 

employee routine teleworkers believe telework has had a positive or neutral impact on their 

ability to balance work and nonwork life. 

Figure 2. Employee routine teleworkers’ reported impact of their teleworking 

on their ability to balance work and nonwork life 

Further, 72 percent of employees who requested approval to telework on a routine basis—at least 

2 days per pay period—indicated that the ability to better balance career and family obligations 

was important in their decision to request approval to telework on a routine basis.21 Additionally, 

83 percent of supervisors who—in the last 2 years—had at least one employee who requested 

to telework on a routine basis (at least 2 days per pay period) indicated that their interest in 

supporting their employees’ ability to balance work and family was important in their decision 

to support or deny employees’ requests to telecommute on a routine basis.22 Clearly, employees 

and supervisors see telework as a tool for meeting the demands of employees’ personal and 

professional lives.

Telework can support work/life balance through reducing commutes. Consistent with supporting 

employees’ work/life balance, telework can reduce the travel time associated with the commute to 

work and its expense.23 As shown in Figure 3, this is apparently important as our survey results 

indicate that the majority of employees who requested approval to telework on a routine basis 

indicated that the amount of time that it takes to commute and the distance (number of miles) 

of the commute were important in their decision to request approval. It is not unreasonable 

to consider the potentially adverse health and emotional effects that may accompany a long 

commute, such as recurrent neck and back pain, and worry.24

20U.S. Office of Personnel Management, Guide to Telework in the Federal Government, April 2011, p. 21. This guide 

can be accessed from: http://www.telework.gov/guidance_and_legislation/telework_guide/telework_guide.pdf.

21See Appendix D for a list of employees’ perceptions of the importance of several factors in their decisions to request 

approval to telework on a routine basis.

22See Appendix E for a list of supervisors’ perceptions of the importance of several factors in their decisions to support 

or deny employees’ requests to telecommute on a routine basis.

23Aliah D. Wright, “Telework Experts Say Employers Can Manage Sight Unseen,” Society for Human Resource 

Management, Oct. 28, 2010, accessed from: http://www.shrm.org/hrdisciplines/technology/Articles/Pages/

TeleworkUpdate.aspx.

24See Steve Crabtree, “Wellbeing Lower among Workers with Long Commutes,” Gallup, Aug. 13, 2010, accessed from: 

http://www.gallup.com/poll/142142/Wellbeing-Lower-Among-Workers-Long-Commutes.aspx.
Telework as a Business Strategy

A Report by the U.S. Merit Systems Protection Board 13

Figure 3. Employees’ reported importance of factors in their decision to request 

approval to telework on a routine basis

Telework can support employee work/life balance through giving employees more after-work 

personal time. Telework, through reducing commuting time, could also support employees’ 

work/life balance through providing employees with more personal time after work on telework 

days to attend to everyday aspects of living. In the absence of a commute on telework days, 

employees would have more personal time after work to attend to basic daily needs such as 

grocery shopping, cooking, time with family or friends, hobbies, education, exercise, and sleep. 

While such conditions would naturally be desirable to employees, they could also be valuable to 

organizations to the extent that better work/life balance allows employees to focus more on work 

while they are working. 

Telework can support employee work/life balance through allowing employees to work when they 

believe they are most capable. To the extent that organizations can merge telework with flexibility 

in scheduling employee work hours, telework could allow employees to work hours when they are 

most capable. Individuals perform the best when they feel at their best, and telework could assist 

employees in identifying the daily timeframe that would be most productive for them. Of course, 

any flexibility or change in work hours would need to be at the discretion of the supervisor and 

approved in advance to ensure adequate office coverage and to prevent adverse impact on work 

unit operations and performance. While such flexible work-hour scheduling in the office may 

already be offered in some organizations, the key difference here is combining this option with 

telework. It is important to recognize that many individuals cannot participate in the in-theoffice flexible scheduling because of transportation, family, or other considerations that prohibit 

them from physically being in the office during alternative times that may be more productive for 

them. Telework could bridge this incompatibility and allow all employees to have equal access to 

flexible scheduling.25

25For more information on telework and flexibility in scheduling, see the U.S. Office of Personnel Management, 

Guide to Telework in the Federal Government, April 2011, p. 32. This guide can be accessed from:

http://www.telework.gov/guidance_and_legislation/telework_guide/telework_guide.pdf. 
Telework as a Business Strategy

14 Telework: Weighing the Information, Determining an Appropriate Approach

Similarly, merging telework with flexible scheduling could support employee work/life balance 

by enabling employees to work nonsequential hours during the day and to use approved breaks 

from work to attend to personal matters. For example, an employee could be permitted to work 

at home from 6 a.m. to 8 a.m., go off work time to attend a college class and do homework, and 

then resume work from 12 p.m. to 6 p.m. Consider also that an employee who normally works 

from 8 a.m. to 4 p.m. could be permitted to take a 2-hour break and go off work time for a 

doctor appointment, but instead of taking leave, could then be permitted to make up the hours 

by resuming work until 6 p.m. Again, while some organizations already provide this flexibility, 

not all individuals may be able to participate when they are at the office because of the previously 

mentioned commuting challenges or other restraints.

Summary of Work/Life Balance Direct Benefits for Employees. Telework can bring direct 

benefits to employees in terms of work/life balance which can help employees better balance 

their professional and personal schedules. Although valuable, as with the direct benefits to 

organizations, telework’s direct benefits to employees do not necessarily make the business case 

for telework on their own. This is because such benefits, although of everyday significance, are 

primarily focused on accommodating employees’ needs and interests. They do not, by themselves, 

necessarily address organizational needs. However, as we discuss in the next section, we contend 

that direct benefits to employees in work/life balance can have significant indirect benefits for the 

Federal Government in a more everyday manner. It is in these indirect benefits that the real value 

of telework becomes apparent to organizations. 

Indirect Benefits of Telework for Organizations

Employee Recruitment. Telework, by virtue of facilitating employee work/life balance, 

can have everyday indirect benefits for organizations through supporting their recruitment 

strategies. Efficient and effective mission accomplishment requires organizations to be able to 

successfully recruit and hire highly capable talent. To do this, organizations must be attentive 

to what prospective (and current) employees are looking for in an employer, and be able to 

offer such features to employees. Since many employees desire work/life balance, telework—

through supporting this balance—could serve as such an attractive employer feature. Indeed, 

in light of competition both within the Federal Government for talent and between the Federal 

Government and the private sector, organizations that can offer and openly discuss telework 

opportunities can have a competitive advantage.26

As can be seen in Figure 4, results of our survey indicate that the majority of supervisors stated 

that telework has had a positive impact on their organization’s ability to recruit high quality 

employees. 

26Elizabeth Newell, “Recruitment Wars,” Government Executive Management Matters, May 11, 2011, accessed from: 

http://www.govexec.com/dailyfed/0511/051111mm.htm.
Telework as a Business Strategy

A Report by the U.S. Merit Systems Protection Board 15

Figure 4. Supervisors’ reported impact of telework on their organization’s ability 

to recruit high quality employees

Similarly, 59 percent of supervisors who had employees who requested to telework on a routine 

basis indicated that the need to be an attractive employer that can recruit and retain high quality 

employees was important in their decision to support or deny employees’ requests. Thus, it 

appears that telework can support an organization’s ability to recruit desired talent. 

Telework can support the recruitment and accommodation of individuals with disabilities.

Telework can also serve as a valuable recruitment tool through enabling the Federal Government 

to benefit from the skills and capabilities of individuals with disabilities. Telework can also 

help address the needs of these workers.27 Indeed, “telework may be used as a reasonable 

accommodation for an individual with a disability who may require, or prefer, to work at 

home. While not all persons with disabilities need, or want, to work from home, telework 

provides a viable option for individuals with disabilities that affect mobility or pose related 

challenges.”28 While a full discussion of this topic is beyond the scope of this report, it is clear 

that by eliminating or significantly reducing the requirement to be physically at the worksite, 

telework can enable the Government to better benefit from the capabilities that individuals with 

disabilities have to offer. 

Telework can allow for an expanded recruitment pool. Appealing to employee work/life 

balance needs may also allow the Federal Government to expand its recruitment pipeline to 

hire individuals with desirable talent from areas located beyond the feasible commuting area.29 

This would include those with desirable talent who cannot relocate or who have commitments 

or circumstances that would make it challenging or infeasible for them to work at the office 

location. Widening the recruitment area would be likely to translate into better applicant pools 

for positions, in terms of both the number of applicants and the range of applicant qualifications. 

Such a practice is consistent with the first merit system principle.30 It also supports the 

27See U.S. Office of Personnel Management, Guide to Telework in the Federal Government, April 2011, 

“Accommodations for Employees with Disabilities,” pp. 36-37. This guide can be accessed from: 

http://www.telework.gov/guidance_and_legislation/telework_guide/telework_guide.pdf.

28U.S. Office of Personnel Management, Guide to Telework in the Federal Government, April 2011, p. 35. This guide 

can be accessed from: http://www.telework.gov/guidance_and_legislation/telework_guide/telework_guide.pdf.

29During an interview on February 3, 2011, representatives from Noblis, a nonprofit science- technology- and strategybased organization, indicated that a “primary impetus” for their telework program was the ability to “capture talent” 

outside of the normal commuting area.

305 U.S.C. § 2301 (b)(1). “Recruitment should be from qualified individuals from appropriate sources in an endeavor 

to achieve a work force from all segments of society, and selection and advancement should be determined solely on 

the basis of relative ability, knowledge and skills, after fair and open competition which assures that all receive equal 

opportunity.” 
Telework as a Business Strategy

16 Telework: Weighing the Information, Determining an Appropriate Approach

Government’s ability to foster innovation in the workforce. This benefit could be especially 

helpful for filling mission-critical jobs, and for allowing the Government to benefit from 

individuals with unique skill sets. Further, broadening the recruitment and hiring area could also 

help the Government to be more representative of the diverse nation which it serves. 

Employee Retention. Telework, through supporting employee work/life balance, can also 

have everyday indirect benefits for organizations through functioning as a valuable strategy 

for retaining highly capable employees. Just as efficient and effective mission accomplishment 

requires an organization to be able to attract highly capable individuals, it also requires an 

organization to retain them. This is especially true when the organization has invested in 

employee training and development, as well as when employees have specialized experience and 

mission-critical skill sets. Further, competition for talent doesn’t end once an employee comes 

onboard; current employees are also attentive to what other employers offer compared to their 

current employer. Therefore, as with prospective employees, current employees are likely to be 

interested in work/life balance and attracted to employers who can offer work arrangements such 

as telework that support this balance. Indeed, as illustrated in Figure 5, of those employees who 

planned to remain in their current organization/agency, move to another Federal organization/

agency, resign from the Federal Government and seek a non-Federal job, or retire in the next 2 

years, the majority indicated that the opportunity to telework was important in their decision to 

remain in or leave (move, resign, or retire) their current organization/agency. 

Figure 5. Employees’ reported importance of the opportunity to telework in their 

decision to remain in or leave (move, resign, or retire) their current organization

*Totals may not equal 100 percent due to rounding.
Telework as a Business Strategy

A Report by the U.S. Merit Systems Protection Board 17

Further, 86 percent of employee routine teleworkers indicated that their experience as teleworkers 

has had a positive impact on their satisfaction with their job and organization. Additionally, 

81 percent of employee routine teleworkers indicated that their experience as teleworkers has had 

a positive impact on their desire to stay in their organization. 

It appears that employees are not the only ones who see value in telework as a retention strategy. 

As illustrated in Figure 6, our survey data show that a large majority of supervisors indicated a 

positive impact of telework on their organization’s ability to retain high-performing employees. 

Figure 6. Supervisors’ reported impact of telework on their organizations’ ability 

to retain high-performing employees

Additionally, 62 percent of supervisors who had employees who requested to telework on a 

routine basis indicated that the need to retain an individual high-performing employee was 

important in their decision to support or deny employees’ requests. 

Telework as a retention strategy can have both practical and financial implications for 

organizations. Most basically, if telework allows organizations to retain employees by virtue of 

supporting their work/life balance, the organization holds on to desirable employee skills and 

characteristics that may be hard to replace and that have financial value in terms of fostering 

outcomes and results for the organization. This could be especially important in situations that 

require organizations to operate within tight budget constraints and that result in organizations 

having limited resources for hiring new highly capable employees. The retention benefit could 

also be critical in terms of helping both employees and the organization adjust to an employee’s 

intended retirement. Specifically, telework—through work/life balance—could encourage 

individuals who are retirement-eligible to delay their retirement, or ease into their retirement, 

thereby giving their organizations time to hire or train successive employees and to ensure a 

transfer of knowledge and skills. Additionally, the ability of organizations to retain highly capable 

employees allows them to avoid the costs associated with having to advertise a vacant position, 

review applications, administer assessments, conduct reference checks, and allow for on-the-job 

training and adjustment time for a new employee to become fully functional. 

Telework as a retention strategy can address commuting constraints or challenges. Telework, 

through supporting employee work/life balance, can also be a viable means of retaining 

employees who need to or desire to relocate from the feasible commuting area, or who have 

commitments or circumstances that would create challenges for them to continue to commute 

to their office. For example, a spouse could get transferred to a distant geographic location or 

employees themselves could become ill or disabled. Telework, through removing or reducing 
Telework as a Business Strategy

18 Telework: Weighing the Information, Determining an Appropriate Approach

the requirement to commute to the office, could make it more feasible for these individuals 

to address their circumstances while staying with their current employer. Further, reducing or 

eliminating commuting obligations could impact employees’ desire to stay at their jobs. Indeed, 

as shown in Figure 7, data from our study suggest that of those employees who planned to 

remain in their current organization/agency, move to another Federal organization/agency, resign 

from the Federal Government and seek a non-Federal job, or retire in the next two years, the 

majority indicated that the commuting distance, time, or cost was important in their decision to 

remain in or leave (move, resign or retire) their current organization/agency. 

Figure 7. Employees’ reported importance of commuting distance, time, or cost in 

their decision to remain in or leave (move, resign, or retire) their current organization

*Totals may not equal 100 percent due to rounding.

Circumstances could also change for the organization that could create challenges for employees 

to continue commuting to the office. For example, the Defense Information Systems Agency 

(DISA) has successfully leveraged telework among other “inducements” to increase the percentage 

of employees—from 29 percent to nearly 60 percent—willing to transfer to a new agency 

location more than 30 miles away from their current work site. Specifically, approved employees 

can telework 3 days per week and can also work 9-hour days, indicating that they only have to 

travel to the new agency location on 3 out of every 10 work days (i.e., three times a pay period).31 

Overall an organization’s ability to offer telework as a flexible work arrangement can reasonably 

be expected to translate into a higher likelihood that the organization will be able to recruit 

and retain talented individuals and that they will be able to tap into sources of talent for whom 

regular office presence may not be feasible. 

31Bob Brewin, “DISA says more employees willing to make move to new HQ,” Nextgov, Aug. 31, 2010, accessed from: 

http://www.nextgov.com/nextgov/ng_20100831_4008.php. In this article, the author summarizes perspectives from 

Dave Bullock, DISA BRAC executive, on DISA’s headquarters relocation.
Telework as a Business Strategy

A Report by the U.S. Merit Systems Protection Board 19

Employee Engagement. Another way in which telework can provide everyday indirect benefits 

to organizations through employee work/life balance is in the area of employee engagement. 

Employee engagement is considered to be a heightened connection between employees and 

their work, their organization, or the people they work for or with, that is associated with better 

results for the organization.32 This bond is posited to exist in a manner beyond job satisfaction 

and to include employees finding personal meaning—and taking pride—in their work, as well 

as perceptions that they are valued by the organization.33 Previous MSPB research suggested 

associations between an agency’s average level of employee engagement and several desirable 

organizational outcomes. Specifically, this research indicated that in Federal agencies where more 

employees were engaged there were higher programmatic results, employees used less sick leave, 

there were fewer EEO complainants, and there was a lower lost time case rate where employees 

missed work because of work related injury or illness.34

Results from our survey indicate that the practice of telework is associated with greater employee 

engagement.35 Some 65 percent of employees who agreed that their supervisor encourages and 

supports telework are engaged compared with 31 percent of employees who disagreed their 

supervisor encourages and supports telework. Further, as can be seen in Figure 8, our results 

suggest that there is an association between employees’ engagement and their reported telework 

frequency, with higher percentages of engaged employees as telework frequency increases. 

Figure 8. Comparison of employees’ reported telework frequency with their levels 

of engagement

*Totals may not equal 100 percent due to rounding.

32U.S. Merit Systems Protection Board, The Power of Federal Employee Engagement, September 2008, p. 2.

33Ibid., p. 2.

34Ibid., pp. 27-35. 

35See Appendix B for a discussion on how we determined employee engagement levels.
Telework as a Business Strategy

20 Telework: Weighing the Information, Determining an Appropriate Approach

Although these results are interesting, it is important to note that they do not explain the nature 

of the association between telework and engagement. Just as telework could be driving employee 

engagement, it could also be the case that employees who are already engaged to begin with are 

given more discretion to telework. Further, other factors incidental to telework could contribute 

to or be responsible for the association. For example, supervisors who support telework could also 

support other workplace flexibilities which could be individually or jointly driving engagement, 

or these supervisors could be enacting good supervisory practices which are conducive to 

engagement. While more research is clearly needed to understand the apparent association 

between telework and engagement, these results are nonetheless encouraging. 

Summary of Indirect Benefits of Telework for Organizations. Through its support of 

employee work/life balance, telework can bring everyday benefits to organizations that can have a 

significant impact on organizational functioning. Indeed, telework’s indirect benefits in the areas 

of employee recruitment, retention, and engagement have positive implications for organizational 

mission accomplishment. It is these indirect benefits that make the business case for telework 

because they address regular and recurring organizational interests and needs. Additionally, as 

will be discussed below, these indirect benefits (as well as the direct organizational and employee 

benefits) can occur with the important result of generally maintained levels of productivity and 

performance. 

Telework and Productivity and Performance

Organizations bring people together to accomplish a mission, provide a service, generate 

products, or achieve a combination of such purposes. Organizational performance requires 

effective policies, practices, and procedures. It also requires employees who successfully 

meet performance expectations. Thus, regardless of potential benefits, we would not expect 

organizations to be willing to adopt an initiative that posed a reasonable risk of negative impact 

on employee performance or organizational performance. Telework does not appear to pose such 

a risk, if implemented and managed appropriately. 

Teleworker Productivity and Performance. Our survey results suggest that telework can be 

conducive for maintaining employee productivity and performance. Specifically, 86 percent of 

employees who requested approval to telework on a routine basis indicated their view that they 

could be more productive at home was important in their decision to request approval. Similarly, 

83 percent of employees who requested approval to telework on a routine basis indicated that 

having fewer interruptions at home was important in their decision. This suggests that employees 

view telework as more than just a work place flexibility; they see it as a means to work effectively 

for the organization. Further, as can be seen in Figure 9, the vast majority of employee routine 

teleworkers indicated that their experience as a teleworker has had a positive or neutral impact on 

their personal productivity and performance, and their amount of stress related to work matters.
Telework as a Business Strategy

A Report by the U.S. Merit Systems Protection Board 21

Figure 9. Employee routine teleworkers’ reported impact of their teleworking 

on their personal productivity and performance, and amount of stress related 

to work matters

*Totals may not equal 100 percent due to rounding.

While we can expect that employees who telework routinely would report that telework makes 

them more or equally productive, as seen in Figure 10, we found that supervisors and employee 

nonteleworkers also see a mostly neutral or positive impact of telework on the organization’s 

productivity and performance.

Figure 10. Supervisors’ and employee nonteleworkers’ reported impact of telework 

on organizational productivity and performance

*Totals may not equal 100 percent due to rounding.
Telework as a Business Strategy

22 Telework: Weighing the Information, Determining an Appropriate Approach

Nonteleworker Productivity and Performance. For the most part, our survey results indicate 

that the majority of employee nonteleworkers believe that telework has had a neutral or positive 

impact on their work-related outcomes. As can be seen in Figure 11, the vast majority of 

employee nonteleworkers stated that the teleworking of others in their organization has had a 

neutral impact on their personal productivity and performance and their amount of stress related 

to work matters. 

Figure 11. Employee nonteleworkers’ reported impact of the teleworking of others 

on their personal productivity and performance, and amount of stress related to 

work matters

Further, our survey results show that 82 percent of employee nonteleworkers stated that the 

teleworking of others has had a neutral impact on requests or expectations for them to cover for 

people who telework, and 7 percent stated a positive impact on this same outcome. Employee 

routine teleworkers also had similar perceptions, with 80 percent stating that their experience as a 

teleworker has had a neutral impact on their need to have people cover for them, and 17 percent 

reporting a positive impact on this same outcome. 

Additionally, as can be seen in Figure 12, the vast majority of employee nonteleworkers stated a 

neutral or positive impact of the teleworking of others in their organization on their satisfaction 

with their job and organization, and on their desire to stay in their organization. 
Telework as a Business Strategy

A Report by the U.S. Merit Systems Protection Board 23

Figure 12. Employee nonteleworkers’ reported impact of the teleworking of others on 

their satisfaction with their job and organization, and their desire to stay in 

their organization

*Totals may not equal 100 percent due to rounding.

This further suggests that telework is being effectively managed in these organizations and that 

supervisors are making good decisions about how to implement telework. 

Overall then, our data indicate that—when managed appropriately—telework can result in 

maintained productivity and performance. The vast majority of supervisors and employee 

nonteleworkers believe that telework has had a neutral or positive impact on organizational 

productivity; the vast majority of employee routine teleworkers believe that their teleworking has 

had a neutral or positive impact on their personal productivity and performance and amount of 

stress related to work matters; and the vast majority of employee nonteleworkers believe that the 

teleworking of others has had a neutral impact on their personal productivity and performance 

and related work outcomes. However, these results also highlight some perceptions of negative 

impact which draw attention to the importance of the appropriate use of telework and effective 

management of the workforce using telework. While these findings are noteworthy, it is 

important to keep in mind that we don’t have objective productivity data at either the employee 

or organizational levels to verify these perceptions. Therefore, while the perceptual data tells 

mostly a positive story and is encouraging for telework, organizations may want to validate it 

in their own situations using more objective and comprehensive evaluation methods. This is 

especially important given that organizational mission accomplishment depends on employee—

and ultimately organizational—performance.
Telework as a Business Strategy

24 Telework: Weighing the Information, Determining an Appropriate Approach

Summary of the Business Case for Telework

The above sections discussed survey data indicating that the telework flexibility can provide 

direct benefits to organizations and employees in important areas. Telework can directly benefit 

organizations through supporting continuity of operations plans and organizational preparedness 

for emergency situations. Additionally, telework can directly benefit organizations through 

potentially reducing their need for physical office space and its accompanying real estate and 

related expenses. These benefits can have a significant impact on organizational functioning 

in particular situations. Telework can directly benefit employees by supporting their work/life 

balance through reducing commutes, allowing employees more personal time in the absence of a 

commute, and possibly granting employees flexibility to work when they are most capable. These 

benefits can collectively help employees better balance their professional and personal schedules. 

Although these direct benefits to organizations and employees are unquestionably valuable, they 

do not necessarily make the business case for telework by themselves. However, we believe that 

the real value of telework for organizations comes indirectly through telework’s direct impact 

on employee work/life balance. Specifically, by virtue of supporting employee work/life balance, 

telework can indirectly result in significant benefits for organizations in the areas of recruitment, 

retention, and employee engagement. And of critical importance, it appears that these benefits 

and the direct benefits of telework can occur with generally maintained productivity and 

performance.

However, as noted above, our data did indicate some negative perceptions about the impact of 

telework on productivity and performance. Further, some supervisors do have concerns about 

telework. As we discuss in the next few chapters, such issues highlight how important it is to 

make wise decisions about the approach to telework that is appropriate for the organization or 

work unit, and then to effectively manage employees within that approach. Such attention will 

be necessary to help organizations experience the discussed benefits, mitigate concerns about 

telework, and prevent such concerns from becoming realities that would be at odds with telework 

benefits. 

Finally, it is important to note that while the benefits discussed above are likely to be of interest 

to most organizations, they are just a sample of the ways that telework can provide value to 

organizations. Organizations are encouraged to determine their applicability as well as to identify 

any other benefits pertinent to their situation when making decisions about telework. 
A Report by the U.S. Merit Systems Protection Board 25

Concerns

About Telework

Although the results of our survey data suggest that the practice of telework can produce 

benefits for organizations and employees alike, these outcomes are dependent on 

the effective implementation and management of the telework program. Therefore, 

supervisors play a critical role in ensuring the success of a telework program and they need to feel 

comfortable in that role.

However, some supervisors have concerns about how telework will affect mission 

accomplishment and specifically, the functioning of their work units. Further, some believe that 

support for telework has been given too freely without providing adequate attention to addressing 

telework concerns. We draw attention to their concerns, organized into three areas:

•	 Work unit performance;

•	 Work unit dynamics; and

•	 Teleworker responsiveness and availability.

While our discussion of these areas will provide awareness of some of the practical challenges 

that can accompany telework, it is important to note that the specific telework concerns for 

each supervisor and organization are likely to vary based on their unique situations. Therefore, 

organizations are encouraged to evaluate and determine the applicability of these concerns for 

their own environments, as well as to identify any additional concerns that may exist. The end 

goal should be determining possible strategies for dealing with concerns about telework and how 

to appropriately factor such challenges and strategies into decisions about telework. Ultimately, 

organizations must weigh the benefits of telework against any concerns they have and make 

decisions about what trade-offs, if any, are appropriate, to ensure that telework is used as an 

effective business tool that supports mission accomplishment. 

Telework and Work Unit Performance

Supervisors are responsible for ensuring that their work unit accomplishes its goals, and some 

have concerns that telework will interfere with both teleworkers’ and nonteleworkers’ ability to 

work effectively. These concerns may reflect skepticism regarding whether teleworkers will be 

responsible and disciplined enough to maintain their productivity while they are teleworking. 

They may also reflect uncertainty about whether teleworkers will be able to telework without 

burdening nonteleworkers. 

Although these are potentially valid concerns, as previously discussed, our survey results suggest 

that employees can be as productive when they telework as when they are working in the 

traditional office environment, and that when telework occurs, the productivity of others can 
Concerns About Telework

26 Telework: Weighing the Information, Determining an Appropriate Approach

generally be maintained. However, we emphasize that maintained productivity is likely to be 

contingent on an appropriate approach to telework and on the effective employee management 

within that approach. 

Telework and Work Unit Dynamics 

Since telework by definition removes employees from being physically present in the office, 

some supervisors have concerns that important work unit dynamics such as communication, 

teamwork, and work relationships may suffer when some employees telework. Indeed, 59 percent 

of supervisors who had employees who requested to telework on a routine basis indicated that the 

need to support and facilitate interpersonal relationships and collaboration among employees was 

important in their decision to support or deny employees’ requests. Additionally, as illustrated 

in Figure 13, a sizeable minority of employees who did not request approval to telework on a 

routine basis—at least 2 days per pay period—indicated their views that telework might hinder 

teamwork, collaboration, or communication with others in the workplace, or that telework might 

hinder interpersonal relationships with others in the workplace, were important in their decision 

to not request approval to telework on a routine basis.36

Figure 13. Employees’ reported importance of factors in their decision to 

NOT request approval to telework on a routine basis

*Totals may not equal 100 percent due to rounding.

36See Appendix F for employees’ perceptions of the importance of several factors in their decisions to not request 

approval to telework on a routine basis.
Concerns About Telework

A Report by the U.S. Merit Systems Protection Board 27

Clearly, the potential impact of telework on work unit interactions is an area of concern for 

some supervisors and employees. Such concerns may occur because supervisors or employees 

do not believe that their work unit has access to appropriate technology to effectively maintain 

appropriate communications or interactions in a virtual manner. They may also reflect concerns 

that teleworkers and nonteleworkers will not be able to mutually and effectively rely on 

technology for these dynamics. These concerns may also occur because supervisors or employees 

are not confident that teleworkers will be able to recognize collaborations or teamwork situations 

that would be best accomplished with face-to-face communications and interactions, or be 

willing to act accordingly. These potential concerns are understandable because supervisors 

are ultimately responsible for ensuring that their work units function effectively to accomplish 

performance goals. Similarly, employees want to ensure that they can appropriately work with 

one another to achieve objectives. Thus, supervisors and employees understandably want to 

ensure that necessary work unit dynamics can continue when teleworkers are working out of the 

office. 

However, as illustrated in Figures 14 and 15, the majority of supervisors and employee 

nonteleworkers indicated that telework has had a neutral or positive impact on their 

organization’s ability to ensure effective communication and support effective teamwork and 

work relationships. 

Figure 14. Supervisors’ reported impact of telework on their organization’s 

ability to ensure effective communication and support effective teamwork 

and work relationships

*Totals may not equal 100 percent due to rounding.
Concerns About Telework

28 Telework: Weighing the Information, Determining an Appropriate Approach

Figure 15. Employee nonteleworkers’ reported impact of telework on their 

organization’s ability to ensure effective communication and support 

effective teamwork and work relationships

*Totals may not equal 100 percent due to rounding.

Similarly, 81 percent of employee nonteleworkers stated that the teleworking of others has 

had a neutral impact on their relationship with their colleagues and 9 percent stated a positive 

impact. Further, as shown in Table 1, employee routine teleworkers and employee nonteleworkers 

generally had similar perceptions about work unit factors related to communication, teamwork, 

and work relationship interactions.

Table 1. Employee routine teleworkers’ and employee nonteleworkers’ reported 

agreement with statements about work unit factors

Survey Items

Employee 

Routine 

Teleworkers’ 

Agreement

Employee 

Nonteleworkers’ 

Agreement

Overall, I have positive relationships with 

my colleagues. 95% 92%

I routinely pitch in to help my colleagues 

when needed. 91% 89%

I am treated with respect at work. 86% 80%

It is easy to share information and coordinate work 

on projects in my organization. 78% 69%

My colleagues routinely pitch in to help me 

when needed. 76% 70%

A spirit of cooperation and teamwork exists 

in my work unit. 76% 69%

My opinions count at work. 75% 68%

Regular interactions with my colleagues 

are important to my job. 73% 78%

Regular interactions with my colleagues 

are important to me personally. 72% 73%
Concerns About Telework

A Report by the U.S. Merit Systems Protection Board 29

Although the results in Table 1 indicate generally similar agreement between employee routine 

teleworkers and employee nonteleworkers, it is evident that employee nonteleworkers indicated 

less agreement on all but the last two statements. Additionally, while a majority of supervisorand employee nonteleworker-survey respondents indicated that telework has had a neutral or 

positive impact on communication, teamwork, and work relationships, this perception was not 

unanimous. Figures 14 and 15 discussed earlier indicate that some supervisors and employee 

nonteleworkers believe that telework has had undesirable effects on these same processes. Such 

results reinforce the criticality of making wise decisions about an appropriate approach to 

telework for a given situation, and effectively managing employees within that approach. Indeed, 

the ability of telework to bring benefits is contingent upon such factors. Further, to the extent 

that telework is managed properly, any concerns about negative impact of telework on work unit 

processes and interactions can most likely be mitigated and do not have to translate into actual 

negative effects. 

Overall, our results suggest that most supervisors have made wise decisions on the appropriate use 

of telework in these environments and management of the workforce using telework. Similarly, 

they suggest that appropriate technology for telework is available in these environments and that 

employees have developed an effective synergy for using such technology to maintain necessary 

dynamics.37 Further, they reflect that employees have exercised good judgment in aligning 

their requests to telework with work unit needs, thereby helping to ensure that their telework 

practice and what they work on during telework days are conducive for maintaining necessary 

communications, teamwork, and work relationships. Taken together, these results indicate 

that when used wisely, telework can be consistent with communication, teamwork, and work 

relationship processes that are important for work unit goal accomplishment. 

Telework and Teleworker Responsiveness and Availability

The third area of concern is that telework—through physically removing employees from the 

office—will adversely affect teleworker responsiveness and availability. In terms of responsiveness, 

some supervisors have concerns that teleworkers will not respond to emails or telephone messages 

from customers, coworkers, or supervisors on their telework days. It is critical that telework does 

not interfere with providing customers with the services that are the responsibility of the Federal 

Government. Not only would any interference be detrimental to work unit performance, but 

also, it would be likely to result in negative perceptions about the organization by customers, 

which in the long run can also be detrimental to mission accomplishment. Similarly, it 

is essential that telework does not interfere with important work unit dynamics between 

coworkers, as any interference would likely have negative effects on the work unit’s ability 

to achieve objectives. Further, it is essential that telework does not interfere with employees’ 

responsiveness to supervisors. Such interference would also likely negatively impact work unit 

performance, particularly if a supervisor is trying to obtain assistance from the teleworker on a 

quick turnaround project, or apprise the teleworker of new work assignments. It is critical for 

teleworkers to participate in all communications, interactions, meetings, and activities that are 

necessary to accomplish work. In addition, it is critical that all teleworkers respond in a timely 

manner so that work flow is not interrupted and no unnecessary delays occur.

37There is a range of available technology that can be used to help maintain communication, teamwork, and work 

relationships while using telework, and to support teleworkers’ responsiveness and availability, thereby helping 

to mitigate any concerns about these critical work unit dynamics. This technology includes: call-forwarding and 

conference calling features; instant messaging; collaborative applications for sharing and editing documents; cameras 

that enable virtual face-to-face communication; webinars for online meetings; and video-conferencing for group-level 

virtual face-to-face communication.
Concerns About Telework

30 Telework: Weighing the Information, Determining an Appropriate Approach

In terms of availability, some supervisors have concerns that teleworkers will be unavailable 

for—or resistant to—assisting with office coverage needs. Specifically, some have concerns that 

telework will pose challenges for scheduling meetings or discussions that would either require 

physical attendance or would require teleworkers to participate remotely. Indeed, 73 percent 

of supervisors who had employees who requested to telework on a routine basis indicated that 

the need to ensure office coverage and/or have adequate staff available for high priority, quick 

turn-around projects was important in their decision to support or deny employees’ requests. 

The good news is that our survey results indicate that 94 percent of employee routine teleworkers 

stated they are willing to adjust their telework schedule to work at the office if necessary (for 

example, to ensure office coverage or work on a critical assignment). However, some supervisors 

still express concern that telework is (or will be) viewed by some employees as an entitlement 

rather than as a tool that helps both employees and—more importantly—the organization to 

meet its goals. To ease these concerns and build more support for telework in the supervisory 

ranks, organizations need to ensure that controls are in place to support supervisory decisions 

about when employees need to be in the office. Supervisors are in the best position to determine 

the minimum number of employees necessary to be in the office on each work day, and 

employees hoping to telework must understand that their telework preferences should not and 

cannot be of paramount concern when supervisors are making decisions regarding appropriate 

office coverage.

While our data do not directly address concerns about teleworker responsiveness or about 

availability for office coverage, these concerns underscore the importance of making wise telework 

decisions and effectively managing teleworkers and nonteleworkers within the work unit. These 

concerns also highlight the importance of evaluating the extent to which appropriate technology 

is in place to enable teleworkers to fully participate in the communications necessary to 

accomplish work unit goals, as well as any impromptu work matters, meetings, and assignments 

that may arise. Further, they also draw attention to the importance of supervisors’ awareness of 

how much actual physical presence is needed in the office on a daily basis, for work matters or 

office coverage. Just as telework could reaffirm the need for a certain level of physical presence 

in the office, telework could reveal that there is less of a need for physical presence than was 

previously believed. 

Summary of Concerns About Telework

Supervisors play a critical role in ensuring the success of a telework program and they need to feel 

comfortable in that role. However, some supervisors have concerns about how telework will affect 

mission accomplishment, and specifically, the functioning of their work units. Further, some 

believe that support for telework has been given too freely without providing adequate attention 

to addressing telework concerns. This chapter drew attention to their concerns, organized into 

three areas:

•	 Work unit performance;

•	 Work unit dynamics; and

•	 Teleworker responsiveness and availability.
Concerns About Telework

A Report by the U.S. Merit Systems Protection Board 31

These concerns are important to address because work unit performance requires telework 

decisions to be made that support not just individual employee performance, but also work 

unit performance and the communication, teamwork, and work relationship dynamics that 

are necessary for such success. Similarly, good telework decisions need to be made to ensure 

employee responsiveness to and availability for work unit needs such as contact, participation in 

meetings, contribution to unexpected assignments, and help with office coverage. 

Our survey data generally suggest that most supervisors, employee nonteleworkers, and employee 

routine teleworkers believe that work outcomes relevant to telework concerns can be maintained 

in a telework environment. Yet, our data reveal some potential room for improvement. 

Specifically, our data also indicate that some supervisors and employee nonteleworkers believe 

that telework has had a negative impact on some of these work outcomes. The occurrence of 

such perceptions and of telework concerns in general underscores the criticality of ensuring that 

wise decisions are made about an appropriate approach to telework for a given situation and 

that the workforce is managed effectively within that approach. Indeed, any concerns about 

telework and resultant actual negative impact stemming from telework will be more pronounced 

in environments where telework decisions are not made in the best interest of work unit and 

organizational goal accomplishment. Similarly, good decisions about the use of telework can help 

mitigate concerns and prevent them from becoming realities.

Additionally, it is important to note that much of the literature on telework, fairly or unfairly, 

cites supervisors as a key barrier to implementing telework. Often they are depicted as needing 

to be able to physically observe employees at their desks and to monitor their behaviors. Yet, it 

is important to consider that supervisors who are resistant to telework may have developed their 

resistance from negative personal experiences with telework, such as those cited in this chapter. 

Unfortunately, regardless of the incidence of such experiences, once they happen, they are hard to 

erase from memory. Thus, given that supervisors are critical in the implementation of telework, 

it is incumbent upon organizations to create an environment in which supervisors are supported 

and well as prepared to manage telework and are provided with strategies to help them overcome 

any concerns and resistance they may harbor. Several strategies are discussed in the next chapter.

However, we caution that some telework concerns—and some of the perceived and actual 

negative impacts of telework—may stem from issues or problems for which there are no readily 

apparent solutions. Thus, in making decisions about telework as a business tool, organizations 

should be prepared to identify areas where they are willing to make some trade-offs in order to 

reap the benefits that telework can offer. For example, in order to more effectively recruit talented 

individuals, an organization may need to allow its employees to telework more frequently. While 

permitting this increase in telework frequency could enable the organization to improve its 

applicant pool, it could also result in fewer individuals being physically present each day for office 

coverage. While the threshold for such trade-offs and the incidence and range of actual negative 

effects due to telework are likely to vary across and within organizations, a common goal should 

be ensuring a net positive gain for the organization. 

A Report by the U.S. Merit Systems Protection Board 33

Potential Considerations

for Implementing

a Telework Program

Realizing the benefits of telework and mitigating any concerns will be contingent upon 

the appropriate use of telework and effective management of the total workforce 

where telework is used. Thus, decisions about how to use telework must be based on a 

holistic analysis of the pros and the cons of telework for an organization, with the goal of striking 

the right balance.38 There may be trade-offs, but ultimately, telework decisions need to be made 

in the best interest of supporting organizational mission accomplishment. 

The following sections offer several considerations for organizations to take into account as 

they weigh telework benefits and concerns and make decisions about appropriate approaches to 

telework for their situations. These considerations may also help organizations identify strategies 

to prevent or mitigate telework concerns. However, we emphasize that the information in these 

sections is not intended to be exhaustive of the elements necessary or required for establishing 

a successful telework program. Organizations need to review telework legal requirements and 

applicable guidance39 as well as work with their Telework Managing Officer and other relevant 

leaders and stakeholders to determine how to use the information in this report and determine 

the approach to telework that is most appropriate for their situations. 

Culture and Leadership Preparedness for Telework

Implementing telework will require at least some degree of culture change in many organizations. 

Although the Federal Government is often characterized as being one overarching employer, 

it comprises many distinct organizations, each with their own unique missions, leaders, and 

workforces, and therefore, their own social and cultural characteristics. Further, even within 

each organization, there will be at least some variability from the department level down to 

the work unit level in terms of work norms, customs, values, and perspectives on appropriate 

work processes. These differences within and especially among organizations have implications 

for how a new initiative such as telework will be viewed and implemented. The exact nature of 

these effects in each organization is beyond the scope of this report. However, the underlying 

message is clear: an organization’s culture plays a critical role in the success of any initiative.40

Telework is no exception. Since leaders play a key role in shaping an organization’s culture, their 

words and behaviors will be critical for ensuring that the organization’s culture can adapt to and 

accommodate telework. There are several steps that leaders can take to foster such a culture. 

38During an interview on February 1, 2011, representatives from the General Services Administration stated that “the 

components [of a telework program] must be examined systematically and in an integrated fashion because nothing 

occurs in a vacuum.”

39For legal requirements and responsibilities and for additional pertinent telework information, see both the 

Telework Enhancement Act of 2010 accessed from http://www.gpo.gov/fdsys/pkg/PLAW-111publ292/pdf/PLAW111publ292.pdf and U.S. Office of Personnel Management, Guide to Telework in the Federal Government, April 2011, 

accessed from http://www.telework.gov/guidance_and_legislation/telework_guide/telework_guide.pdf.

40Alyah Khan, “Culture change: A squishy topic but a vital one,” Federal Computer Week, May 2, 2011, accessed from: 

http://fcw.com/articles/2011/05/09/home-page-fed-workforce-culture-change.aspx.
Potential Considerations for Implementing a Telework Program

34 Telework: Weighing the Information, Determining an Appropriate Approach

Guiding and Supporting Telework. One way of fostering a culture conducive to telework is for 

leadership to openly express their vision for and support of their telework approach. This could 

include emphasizing the core values of the organization and illustrating how their approach to 

telework is consistent with such values and with mission accomplishment. Leaders could also 

discuss the reasons why they believe their approach to telework is optimal for the organization, 

and further why they support participation in telework. Additionally, leadership might consider 

requesting feedback on their telework approach, as this involvement will likely be important for 

getting employees on board with the initiative.41

Following the example of leadership, mid-level managers and frontline supervisors may also find 

it beneficial to communicate their support of the telework approach directly to employees in their 

work unit. Leadership may also consider giving supervisors the authority to use their discretion 

to make adjustments to the organization’s desired approach to telework in order to best address 

the needs of their work units. Together, such leadership guidance and support are important 

for fostering a culture conducive to telework because—as with any new change or initiative—

employees will look to their leaders for direction on how telework should be perceived.

Providing Transparency about Telework Challenges. In tandem with providing guidance on their 

vision for telework and showing their support for their approach, leadership should provide 

transparency on any anticipated challenges to implementing telework. Such challenges include 

any concerns about telework as well as policy and procedural barriers to telework. Providing 

such transparency at the start can assist with cultural acceptance of telework and will help the 

organization as a whole prepare for telework and identify possible strategies for mitigating 

anticipated problems. Indeed, leadership will be crucial for guiding supervisors and the workforce 

through any changes that need to be made or resistance that needs to be overcome to implement 

their approach to telework.42

Supporting Appropriate Participation in Telework. As noted above, employees will look to 

their leaders for guidance on how telework should be perceived and appropriately used. Indeed, 

our survey data indicate that 72 percent of supervisors who had employees who requested to 

telework on a routine basis stated that the degree to which agency managers and leaders support 

telework was important in their decision to support or deny employees’ requests. Further, a 

sizeable minority, or 22 percent, of employees who did not request approval to telework on a 

routine basis, indicated that “[i]t might irritate or frustrate my supervisor because he or she does 

not like telework,” was important in their decision to not request approval. Clearly, leadership 

support for telework at all levels appears important for fostering cultural acceptance of telework 

participation. Another way for leaders to foster a culture that supports participation in telework 

is for them to participate in telework themselves.43 Participation in telework and increasing 

experience managing teleworkers may help supervisors of teleworkers alleviate concerns that they 

have about telework because they will have experienced it first-hand. There is rarely a substitute 

for hands-on experience as a learning tool. Indeed some 49 percent of supervisors who had 

employees who requested to telework on a routine basis indicated that the degree to which they 

41Ibid. See comments within the article by Adam Cole, director of government practice at the Corporate Executive 

Board.

42During an interview on February 1, 2011, representatives from the General Services Administration stated that 

leadership support is essential for promoting telework as is the “need to have Top Cover [by leadership] and a 

champion to help smooth out the issues.” 

43U.S. Office of Personnel Management, Guide to Telework in the Federal Government, April 2011, p. 25. The Guide 

indicates that “Managers and supervisors should make it a point to regularly participate in telework in order to lead 

by example and be comfortable in dealing with the dynamics of managing in a telework environment.” This guide 

can be accessed from: http://www.telework.gov/guidance_and_legislation/telework_guide/telework_guide.pdf.
Potential Considerations for Implementing a Telework Program

A Report by the U.S. Merit Systems Protection Board 35

have experience as a teleworker was important in their decision to support or deny employees’ 

requests. Additionally, 59 percent of supervisors who had employees who requested to telework 

on a routine basis indicated that the extent to which they have experience managing teleworkers 

was important in their decision to support or deny employees’ requests. These findings are 

depicted in Figure 16.

Figure 16. The importance of experience as a teleworker and experience managing 

teleworkers in supervisors’ decisions to support or deny employees’ requests to 

telecommute on a routine basis

*Totals may not equal 100 percent due to rounding.

Taken together, leadership guidance and support will be critical for fostering a culture conducive 

to telework. Further, providing transparency about anticipated telework challenges and 

supporting appropriate participation will be important to ensuring cultural acceptance of the 

telework approach and resulting telework program. 

Supervisor Preparedness

Another critical consideration for telework is that supervisors are prepared to properly manage 

in a telework environment. Effective management will not only be necessary to allow telework 

benefits to be realized but also may help prevent telework concerns from becoming realities. 

Organizations need to ensure that supervisors have the performance management skills necessary 

to manage the workforce. Good performance management practices are also important for 

building employee-supervisor relationships based on mutual trust. Trust can work in concert with 

information gathered from good performance management practices to enable supervisors to 

make wise decisions about using telework in their work units. 
Potential Considerations for Implementing a Telework Program

36 Telework: Weighing the Information, Determining an Appropriate Approach

Building Performance Management Skills. Good performance management practices are 

critical for effective workforce management.44 Previous MSPB research has demonstrated that 

these practices are important for employee engagement,45 which is associated with important 

organizational outcomes.46 In addition to supporting work unit and ultimately organizational 

success, good performance management practices will be especially critical for supervisors in 

managing teleworkers, mitigating telework concerns, and making good telework decisions. 

As illustrated in Table 2, our survey results indicate that a much larger percentage of employees 

who agreed that their supervisor supports telework also agreed with several statements about 

performance management in their organization than employees who disagreed that their 

supervisor supports telework. 

Table 2. Percentage of employees who agreed with the following performance 

management statements by whether they agreed or disagreed with the statement, 

“My supervisor encourages and supports telework.”

Performance Management Statements

Employee 

AGREED 

that Supervisor 

Supports 

Telework

Employee 

DISAGREED 

that Supervisor 

Supports 

Telework

I know what is expected of me on the job. 94% 81%

I am held accountable for achieving the results 

expected of me. 94% 77%

I have individual performance goals that clearly 

define the results I am expected to achieve. 86% 66%

My performance goals are clearly linked to 

organizational or work unit goals. 84% 63%

Recognition and rewards are based on performance 

in my work unit. 75% 44%

Appropriate, objective measures or metrics are used 

to evaluate my achievement of my performance 

goals.

72% 42%

I am satisfied with the recognition and rewards I 

receive for my work. 70% 41%

Although we cannot tell from these data why this association exists, it is consistent with the notion that good performance management practices help supervisors get the information about 

employee behavior and performance that they need to make good decisions about using telework 

in their work environment.

While the specific performance management practices necessary for each work unit that uses 

telework will vary based on individual employee and work unit needs, there are a few common 

elements. For one, it will be incumbent upon supervisors to clearly communicate their 

performance expectations to teleworkers and nonteleworkers and to ensure that the expectations 

are understood. Differences in employee autonomy and work complexity aside, employees need 

44For additional information on the importance of performance management, see the U.S. Office of Personnel 

Management’s Performance Management website, accessed from: http://www.opm.gov/perform/.

45U.S. Merit Systems Protection Board, Managing for Engagement-Communication, Connections, and Courage, 

July 2009.

46U.S. Merit Systems Protection Board, The Power of Federal Employee Engagement, September 2008.
Potential Considerations for Implementing a Telework Program

A Report by the U.S. Merit Systems Protection Board 37

to know what is expected of them and how well they are performing. This is naturally important 

for an employee’s individual performance, but in the aggregate, is also essential for organizational 

performance. Further, it will be especially important in telework arrangements given that 

some in the organization have concerns about teleworker productivity and performance. Clear 

expectations can help establish a contract between supervisors and teleworkers to ensure that 

teleworkers are aware of how they need to fill their hours while they are teleworking. 

Although clear performance expectations will provide the foundation upon which employees 

will focus their efforts, review of progress towards goals coupled with timely feedback will add 

the necessary supportive structure to guide employees’ outcomes. Ensuring that employees 

are on the right track is not only essential for the employees but can help the supervisor stay 

attuned to work demands in the office and who is available for new assignments. Further, such 

reviews and feedback discussions are useful for identifying problems as well as the need to change 

direction or how work is distributed. Again, such reviews and timely feedback will be especially 

important in telework arrangements to mitigate possible concerns about teleworker productivity 

and performance. Yet, regardless of where an employee is working, it is key that supervisors 

use their discretion to determine the appropriate frequency and level of review and feedback 

for each employee based on his or her needs. Some employees prefer and need only minimal 

review and feedback to generate desired results and thus would benefit from a more “hands-off” 

management style. Other employees may need regular, structured, and detailed reviews and 

feedback, and would benefit from a more directive management style. Supervisors need to ensure 

that they are paying attention to such differences in employee needs and that they are tailoring 

their management style and practices accordingly. 

While supervisors need to be prepared to use different styles for managing employee 

performance, there can be no differences in employee standards or accountability for 

performance. This is especially critical in a telework environment. As part of their responsibility 

to hold all employees accountable for their agreed-upon results, supervisors need to communicate 

clear performance expectations and give regular feedback about work progress. When these 

preliminary performance management steps are taken, being held accountable should not 

come as a surprise to any employee. Supervisor commitment to holding employees accountable 

for performance can also help mitigate potential concerns about teleworker productivity 

and performance. Further, it will help supervisors ensure that they are actually focusing on 

performance and not office presence. Representatives from the General Services Administration 

whom we interviewed said there is a “need to change the mindset from focusing on where work 

is performed to focusing on performance.” While being able to monitor and physically observe 

employees in the office and at their desks can provide information about the accomplishment 

of work, it is not a guarantee. Further, the absence of monitoring (such as when an employee 

is teleworking) does not imply that employees are not accomplishing work. Therefore, office 

presence and the ability to observe employees should not serve as a proxy for determining the 

productivity of employees. 

In line with holding employees accountable for their performance and conduct, supervisors 

need to be prepared to make fair and appropriate decisions about recognizing and rewarding 

good performance. On the other hand, supervisors also need to be prepared to address poor 

performance and to help those employees improve. This includes the ability to have difficult 

conversations with employees about their performance. Regardless of work location or 

arrangement, it is important for supervisors to reinforce good performance and take steps to 

correct sub-par performance. This may be especially useful in a telework environment to ensure 

perceptions of fairness.
Potential Considerations for Implementing a Telework Program

38 Telework: Weighing the Information, Determining an Appropriate Approach

Using Performance Management Practices to Build Trust. Mutual trust is important 

for effective working relationships and can be especially important in a telework environment. 

Good performance management practices can support the development of employee-supervisor 

relationships built on mutual trust and defined by transparency and the meeting of expectations. 

These practices provide regular avenues for employees to demonstrate to supervisors that they can 

meet agreed-upon performance expectations, and for supervisors to respond with agreed-upon 

rewards. Such dovetailed employee behaviors and supervisor responses can, over time, build trust 

that each party will follow through on their promises. Trust can work in concert with information 

gathered from good performance management practices to help supervisors make wise decisions 

about using telework in their work units. 

Using Performance Management Information to Make Wise Decisions About 

Telework. Supervisors need to make wise decisions about telework eligibility and continuation 

of use in their work units. Good performance management information can help supervisors 

ensure transparency and fairness in these decisions. Further, performance management 

information can help supervisors ensure they are managing and treating employees fairly 

regardless of where they are working.47 Overall, such information can help supervisors ensure 

that they are using telework in a manner that is conducive to work unit communication, 

teamwork, and relationship dynamics, employee responsiveness and availability, and ultimately 

individual and work unit performance. Indeed, “[g]ood performance management practices are 

essential for telework to be effective and equitable.”48 

Eligibility To Begin Telework. Criteria for eligibility to begin and continue teleworking must be 

consistent with the law and applicable guidance.49 However, the specifics of whom to approve 

for telework fall under the discretion of organizations. Within organizations, supervisors are 

probably in the best position to make appropriate decisions about who is allowed to telework and 

who is not. The concerns in the previous chapter highlight the criticality of good decisions about 

telework for communication, teamwork, and work relationships so as to maintain individual and 

work unit productivity and performance and to ensure teleworker responsiveness and availability. 

Good decisions about who is allowed to telework are crucial for supporting these ends and for 

helping to mitigate telework concerns. Ultimately, work unit goal accomplishment as well as the 

performance and conduct of those requesting telework must drive decisions related to telework 

eligibility.

In using their discretion for determining telework eligibility, at a minimum, supervisors should 

take into consideration the aforementioned performance management information about 

each employee as well as his or her overall performance and demonstration of appropriate 

behaviors in the office. For example, employees’ work results such as quantity, quality, and 

timeliness of products, and behaviors such as use of technology, handling of confidential/secure 

information, and response to coworkers’ requests for input or assistance, should be factors in 

telework eligibility determinations. These may be indicators of whether the employee possesses 

the essential competencies, motivation, and self-discipline to be able to telework successfully. 

47During an interview on Feb. 1, 2011, a General Services Administration representative emphasized that there should 

be no difference in performance measures for teleworkers and nonteleworkers and the importance of “avoiding 

disparate treatment.” 

48U.S. Office of Personnel Management, Guide to Telework in the Federal Government, April 2011, p. 25. This guide 

can be accessed from: http://www.telework.gov/guidance_and_legislation/telework_guide/telework_guide.pdf.

49See the Telework Enhancement Act of 2010 accessed from: http://www.gpo.gov/fdsys/pkg/PLAW-111publ292/pdf/

PLAW-111publ292.pdf. See also U.S. Office of Personnel Management, Guide to Telework in the Federal Government, 

“Eligibility and Participation,” April 2011, pp. 14-16. This guide can be accessed from: http://www.telework.gov/

guidance_and_legislation/telework_guide/telework_guide.pdf.
Potential Considerations for Implementing a Telework Program

A Report by the U.S. Merit Systems Protection Board 39

Indeed, our survey results indicate that 85 percent of supervisors who had employees who 

requested to telework on a routine basis stated that their perception of the employee’s reliability, 

discipline, and self-motivation was important in their decision to support or deny employees’ 

requests. In light of such information, supervisors should make preliminary judgments about 

an employee’s propensity to be responsive, communicate effectively, engage in teamwork, and 

maintain relationships in a telework environment. Regardless of the specific factors supervisors 

use for telework eligibility decisions, they have the responsibility to ensure that they use the same 

criteria for all of their employees, and that such criteria are understood and fairly applied. The 

importance of fairness and transparency in determining telework eligibility criteria and in making 

telework decisions cannot be overstated. In addition to being important for its own merits, 

fairness and perceptions of fairness can influence how employees feel about their jobs and their 

organization and how they perform. 

Once supervisors have communicated telework eligibility criteria and have made determinations 

regarding employee telework eligibility, they should explain the reason(s) for their decisions 

to employees who are determined ineligible. While this type of discussion may be difficult for 

supervisors, it should be conducted in a respectful and straightforward manner. Provided that 

supervisors have engaged their employees in regular performance management discussions and 

can cite performance- or conduct-based reasons for telework ineligibility, the decision should not 

come as a surprise to the employees. However, an ineligible employee may disagree with his or 

her supervisor’s decision and, if permitted through their organization’s grievance procedures, may 

choose to file a grievance regarding the decision. Organizations should be prepared to support 

a supervisor’s decision, provided that performance management practices were exercised, the 

decision was performance- or conduct-based, and criteria for eligibility were clear. 

While eligibility is a necessary prerequisite for employees to telework, willingness to telework is 

equally important. Although an individual may be determined eligible for telework, participation 

in a telework arrangement is voluntary.50 Therefore, after making their eligibility decisions 

for telework, supervisors should encourage eligible individuals to conduct a self-assessment 

to determine whether they want to telework.51 This should include determination that their 

home environment is suitable for telework. For a host of reasons, some employees may decide 

that telework is not appropriate for them.52 Results of our survey indicate that when asked, 

“Assuming you had the equipment, resources, and approval required, how many days per pay 

period do you want to perform your current duties via telework?,” 17 percent of employees stated 

that they would never want to perform their duties via telework or would only want to on an 

ad hoc basis. Further, 48 percent of employees who did not request approval to telework on a 

routine basis stated that they prefer working in the office as important in their decision to not 

request approval. Finally, 28 percent of employees who did not request approval to telework on a 

routine basis stated their view that it might negatively impact their productivity or performance 

50See U. S. Office of Personnel Management, Guide to Telework in the Federal Government, April 2011, p. 6., 

footnote 2, for a potential caveat on the voluntary nature of telework. This guide can be accessed from: 

http://www.telework.gov/guidance_and_legislation/telework_guide/telework_guide.pdf. 

51Refer to U.S. Office of Personnel Management, Guide to Telework in the Federal Government, “Employees,” 

April 2011, pp. 26-29. This guide can be accessed from: http://www.telework.gov/guidance_and_legislation/

telework_guide/telework_guide.pdf.

52For example, some individuals may wish to keep their home and work lives separate, or they may prefer the routine 

and structure of coming to the office everyday. Others may desire to have daily face-to-face communication and 

interaction with colleagues and not want to rely on technology. Some may not want the responsibility of having to 

plan ahead and organize work to fill telework days or to physically bring home equipment or materials. Individuals 

might also identify that their home environment does not have a space appropriate for telework, or would have too 

many distractions and not allow them to focus. 
Potential Considerations for Implementing a Telework Program

40 Telework: Weighing the Information, Determining an Appropriate Approach

was important in their decision to not request approval. Thus, supervisors should be prepared 

for the possibility that those whom they deem eligible for telework may choose not to telework. 

Naturally, supervisors should be supportive of such decisions.

Eligibility To Continue Telework. As noted earlier, good performance management practices 

can also provide supervisors with the support they need to make good decisions about revising 

or revoking telework privileges based on employee performance or conduct. Supervisors need 

to evaluate how individual employees are performing under telework arrangements, including 

how effective they are with communication, teamwork, work relationships, responsiveness, and 

availability. Supervisors should then use this information to make adjustments to their decisions 

and telework approach. For example, employees who were initially determined ineligible for 

telework may be allowed to telework if their performance in specific areas has improved, while 

employees who were initially approved may lose their privileges if certain factors fall below 

acceptable levels. Overall, supervisory attention to individual and work unit performance and 

related work unit dynamics will help supervisors identify individuals for whom telework is not 

working out. 

As with decisions about eligibility to begin telework, supervisors should be able to make such 

telework continuation decisions without fear of undue challenges by employees. Naturally, 

supervisors should be prepared to explain the reasons for their decision to the affected employees 

in a clear, thorough, and respectful manner. This step should include clearly explaining 

the eligibility criteria and the specific factors that were used to make the determination. 

Performance management information can be especially important here. However, despite 

going through these steps, supervisors may still find that some employees may formally dispute 

the ineligibility decision. While supervisors cannot control this occurrence, their attention to 

respectful communication and their focus on job-related factors can go a long way towards 

helping employees recognize that the decision was fair and founded on criteria that are equally 

applicable to all who request telework. However, it is again important that organizations support 

a supervisor’s discretion in this area, providing that good performance management practices 

were exercised, the decision was performance- or conduct-based, and the criteria for eligibility 

were clear. 

Fair Treatment for Teleworkers and Nonteleworkers. As discussed earlier, supervisors also need 

to be prepared to ensure that they are treating teleworkers and nonteleworkers the same way. 

The Telework Enhancement Act of 2010 specifically states that “teleworkers and nonteleworkers 

are treated the same for purposes of—(A) periodic appraisals of job performance of employees; 

(B) training, rewarding, reassigning, promoting, reducing in grade, retaining, and removing 

employees; (C) work requirements; or (D) other acts involving managerial discretion . . . .”53 

Such acts would include the distribution of work assignments. Good performance management 

practices can help supervisors make decisions in all of these areas that are sound, fair, and based 

on employee merit and not on their work location. 

Discrepancies Between Supervisor Skills and the Needs of the Supervisor Role. 

Previous MSPB research has indicated that there is room for improvement in some supervisors’ 

preparedness for their roles.54 Specifically, some supervisors may not have been properly 

informed of the extent of supervisory duties when they applied for their positions; may not 

535 U.S.C. § 6503(a)(3) (internal punctuation omitted).

54U.S. Merit Systems Protection Board, A Call to Action: Improving First-Level Supervision of Federal Employees, 

May 2010. 
Potential Considerations for Implementing a Telework Program

A Report by the U.S. Merit Systems Protection Board 41

have been hired based on their management skills; may not have received appropriate training 

including performance management training; and may not be evaluated on their supervisory 

behaviors.55 While these problems exist independently of telework, they may be exacerbated 

in a telework environment. Granted, the incidence, prevalence, and magnitude of inadequate 

supervisor preparedness will vary both within and across organizations, as will its implications 

for managing teleworkers in different contexts. Regardless, organizations should work with their 

supervisors to determine any skill inadequacies for managing nonteleworkers and teleworkers and 

implement developmental measures as appropriate. This may require both short-term and longterm strategies.

In the short-term, organizations may need to provide supervisors with more extensive 

performance management training building on some formal steps that have been taken to address 

weaknesses in such training.56 Or they may need to develop more focused, tailored training 

to address the specific needs of their supervisors. Additionally, organizations could encourage 

mentoring and feedback from other supervisors who manage teleworkers. They may also need to 

introduce telework at a reduced pace or on a limited basis while they develop their supervisors’ 

skills and establish the performance management structure needed to maximize the benefits of 

telework and minimize concerns. In the long-term, however, and in the interest of not denying 

themselves, their employees, and ultimately those whom the Government serves the benefits of 

telework, organizations may need to adopt more firm strategies. This may include changes in 

how supervisors are selected, developed, and evaluated to ensure that they have the appropriate 

competencies to successfully manage both a remote and traditional workforce. 

Logistical Preparedness: 

Technology, Equipment, Technical Support, and Security 

Ensuring culture, leadership, and supervisor preparedness can collectively provide a solid 

foundation for an effective telework program. However, also critical is an organization’s logistical 

preparedness. Logistical preparedness includes technology, equipment, and technical support 

readiness for telework. These elements are likely to serve as critical enablers for telework, as 

employees will need remote access to their existing business tools to provide seamlessness 

between working in the office and working at home. Similarly, employees will need appropriate 

technologies to enable continuity in quality and quantity of communication and teamwork 

efforts as well as work relationships. Further, appropriate technical staff will need to be available 

to establish, guide, and support such an infrastructure. Additionally, organizations will need 

to ensure information security preparedness for telework.57 While information security 

preparedness is important for everyday telework, it is especially critical for ensuring successful 

telework as a continuity-of-operations strategy.

55The MSPB report cited in footnote 54 indicates on pages 35-36 that only 26 percent of new supervisors receive 

training on how to develop performance goals and standards; only 25 percent receive training on reviewing 

employees’ work progress; only 28 percent receive training on documenting employee performance; only 17 percent 

receive training on conducting performance discussions; and only 24 percent receive training on giving positive 

feedback and coaching. 

56See 5 C.F.R. § 412.202, “Systematic training and development of supervisors, managers, and executives.”

57For more information on security preparedness for telework, see “Telework Security” accessed from 

www.gsa.gov/teleworknow.
Potential Considerations for Implementing a Telework Program

42 Telework: Weighing the Information, Determining an Appropriate Approach

Determining an appropriate telework technology and security solution. As with the other 

considerations for telework, there is unlikely to be a one-size-fits-all solution for organizations 

in regard to appropriate technology, equipment, technical support, and security for telework. 

First, there is likely to be variability between organizations in what constitutes such necessary 

elements for telework based on differences in mission, culture, job functions, sensitivity of 

work, interdependency among employees for work tasks, and other factors. Second, there is 

likely to be variability between organizations in the adaptability of their current infrastructure to 

meet telework demands. Third, given these factors, there will likely be variability in what each 

organization determines is appropriate from a financial standpoint. 

In light of these considerations, organizational leaders should devise a plan to identify and 

address where they are and where they need to be in terms of technology, equipment, technical 

support, and security in order to make telework a success. To this end they could consider 

convening discussion groups with the Telework Managing Officer, supervisors, and information 

technology (IT) specialists to determine telework infrastructure needs and capability gaps. 

Employees could also be consulted for a “front line” perspective on the technology and security 

necessary to make telework a success. For example, employees might be able to draw attention to 

specific technologies that they believe would help them in working and communicating with one 

another while teleworking. Or they may be able to help identify whether they already have the 

basic equipment to successfully perform their duties through telework. As illustrated in Figure 

17, a much larger percentage of surveyed employees who requested approval to telework on a 

routine basis agreed that they have access to (they use their own or their organization provides) 

the hardware, software, internet connections, and other resources, that they need for telework, 

compared with employees who did not request approval to telework on a routine basis. 

Figure 17. Employees’ reported agreement with the statement, “I have access to

 (use my own or my agency provides) the hardware, software, internet connections, 

etc. I need for telework.”

*Totals may not equal 100 percent due to rounding.
Potential Considerations for Implementing a Telework Program

A Report by the U.S. Merit Systems Protection Board 43

Additionally, employees may be able to draw attention to perceived or actual threats to 

information security in regards to telework, or the need for better training on information 

security in a telework environment. Results from the current study suggest that a sizeable 

minority—19 percent—of employees who did not request approval to telework on a routine basis 

indicated their view that information security cannot be assured was important in their decision 

to not request approval. Employees may possibly be able to offer additional useful perspectives on 

technological and security needs for telework.

Technology changes for telework may impose costs. The larger the discrepancy between where 

an organization falls along the telework technology and security continuum and where an 

organization wants and needs to be, the more likely it is that the costs will be higher to 

implement desired telework arrangements. Organizations and supervisors will need to weigh 

the costs of implementing their desired telework technological solution against the anticipated 

benefits of telework, including any savings associated with such benefits. For example, while 

potential benefits of telework to organizations in the areas of continuity of operations, 

recruitment, retention, and employee engagement don’t lend themselves to exact dollar-metrics, 

there are certainly financial implications of telework which organizations may want to consider. 

For example, while the Congressional Budget Office estimated that it would cost approximately 

$30 million across 5 years to pay for administrative necessities related to telework,58 there have 

been estimates that “a four-day shutdown following a blizzard in February 2010 cost the federal 

government between $70 million and $100 million per day in lost productivity.”59

Telework technology changes may not need to be immediate. Organizations and supervisors might 

also consider that when weighing the costs to establish their desired technological solution for 

telework against the anticipated benefits of telework, any technological or infrastructure changes 

or upgrades do not necessarily have to happen immediately. The Telework Enhancement Act 

of 2010 specifies that “the Director of the Office of Management and Budget shall issue policy 

guidance requiring each executive agency when purchasing computer systems, to purchase 

computer systems that enable and support telework, unless the head of the agency determines 

that there is a mission-specific reason not to do so.”60 However, the additional solutions 

supportive of telework could be phased-in during regular equipment and technology refreshes. 

Such a gradual approach would naturally spread the telework technological costs over a longer 

period of time. This distribution could be necessary for many organizations or at least more 

financially palatable, thereby making it easier (and more feasible) for them to implement the 

telework solution that is optimal. 

Logistical Preparedness: Telework Education

Another form of logistical preparedness for telework is for organizational leaders, supervisors, 

and other telework decisionmakers, as well as employees, to stay informed about relevant 

telework information. Awareness and understanding of telework information as well as options 

for telework programs are likely to be important for ensuring compliance with requirements 

and for determining the most appropriate approach to telework to meet organizational needs. 

Organizational leaders, supervisors, and other telework decisionmakers, as well as employees, 

58Joe Davidson, “Telework Legislation is good news for budgets and workers,” The Washington Post, Nov. 18, 2010. 

59Bill Leonard, “President Signs Federal Employee Telework Legislation,” Society for Human Resource Management, 

Dec. 10, 2010.

605 U.S.C. § 6504(f).
Potential Considerations for Implementing a Telework Program

44 Telework: Weighing the Information, Determining an Appropriate Approach

should ensure awareness of provisions of the Telework Enhancement Act of 2010 and OPM’s 

Guide to Telework in the Federal Government,61 both of which outline legal requirements, and 

roles, responsibilities, and other important information for telework. Additionally, there is a 

wealth of publically available telework information and resources that they may find useful.62

Additionally, organizational leaders, supervisors, and other telework decisionmakers should 

ensure that they—and their employees—understand their organization’s specific telework policy, 

training requirements, and agreements as well as any applicable collective bargaining agreements. 

This is necessary for compliance with program requirements and is intuitively important for a 

successful telework program. Further, a good understanding of such items can make employees 

more comfortable about entering into a telework arrangement. For this reason, organizations 

may also wish to examine the value of creating a formal channel in the organization for guidance 

on or questions and answers about telework. This channel would most appropriately include 

participation from the TMO or other designated telework officials who are familiar with the 

organization’s telework policy, required training, agreements, applicable collective bargaining 

agreements, and telework legal requirements. Additionally, organizations should provide easy 

access to pertinent telework information and resources.63

Deciding on an Appropriate Approach to Telework

Determining the extent to which telework can and should be implemented in their environment 

will require that organizations weigh the benefits of and any concerns about telework for their 

situation in conjunction with legal requirements and implementation considerations. There 

is not one “best” answer for using telework. The many distinct organizations of the Federal 

Government will differ according to factors such as:

•	 Mission; 

•	 Occupations and job functions;

•	 Technology and security requirements;

•	 Leader characteristics, interests, and vision; and 

•	 Workforce needs, interests, and cultural characteristics. 

Further, even within each organization, there will be at least some variability from the department 

level down to the work unit level, especially in terms of tasks and work products and necessary 

work unit dynamics. All of these differences will have implications for how telework can and 

should be implemented in a particular organization. Ultimately, tailored approaches to telework 

that take into account such factors and appropriately weigh applicable benefits and concerns, 

such as those discussed in the previous chapters, will be necessary for success.

Determining Telework Frequency. One critical decision about the approach to telework that is 

linked to all other telework decisions, is determining the optimal frequency of telework. This 

decision may be best made at the lowest supervisory level possible (for example, manager, firstlevel supervisor) as these individuals are in a good position to judge specific work unit needs and 

61See the Telework Enhancement Act of 2010 accessed from: http://www.gpo.gov/fdsys/pkg/PLAW-111publ292/pdf/

PLAW-111publ292.pdf. Also see U.S. Office of Personnel Management, Guide to Telework in the Federal Government, 

April 2011, accessed from: http://www.telework.gov/guidance_and_legislation/telework_guide/telework_guide.pdf.

62For example, www.telework.gov is co-sponsored by OPM and GSA and provides a range of information about 

telework. Additionally, www.gsa.gov/teleworknow can be used to access a range of telework information.

63During an interview on January 20, 2011, representatives from the U.S. Patent and Trademark Office indicated that 

the upfront provision of telework tools was a success factor for their telework program.
Potential Considerations for Implementing a Telework Program

A Report by the U.S. Merit Systems Protection Board 45

factors relevant to telework. Further, these needs and factors are likely to be pertinent to all other 

telework decisions. For example, in deciding on the frequency of telework for their work units, 

supervisors could consider the extent to which: 

•	 Work unit occupations, core duties, responsibilities, and tasks are consistent 

with telework;

•	 Employees need to be physically present to interact with coworkers, customers, 

clients, and others;

•	 Individual employees are willing and able to successfully telework;

•	 Communication, teamwork, and work relationships necessary for work unit 

performance can be maintained; 

•	 Employee responsiveness and availability can be maintained;

•	 Office coverage can be maintained; 

•	 Information security requirements allow telework; and

•	 Available technology is conducive to telework.

Although the optimal frequency of telework is likely to vary for different environments based on 

these and other factors, our data suggest a relationship between how often an employee teleworks 

and his or her view of how telework impacts different work factors. Specifically, as shown in 

Table 3, these data mostly suggest that a greater percentage of those employees who telework 

2 to 3 days per week indicated a positive impact of telework on work factors than employees 

who telework at other frequencies. 

Table 3. Percentage of employees reporting a positive impact of telework 

on various work factors by their telework frequency

Work Factors Ad Hoc

1 Day 

per Week

2-3 Days 

per Week

4-5 Days 

per Week

Your personal productivity or performance. 59% 81% 90% 81%

Your ability to balance work and 

nonwork life. 68% 85% 89% 92%

Your amount of stress related to 

work matters. 57% 76% 85% 78%

Your amount of stress related to nonwork 

matters. 55% 73% 80% 77%

Your opportunity for developmental 

assignments or training. 16% 30% 36% 29%

Your opportunity for career advancement 

or promotion. 11% 24% 30% 23%

Your relationships with your colleagues. 13% 30% 41% 25%

Your relationship with your supervisor. 16% 31% 44% 34%

Your desire to stay in your organization. 52% 77% 85% 86%

Your satisfaction with your job and 

organization. 62% 84% 88% 88%

Your need to have people cover for you. 9% 18% 17% 15%

*Note that these percentages just represent employee teleworkers’ perceptions of positive impact of 

their teleworking on each work factor; these data do not account for their perceptions of either neutral or 

negative impact on these factors.
Potential Considerations for Implementing a Telework Program

46 Telework: Weighing the Information, Determining an Appropriate Approach

While these findings are interesting, they represent only the perspective of teleworking 

employees. Determining the optimal frequency of telework should be based on objective data 

about the impact of telework frequencies on work factors, but should also consider supervisors’ 

and employee nonteleworkers’ perspectives. Also, organizations and supervisors must take into 

account their unique circumstances and needs, as the optimal frequency is likely to vary across 

environments. 

Telework Decisions and the Use of Pilot Programs. Organizations that decide to implement 

telework will have to make a host of decisions based on telework-relevant factors to determine 

the approach to telework that is best for their situation. Pilot programs can provide a relatively 

low-risk environment to determine what works, what does not work, and what is ultimately 

necessary for an appropriate approach to telework in an organization. This experience can assist 

organizations in laying a solid foundation for building a full-scale telework program that best 

aligns with organization mission, job functions, and worker needs. 

To develop the framework for the pilot program(s), organizations could consider convening focus 

groups. Focus groups could include the Telework Managing Officer and a blend of senior leaders, 

supervisors, and employee representatives with an array of job functions to sample a range of 

needs and gather multiple perspectives on criteria for telework to be a success. The culmination 

of such focus group discussions could be the “who, what, when, and how” plans for the telework 

pilot program. However, regardless of how organizations determine their plans for the pilot 

program, once initiated, the program should be evaluated and adjusted accordingly.64 This 

organization-tailored systematic vetting process of telework practices could significantly assist an 

organization in ensuring that their full-scale telework program will be appropriate and conducive 

to mission accomplishment. 

Flexibility in Decisions and Approach to Telework. In general, it will be important for 

organizational leaders, supervisors, and any other individuals making decisions about telework, as 

well as employees, to challenge their assumptions about the best approach to telework. Flexibility 

and openness in perspective will be key as the optimal approach to telework is likely to evolve 

over time within each work unit and organization as a whole, and require an iterative process. 

The more flexible and open leaders, supervisors, and other decisionmakers, as well as employees, 

are to trying new approaches, working through issues, and identifying best practices, the greater 

their potential for determining the most appropriate approach for leveraging telework to meet 

mission goals. This flexibility and openness includes sharing information with one another 

about telework and discussing relevant benefits and any concerns. Discussions could include 

strategies for ensuring effective communication, teamwork, and work relationships in a telework 

environment, as well as teleworker responsiveness and availability. 

Early and Ongoing Evaluation of the Telework Program. As organizations make decisions about 

the use of telework, they need to be prepared to identify metrics to evaluate program results for 

the organization, and to start measuring and tracking them. Decisions on the specific metrics to 

track for evaluation purposes, and for identifying best practices and areas needing improvement, 

will vary for each organization (and even work unit) based on their interests, unique situation, 

64For example, evaluation could include analyzing the extent to which organizational goals are being met. 

Organizations could also survey participants in the pilot program on multiple occasions to evaluate the functioning 

of the program. Structured and open ended survey responses could provide organizations with insight into elements 

of success of the telework program and could alert organizations of elements that could use improvement. Additional 

focus group discussions could then be held regarding the latter to determine alternative telework practices and 

procedures. These changes could then be implemented and subsequently evaluated through the next wave of surveys, 

resulting in a cyclical process of continuous improvement for the telework program. 
Potential Considerations for Implementing a Telework Program

A Report by the U.S. Merit Systems Protection Board 47

and characteristics. Metrics will also depend on telework reporting requirements.65 Regardless of 

the metrics chosen, program evaluation and improvement should begin early and be an ongoing 

process. 

Summary of Implementation Considerations

Implementing telework will require at least some degree of culture change in many organizations. 

Since leaders have a key role in shaping an organization’s culture, their words and behaviors will 

be critical for ensuring that the organization’s culture can adapt to and accommodate telework. 

Leaders can take several steps to foster such a culture, including providing guidance and support 

on their telework approach, providing transparency about telework challenges, and supporting 

appropriate participation in telework as well as participating themselves. 

Organizations need to ensure that their supervisors are prepared to properly use telework 

and manage teleworkers and nonteleworkers. These supervisory capabilities will not only be 

necessary to allow telework benefits to be realized but may also help prevent telework concerns 

from becoming realities. Organizations need to ensure that supervisors have the performance 

management skills necessary to manage the workforce. Good performance management 

practices are important for building employee-supervisor relationships based on mutual trust. 

Trust can work in concert with information gathered from good performance management 

practices to enable supervisors to make wise decisions about using telework in their work units, 

such as decisions about telework eligibility and continuation of use in their work units. Good 

performance management information can help supervisors ensure transparency and fairness in 

these decisions. Further, performance management information can help supervisors ensure they 

are managing and treating employees fairly regardless of where they are working. Organizations 

are encouraged to work with their supervisors to identify skill areas in need of improvement and 

to provide the necessary support and developmental resources. The latter is an effort that may 

require both short-term and long-term strategies. 

Organizations also need to pay attention to their logistical preparedness for telework because 

their technology, equipment, technical support, and security infrastructure will be critical in 

enabling telework success. Organizational leaders should devise a plan to identify and address 

where they are and where they need to be in terms of technology, equipment, technical support, 

and security in order to make telework a success. To this end, they could consider convening 

discussion groups with the Telework Managing Officer, supervisors, and information technology 

(IT) specialists to determine telework infrastructure needs and capability gaps. Employees could 

also be consulted for a “front line” perspective on the technology and security necessary to make 

telework a success. While there are likely to be costs associated with any infrastructure changes, 

organizations should consider how they may be offset by the anticipated value of telework for 

their environments. They may also consider making incremental improvements as necessary. 

Another form of logistical preparedness for telework is for organizational leaders, supervisors, 

and other telework decisionmakers, as well as employees, to stay informed about relevant 

telework information. Awareness and understanding of telework information as well as options 

for telework programs are likely to be important for ensuring compliance with requirements 

and for determining the most appropriate approach to telework to meet organizational needs. 

65See U.S. Office of Personnel Management, Guide to Telework in the Federal Government, April 2011, “Reporting,” 

p. 20. This guide can be accessed from: http://www.telework.gov/guidance_and_legislation/telework_guide/

telework_guide.pdf.
Potential Considerations for Implementing a Telework Program

48 Telework: Weighing the Information, Determining an Appropriate Approach

Additionally, organizational leaders, supervisors, and other telework decisionmakers should 

ensure that they—and their employees—understand their organization’s specific telework policy, 

training requirements, and agreements as well as any applicable collective bargaining agreements. 

A formal channel in the organization for telework guidance, questions, and answers might also be 

helpful.

Finally, organizations are responsible for determining the extent to which telework can and 

should be implemented in their environment. This will require weighing benefits of and 

any concerns about telework in conjunction with legal requirements and implementation 

considerations before deciding on an appropriate approach. Pilot programs may assist them to 

decide what works best in their environment and to tailor their approach to telework to meet 

their needs. It will be important for organizational leaders, supervisors, and any other individuals 

making decisions about telework, as well as employees, to challenge their assumptions about 

the best approach to telework. Flexibility and openness in perspective will be key as the optimal 

approach to telework is likely to evolve over time within each work unit and organization as a 

whole, and require an iterative process. This flexibility and openness includes sharing information 

with one another about telework and discussing relevant benefits and any concerns. As 

organizations make decisions about telework, appropriate metrics should be identified, measured, 

and tracked to help them evaluate program functioning and make adjustments as necessary. 

While the implementation considerations that we have offered can assist organizations in 

determining the most appropriate approach to telework for their environment, as with the 

benefits and concerns we have discussed, the applicability of these considerations will vary based 

on each organization’s unique situation and telework needs. Further, we emphasize that these are 

just a sample of the range of telework considerations and encourage organizations to determine 

any additional considerations pertinent to their situation. 
A Report by the U.S. Merit Systems Protection Board 49

Conclusions

The Federal Government has a responsibility to use the Federal workforce in an efficient 

and effective manner.66 Such usage requires that Federal organizations implement 

policies, practices, and procedures that strategically balance organizational and human 

capital needs. If used appropriately, telework—which provides flexibility in where and when work 

is accomplished—can function as such a practice. 

Federal organizations continue to be interested in the role that telework can play in efficient 

and effective use of the workforce. Therefore, MSPB conducted this study to examine Federal 

employee, supervisor, manager, and executive experiences with—and perceptions of—telework 

in the Federal workplace. We also obtained information relevant to telework from a review of 

various news articles, a sample of relevant professional literature, and interviews with leaders 

in telework. The study results provide a holistic depiction of some benefits, concerns, and 

implementation considerations for telework. This resultant report can assist organizations in 

making decisions about how to best integrate the telework flexibility into their business strategy 

and leverage it to meet mission needs. 

Telework Can Directly Benefit Organizations. Telework can support continuity of operations 

plans and organizational preparedness for emergency situations. Additionally, it can potentially 

reduce organizations’ need for physical office space and its accompanying real estate and related 

expenses. These direct benefits could have a significant impact on organizational functioning in 

particular situations. 

Telework Can Directly Benefit Employees. Telework can support employees’ work/life balance 

through reducing their commutes, allowing employees more personal time in the absence of a 

commute, and possibly granting them flexibility to work when they are most capable. These 

direct benefits can—collectively—help employees better balance their professional and personal 

schedules. 

Telework Can Indirectly Benefit Organizations. Although the direct benefits of telework 

to organizations and employees are unquestionably valuable, they do not necessarily make 

the business case for telework by themselves. We contend that the real value of telework for 

organizations comes indirectly through telework’s direct impact on employee work/life balance. 

Specifically, by virtue of supporting employee work/life balance, telework can indirectly provide 

significant benefits for organizations in the areas of recruitment, retention, and employee 

engagement. Further, and of critical importance, it appears that the benefits of telework can 

occur with generally maintained productivity and performance. Yet, we emphasize that the 

benefits of telework are contingent on wise decisions about an appropriate approach to telework 

for a given situation, as well as on the effective employee management within that approach. 

665 U.S.C. § 2301(b)(5).
Conclusions

50 Telework: Weighing the Information, Determining an Appropriate Approach

Telework Can Raise Concerns. Supervisors play a critical role in ensuring the success of a telework 

program and they need to feel comfortable in that role. However, some supervisors have concerns 

about how telework will affect mission accomplishment, and specifically, the functioning of their 

work units. Further, some believe that support for telework has been given too freely without 

providing adequate attention to addressing telework concerns. We draw attention to their 

concerns, organized into three areas:

•	 Work unit performance;

•	 Work unit dynamics; and

•	 Teleworker responsiveness and availability.

Although there are organizations and situations where these concerns may be warranted, our 

survey data generally suggest that most supervisors, employee nonteleworkers, and employee 

routine teleworkers believe that work outcomes relevant to telework concerns can be maintained 

in a telework environment. Yet, our data reveal some potential room for improvement. 

Specifically, our data also indicate that some supervisors and employee nonteleworkers believe 

that telework has had a negative impact on some of these work outcomes. The occurrence of 

such perceptions and of telework concerns in general underscores the criticality of ensuring that 

wise decisions are made about an appropriate approach to telework for a given situation and that 

employees are managed effectively within that approach. Similarly, good decisions about the use 

of telework can help mitigate concerns and prevent them from becoming realities.

However, we caution that some telework concerns—and some of the perceived and actual 

negative impacts of telework—may stem from issues or problems for which there are no readily 

apparent solutions. Thus, in making decisions about telework as a business tool, organizations 

should be prepared to identify areas where they are willing to make some trade-offs in order to 

reap the benefits that telework can offer. While this threshold for trade-offs and the incidence 

and range of actual negative effects of telework are likely to vary across and within organizations, 

a common goal should be ensuring a net positive gain or return for the organization. 

Attention to Culture and Leadership Preparedness for Telework. Implementing telework will 

require at least some degree of culture change in many organizations. Since leaders have a key role 

in shaping an organization’s culture, their words and behaviors will be critical for ensuring that 

the organization’s culture can adapt to and accommodate telework. Leaders can take several steps 

to foster such a culture, including providing guidance and support on their telework approach, 

providing transparency about telework challenges, and supporting appropriate participation in 

telework as well as participating themselves. 

Attention to Supervisor Preparedness. Organizations need to ensure that their supervisors are 

prepared to properly use telework and manage teleworkers and nonteleworkers. These supervisory 

capabilities will not only be necessary to allow telework benefits to be realized but may also help 

prevent telework concerns from becoming realities. Organizations need to ensure that supervisors 

have the performance management skills necessary to manage the workforce. Good performance 

management practices are important for building employee-supervisor relationships based on 

mutual trust. Trust can work in concert with information gathered from good performance 

management practices to enable supervisors to make wise decisions about using telework in their 

work units, such as decisions about telework eligibility and continuation of use in their work 

units. Good performance management information can help supervisors ensure transparency and 

fairness in these decisions. Further, performance management information can help supervisors 
Conclusions

A Report by the U.S. Merit Systems Protection Board 51

ensure they are managing and treating employees fairly regardless of where they are working. 

Organizations are encouraged to work with their supervisors to identify skill areas in need of 

improvement and to provide the necessary support and developmental resources. The latter is an 

effort that may require both short-term and long-term strategies. 

Attention to Logistical Preparedness. Organizations also need to pay attention to their logistical 

preparedness for telework because their technology, equipment, technical support, and security 

infrastructure will be critical in enabling telework success. Organizational leaders should 

devise a plan to identify and address where they are and where they need to be in terms of 

technology, equipment, technical support, and security in order to make telework a success. To 

this end, they could consider convening discussion groups with the Telework Managing Officer, 

supervisors, and information technology (IT) specialists to determine telework infrastructure 

needs and capability gaps. Employees could also be consulted for a “front line” perspective on the 

technology and security necessary to make telework a success. While there are likely to be costs 

associated with any infrastructure changes, organizations should consider how they may be offset 

by the anticipated value of telework for their environments. They may also consider making 

incremental improvements as necessary. 

Another form of logistical preparedness for telework is for organizational leaders, supervisors, 

and other telework decisionmakers, as well as employees, to stay informed about relevant 

telework information. Awareness and understanding of telework information as well as options 

for telework programs are likely to be important for ensuring compliance with requirements 

and for determining the most appropriate approach to telework to meet organizational needs. 

Additionally, organizational leaders, supervisors, and other telework decisionmakers should 

ensure that they—and their employees—understand their organization’s specific telework policy, 

training requirements, and agreements as well as any applicable collective bargaining agreements. 

Deciding on an Appropriate Approach to Telework. Finally, organizations are responsible for 

determining the extent to which telework can and should be implemented in their environment. 

This will require weighing benefits of and any concerns about telework in conjunction with 

legal requirements and implementation considerations. Then, they must make decisions on 

an appropriate approach. Pilot programs may assist them to decide what works best in their 

environment and to tailor their approach to telework to meet their needs. It will be important for 

organizational leaders, supervisors, and any other individuals making decisions about telework, as 

well as employees, to challenge their assumptions about the best approach to telework. Flexibility 

and openness in perspective will be key as the optimal approach to telework is likely to evolve 

over time within each work unit and organization as a whole, and require an iterative process. 

This flexibility and openness includes sharing information with one another about telework and 

discussing relevant benefits and any concerns. As organizations make decisions about telework, 

appropriate metrics should be identified, measured, and tracked to help them evaluate program 

functioning and make adjustments as necessary.

A Report by the U.S. Merit Systems Protection Board 53

Recommendations

Organizational Leaders, Supervisors, and Employees

•	 Learn about telework. Ensure awareness of provisions in the Telework Enhancement 

Act of 2010 and OPM’s Guide to Telework in the Federal Government,67 both of which 

outline legal requirements, roles and responsibilities, and other important information for 

telework. Also ensure understanding of your organization’s specific telework policy, training 

requirements, and telework agreements as well as applicable collective bargaining agreements. 

•	 Determine an appropriate technology, equipment, technical support, and security 

infrastructure for telework. Assist organizational leaders in devising a plan to identify and 

address where they are and where they need to be in terms of technology, equipment, 

technical support, and security in order to make telework a success. Take into account 

necessary communication, teamwork, and work relationship needs, as well as requirements 

for teleworker responsiveness and availability during telework.

•	 Be flexible about telework. Recognize that the optimal approach to telework is likely to 

evolve over time within each work unit and organization as a whole, and require an iterative 

process. Challenge assumptions about the best approach to telework. The more flexible 

and open you are to trying new approaches, working through issues, and identifying best 

practices, the greater the potential for determining the most appropriate approach for 

leveraging telework to meet mission goals. 

•	 Talk about telework. Share information with one another about telework and discuss 

relevant benefits and any concerns. Discussions could include strategies for ensuring effective 

communication, teamwork, and work relationships in a telework environment, as well as 

teleworker responsiveness and availability. 

Organizational Leaders

•	 Ensure culture and leadership preparedness for telework. Recognize that implementing 

telework will require at least some degree of culture change in many organizations. 

Ensure that leaders’ words and behaviors guide the organization’s culture to adapt to and 

accommodate telework. Leaders can foster such a culture by taking such steps as providing 

guidance and support on the telework approach, providing transparency about telework’s 

challenges, and supporting appropriate participation in telework as well as participating 

themselves. 

•	 Consider giving supervisors authority and support to make changes to the organization’s 

desired telework approach to best support their work unit’s needs. Consider the 

appropriateness of giving supervisors discretion to make adjustments to the organization’s 

desired approach to telework in order to best address the needs of their work unit. 

67See the Telework Enhancement Act of 2010 accessed from: http://www.gpo.gov/fdsys/pkg/PLAW-111publ292/pdf/

PLAW-111publ292.pdf. Also see U.S. Office of Personnel Management, Guide to Telework in the Federal Government, 

April 2011, accessed from: http://www.telework.gov/guidance_and_legislation/telework_guide/telework_guide.pdf.
Recommendations

54 Telework: Weighing the Information, Determining an Appropriate Approach

•	 Ensure supervisor preparedness for managing teleworkers and nonteleworkers. Work with 

supervisors to ensure that they are prepared for their role and can effectively manage 

teleworkers and nonteleworkers. In particular, make sure supervisors have good performance 

management skills. Good performance management practices are important for building 

employee-supervisor relationships based on mutual trust. Trust can work in concert with 

information gathered from good performance management practices to enable supervisors to 

make wise decisions about using telework in their work units (e.g., decisions about eligibility 

and continuation of use). Good performance management will also be important for 

ensuring fair treatment of teleworkers and nonteleworkers. Identify supervisors’ skill areas in 

need of improvement and provide the necessary support and developmental resources. Shortterm strategies, such as performance management training, and mentoring and feedback 

from other supervisors who manage teleworkers, may be necessary, as well as long-term 

strategies such as changes in how supervisors are selected, developed, and evaluated. 

•	 Support supervisor discretion in making telework eligibility decisions. Criteria for eligibility 

to begin and continue teleworking must be consistent with the law and applicable 

guidance.68 However, the specific details fall under the discretion of organizations. Because 

supervisors are probably in the best position to make appropriate decisions about who is 

allowed to telework and who is not in their work unit, organizational leaders should be 

prepared to support supervisor’s discretion in such decisions, provided that good performance 

management practices were exercised, the decision was performance- or conduct-based, and 

criteria for eligibility were clear. 

•	 Decide on an appropriate approach to telework. Determine the extent to which telework 

can and should be implemented in the organization’s environment. Weigh benefits of and 

any concerns about telework in conjunction with legal requirements and implementation 

considerations. Then, decide on an appropriate approach. Pilot programs may assist in 

making appropriate decisions about what works best and in tailoring the approach to 

telework to the organization’s needs. As decisions are made, identify, measure, and track 

metrics to evaluate program functioning and make adjustments as necessary. 

Supervisors

•	 Work with organizational leaders to determine appropriate use of telework. Begin by 

identifying work unit needs in relation to telework. Also identify any concerns about the 

impact of telework and determine possible strategies for mitigating them. At a minimum, 

determine standards for and strategies to maintain necessary work unit dynamics, such 

as communication, teamwork, and work relationships. Similarly, determine strategies for 

ensuring teleworker responsiveness and availability in areas such as contact, meetings, 

unexpected assignments, and office coverage. 

•	 Determine your preparedness for managing in a telework environment. Ensure you have 

the performance management skills necessary to manage the workforce, both teleworkers 

and nonteleworkers. Such skills include the ability to clearly communicate performance 

expectations; review progress towards goals and provide feedback; hold employees 

accountable for results; and make fair and appropriate decisions about recognizing and 

rewarding good performance and addressing poor performance. Also, ensure you can 

have difficult conversations with employees about their performance. Further, supervisors 

need to make sure they can tailor their management style and practices to the needs of 

68See the Telework Enhancement Act of 2010 accessed from: http://www.gpo.gov/fdsys/pkg/PLAW-111publ292/

pdf/PLAW-111publ292.pdf . Also, see U.S. Office of Personnel Management, Guide to Telework in the Federal 

Government, “Eligibility and Participation,” April 2011, pp. 14-16. This guide can be accessed from:

http://www.telework.gov/guidance_and_legislation/telework_guide/telework_guide.pdf.
Recommendations

A Report by the U.S. Merit Systems Protection Board 55

different employees. These skills are not only important for the work unit and ultimately 

organizational productivity, but can help mitigate concerns about telework and help 

supervisors make good decisions about telework. To the extent that you need improvement 

in these skills, be prepared to work with your organizational leaders to improve. 

•	 Exercise performance management skills. Practice the performance management skills that 

will be necessary for work unit and ultimately organizational performance and that will also 

be important for building employee-supervisor relationships based on mutual trust. Clearly 

communicate to teleworkers and nonteleworkers performance expectations and ensure that 

these are understood. Review their progress towards goals and provide timely feedback, both 

steps important for identifying problems as well as the need to change direction or how 

work is distributed. Then, hold all employees accountable for their agreed-upon results. In 

line with holding employees accountable for their performance, make fair and appropriate 

decisions about recognizing and rewarding good performance as well as addressing poor 

performance. Finally, exercise discretion to tailor management style and practices to the 

needs of different employees. 

•	 Use performance management information to make wise decisions about telework. Use 

performance management information to make good decisions about telework eligibility and 

continuation of use, and to ensure fair treatment of teleworkers and nonteleworkers. This 

will be necessary for allowing the benefits of telework to be realized and for mitigating or 

preventing concerns about telework from becoming realities. Additionally, wise decisions in 

these areas will help supervisors ensure that they are using telework in a manner conducive to 

work unit communication, teamwork and relationship dynamics, employee responsiveness 

and availability, and ultimately individual and work unit performance. Finally, good 

decisions can help supervisors ensure and provide transparency that all employees are being 

managed and treated fairly regardless of where they are working. 

•	 Make wise decisions regarding initial and continued telework eligibility. In using discretion 

to approve requests to telework, at a minimum, take into consideration each employee’s 

overall productivity and performance and demonstration of appropriate behaviors in the 

office. Regardless of the specific factors used for telework eligibility decisions, consistent with 

the law and applicable guidance,69 ensure that the same criteria are used for all employees, 

that employees understand them, and that they are fairly applied. After employees begin to 

telework, evaluate how individual employees are performing under telework arrangements. 

Use performance management information in conjunction with an analysis of how effective 

employees are with communication, teamwork, and work relationship dynamics in a 

telework environment, as well as their responsiveness and availability. Use this information to 

make adjustments to your decisions about telework eligibility and telework approach. 

•	 Be prepared for difficult conversations about telework eligibility. Be prepared to explain the 

reasons for telework ineligibility decisions to the affected employees in a clear, thorough, 

and respectful manner. Include a clear explanation of the eligibility criteria and the specific 

factors that were used to make the determination. Performance management information 

will be especially important here. However, despite going through these steps, there may still 

be some employees who will formally dispute the ineligibility decision. While supervisors 

cannot control this occurrence, attention to respectful communication and focus on jobrelated factors can go a long way towards helping employees recognize that the decision was 

fair and founded on criteria that are equally applicable to all who request telework. 

69See the Telework Enhancement Act of 2010 accessed from: http://www.gpo.gov/fdsys/pkg/PLAW-111publ292/

pdf/PLAW-111publ292.pdf. Also, see U.S. Office of Personnel Management, Guide to Telework in the 

Federal Government, “Eligibility and Participation,” April 2011, pp. 14-16. This guide can be accessed from: 

http://www.telework.gov/guidance_and_legislation/telework_guide/telework_guide.pdf.
Recommendations

56 Telework: Weighing the Information, Determining an Appropriate Approach

•	 Ensure fair treatment of teleworkers and nonteleworkers. Treat teleworkers and 

nonteleworkers the same way. The Telework Enhancement Act of 2010 specifically states 

that “teleworkers and nonteleworkers are treated the same for purposes of—(A) periodic 

appraisals of job performance of employees; (B) training, rewarding, reassigning, promoting, 

reducing in grade, retaining, and removing employees; (C) work requirements; or (D) other 

acts involving managerial discretion . . . .”70 Such acts would include the distribution of 

work assignments. Good performance management practices can help supervisors exercise 

good and fair judgment in these areas and make decisions based on employee merit and not 

employee location. 

Employees

•	 Consider whether telework would be right for you. Telework-eligible employees should 

conduct a self-assessment to determine whether they want to telework.71 This should include 

determination that your home environment is suitable for telework. You should also make 

sure you can accomplish the same quantity and quality of work while teleworking as when 

working in the office. Further, make sure you can maintain appropriate communication, 

teamwork, and work relationships while teleworking and can abide by standards for 

responsiveness and availability. Telework-ineligible employees who would like to telework 

could consider talking with their supervisors about their status to determine if there is an 

opportunity for them to become eligible and the necessary criteria for achieving eligibility. 

•	 Maintain performance and fully engage in performance management with supervisors. 

Whether teleworking or not, employees should be committed to maintaining their 

performance. Work cooperatively with your supervisor regarding your performance 

management. Ensure that you understand your performance expectations and resolve any 

questions. Be prepared to participate fully in progress reviews through providing detailed 

accounts of your progress towards goal accomplishment and success in meeting timelines and 

milestones as well as any challenges. Take seriously all feedback discussions and be prepared 

to be held accountable for agreed-upon results. Further, work with your supervisor to 

identify desired means of recognition for good performance and strategies to overcome areas 

of weakness. Finally, discuss any impact that your telework—or others’ telework—is having 

on your ability to get your work done. 

•	 Maintain work unit dynamics. Teleworking employees need to maintain appropriate 

communication, teamwork, and work relationships with the office, customers, and other 

relevant parties while teleworking. Similarly, nonteleworkers should be agreeable to using 

available technology to maintain appropriate communication, teamwork, and work 

relationships with teleworkers. Employees should discuss any impact that telework is having 

on the work unit’s ability to effectively maintain these critical dynamics. 

•	 Abide by standards for responsiveness and availability. Teleworkers should work with their 

supervisor and work unit to ensure that they are responsive to and available for necessary 

contact, participating in necessary meetings, and contributing to unexpected assignments. 

This also includes being responsive to office coverage needs. Similarly, nonteleworkers should 

be agreeable to using available technology to support teleworkers’ efforts to be responsive to 

and available for such matters. 

705 U.S.C. §6503(a)(3) (internal punctuation omitted).

71For information for employees about participating in telework, see U.S. Office of Personnel Management, Guide to 

Telework in the Federal Government, April 2011, “Employees,” pp. 26-29. This guide can be accessed from: http://

www.telework.gov/guidance_and_legislation/telework_guide/telework_guide.pdf.
A Report by the U.S. Merit Systems Protection Board 57

Appendix A: 

Telework Survey

U.S. MERIT SYSTEMS PROTECTION BOARD ~ 1 ~ FEDERAL TELEWORK SURVEY

SECTION 1: YOUR JOB AND ORGANIZATION

Q1. On average, how many hours have you worked each

week during the past year? 

 40 or less

 41-45 

 46-50 

 51-55 

 56-60 

 61 or more 

Q2. On average, what proporon of your me at work do

you spend doing the following tasks? (Please ensure all 

add to 100%) 

a. Reading or reviewing documents 

(correspondence, reports, policies, or

other work products, etc. on paper or

electronically) .......................................... % 

b. Creang, wring or eding 

documents (correspondence, reports, 

policies, or other work products, etc. 

on paper or electronically) ...................... % 

c. Researching or analyzing informaon

and/or producing data summaries .......... % 

d. Having formal face to face meengs 

or discussions with colleagues, 

project team members, supervisors,

customers, or others ............................... % 

e. Informally talking or collaborang 

colleagues, project team members,

supervisors, customers, or others ........... % 

Total 100 % 

Q3. What proporon of your me do you spend on tasks 

that can only be done at your office or duty staon

(e.g., tasks that require interacon with customers or

the public in a specific locaon such as a hospital or

service center, or that require laboratories or other 

special facilies or equipment)? 

% 

Q4. What proporon of your me do you spend working on

secure or classified informaon, equipment or systems?

% 

Q5. FOR SUPERVISORS ONLY: What proporon of your me 

do you spend supervising employees or other 

supervisors (assigning tasks, giving direcon, providing 

feedback, etc.)?

% 

Not applicable, I am not a supervisor. 

Q6. My organizaon provides me with: 

Yes No

a laptop ..............................................

a cell phone .......................................

a personal data assistant ...................

other mobile device ...........................

Q7. To what extent do you agree or disagree with the 

following statements about your job and organizaon?

Strongly disagree

Disagree

Neither agree nor disagree 

Agree 

Strongly agree 

a. My job makes good use of 

my skills and abilies.................

b. The work I do is meaningful

to me .........................................

c. I have sufficient

opportunies (such as

challenging assignments or

projects) to earn a high

performance rang ...................

d. I am given a real opportunity

to improve my skills in my

organizaon ..............................

e. Overall, I have the resources 

to do my job well ......................

f. I know what I have to do to

ensure the security of 

informaon and systems I 

use for work ..............................

g. I know what I am to do to

connue working in the 

event of a local or naonal 

emergency related to

weather, security, pandemic

or other disrupon ....................

h. My work unit produces high

quality products and services ...

i. My agency is successful at

accomplishing its mission ..........

j. I would recommend my

agency as a place to work .........

Q8. Overall, I am sasfied with 

the training I receive in my

present job...............................

Q9. Overall, I am sasfied with 

my job ......................................
Appendix A: Telework Survey

58 Telework: Weighing the Information, Determining an Appropriate Approach

U.S. MERIT SYSTEMS PROTECTION BOARD ~ 2 ~ FEDERAL TELEWORK SURVEY

SECTION 2: INTERPERSONAL RELATIONSHIPS IN YOUR

Q10. To what extent do you agree or disagree with the 

following statements about interpersonal relaonships

in your organizaon?

Strongly disagree

Disagree 

Neither agree nor disagree 

Agree 

Strongly agree 

a. Regular interacons with

my colleagues are 

important to my job ..................

b. Regular interacons with

my colleagues are 

important to me

personally ..................................

c. It is easy to share 

informaon and 

coordinate work on

projects in my

organizaon...............................

d. Overall, I have posive 

relaonships with my

colleagues ..................................

e. My colleagues rounely

pitch in to help me when

needed ......................................

f. I rounely pitch in to help

my colleagues when

needed ......................................

g. I am treated with respect 

at work ......................................

h. My opinions count at

work ...........................................

i. A spirit of cooperaon 

and teamwork exists in

my work unit .............................

SECTION 3: PERFORMANCE MANAGEMENT

Q11. To what extent do you agree or disagree with the 

following statements about performance management

in your organizaon?

Strongly disagree

Disagree

Neither agree nor disagree 

Agree 

Strongly agree 

a. I know what is expected 

of me on the job ........................

b. I have individual 

performance goals that 

clearly define the results I 

am expected to achieve ............

c. My performance goals are 

clearly linked to

organizaonal or work

unit goals ...................................

d. Appropriate, objecve

measures or metrics are 

used to evaluate my

achievement of my 

performance goals ....................

e. I am held accountable for 

achieving the results 

expected of me .........................

f. Recognion and rewards 

are based on performance 

in my work unit .........................

g. I am sasfied with the 

recognion and rewards I 

receive for my work ..................

Q12. On my last performance appraisal I was rated: (Choose

the most accurate single response) 

 Outstanding 

 Exceeds fully successful

 Fully successful 

 Less than fully successful 

 Unsuccessful

 Pass (Pass/Fail Systems only) 

 Fail (Pass/Fail Systems only) 

ORGANIZATION
Appendix A: Telework Survey

A Report by the U.S. Merit Systems Protection Board 59

U.S. MERIT SYSTEMS PROTECTION BOARD ~ 3 ~ FEDERAL TELEWORK SURVEY

SECTION 4: YOUR SUPERVISOR AND MANAGER

Q13. To what extent do you agree or disagree with the 

following statements about your supervisor? 

Strongly disagree

Disagree 

Neither agree nor disagree 

Agree 

Strongly agree 

a. My supervisor supports 

collaboraon by providing 

tools and resources, such as 

group ware or knowledge 

management systems, to

facilitate informaon

exchange ...................................

b. My supervisor has a good

understanding of my job 

performance and 

accomplishments ......................

c. My supervisor likes frequent

updates about my work ............

d. My supervisor supports my

need to balance work and 

family issues ..............................

e. My supervisor gives me 

autonomy to accomplish my 

work ...........................................

f. Overall, I have a posive 

relaonship with my

supervisor ..................................

g. Overall, I am sasfied with 

my supervisor ............................

h. Overall, I am sasfied with 

my managers above my

immediate supervisor................

SECTION 5: YOUR CAREER PLANS AND EXPERIENCE

Q14. In the next two years, do you plan to: 

Remain in your current organizaon/agency

Move to another Federal organizaon/agency 

Resign from the Federal Government and seek a 

non-Federal job 

Rere from the Federal Government

Q15. How important are each of the following factors to

your decision to remain in or leave (move, resign or

rere) your current organizaon/agency? 

Very unimportant

Unimportant 

Neither important nor unimportant 

Important 

Very important 

a. Use of my skills and abilies .....

b. Opportunies for 

developmental assignments 

and training ...............................

c. Opportunity for career

advancement or promo
on......

d. My rela
onships with the 

people I work with ....................

e. My rela
onship with my

supervisor..................................

f. Overall sasfacon with my

organizaon ..............................

g. Geographic locaon and/or

community I live in ....................

h. Commung distance, me or

cost............................................

i. Ability to balance work and 

non-work ac
vi
es....................

j. Opportunity to telework ...........

k. Opportunity to work flexible 

hours .........................................

l. For only people who are 

considering rerement: The 

ability to phase in my

re
rement by working part


me or becoming a reemployed annuitant ..................
Appendix A: Telework Survey

60 Telework: Weighing the Information, Determining an Appropriate Approach

U.S. MERIT SYSTEMS PROTECTION BOARD ~ 4 ~ FEDERAL TELEWORK SURVEY

Q16. Have you been treated fairly in the past 2 years in each

area listed below:

Yes No

Not 

sure/Not

applicable

a. Career advancement .....................

b. Awards ..........................................

c. Performance appraisals.................

d. Training .........................................

e. Discipline .......................................

f. Job assignments ............................

g. Pay .................................................

h. Telework........................................

i. Flexible scheduling or hours .......... 

SECTION 6: LIFE BALANCE ISSUES

Q17. Do you have personal responsibility for the care of

minor children?

 Yes 

No → Go to Q19 

Q18. How much of the responsibility for the care of minor 

children is yours?

 25% or less

 More than 25% but less than half

Half or 50%

 More than half but less than 75%

 75% or more

Q19. Do you have responsibility for the care of elderly or

disabled adults? 

 Yes 

No → Go to Q21 

Q20. How much of the responsibility for the care of elderly 

or disabled adults is yours?

 25% or less

 More than 25% but less than half

Half or 50%

 More than half but less than 75%

 75% or more

Q21. How frequently do you:

Less than once per month 

2-3 mes per month 

Weekly 

2-3 mes per week

Daily 

2-3 mes per day 

4 or more mes per day 

a. Acvely aend to

(mentally focus 

your aenon on) 

or take acon

(e.g. use the 

phone, email,

and/or use the 

internet) on nonwork related 

issues when you 

are working..............

b. Acvely aend to

(mentally focus 

your aenon on) 

or take acon

(e.g. use the 

phone, email,

and/or use the 

internet) on work

related issues

when you are not 

working ....................

Q22. On average, how much leave (all sources, annual leave,

sick leave, etc.) do you take per month to handle

personal issues such as medical appointments, home

or car maintenance, school meengs, etc.? This does

not include hours spent away from the office as part of

your Alternave Work Schedule (AWS)?

None

 Up to 2 hours 

 3-4 hours 

 5-6 hours 

 7-8 hours 

 9-16 hours 

 More than 16 hours or over 2 days

SECTION 7: YOUR KNOWLEDGE OF TELEWORK

Q23a. Does your agency have a formal telework policy? 

 Yes 

No

 Don’t Know
Appendix A: Telework Survey

A Report by the U.S. Merit Systems Protection Board 61

U.S. MERIT SYSTEMS PROTECTION BOARD ~ 5 ~ FEDERAL TELEWORK SURVEY

Q23b. Does your agency have telework goals (either 

voluntary or mandated)? 

 Yes 

No

 Don’t Know

Q24. To what extent do you agree or disagree with the 

following statements about telework in your agency? 

Strongly disagree

Disagree 

Neither agree nor disagree 

Agree 

Strongly agree 

a. I understand my agency’s

telework policy ..........................

b. My supervisor encourages

and supports telework ..............

c. My agency’s managers and 

senior leaders encourage 

and support telework................

d. I have access to (use my own 

or my agency provides) the 

hardware, soware, internet

connecons, etc. I need for 

telework ....................................

e. Employees that telework

have similar work

assignments and work

expectaons as employees 

that do not telework .................

f. Employees have to choose 

telework or Alternave Work

Schedule (AWS), they are 

unable to have both ..................

SECTION 8: YOUR INTEREST IN AND REQUESTS FOR 

Q25. Assuming you had the equipment and resources 

necessary, how many days per pay period COULD you 

perform your current dues via telework? 

None or only on ad hoc basis 

 1-2 days per pay period

 3-4 days per pay period

 5-6 days per pay period

 7-8 days per pay period

 9-10 days per pay period

Q26. Assuming you had the equipment, resources and 

approval required, how many days per pay period do

you WANT to perform your current dues via 

telework? 

None or only on ad hoc basis 

 1-2 days per pay period

 3-4 days per pay period

 5-6 days per pay period

 7-8 days per pay period

 9-10 days per pay period

Q27. Have you made one or more requests to telework on

an ad hoc (non-roune) basis? (e.g., to complete an

assignment away from the interrupons in the office, 

or to handle non-work issues such as to meet the 

plumber, etc.) 

 Yes 

No → Go to Q29 

Q28. How many mes did you actually telework on an ad

hoc (non-roune) basis in the last year? 

Never 

 1-3 days

 4-6 days

 7-9 days

 10-12 days

 More than 12 days

Not Applicable

Q29. Have you requested approval to telework on a roune

basis – at least two days per pay period? 

 Yes 

No → Go to Q35 

Q30. How important were the following factors in your

decision to request telework on a roune basis?

Very unimportant

Unimportant 

Neither important nor unimportant 

Important 

Very important 

a. The amount of me it takes 

to commute ...............................

b. The distance (number of

miles) of my commute ..............

c. I have less interrupons at

home .........................................

d. I can be more producve at

home .........................................

e. I can beer balance career

and family obligaons...............

TELEWORK
Appendix A: Telework Survey

62 Telework: Weighing the Information, Determining an Appropriate Approach

U.S. MERIT SYSTEMS PROTECTION BOARD ~ 6 ~ FEDERAL TELEWORK SURVEY

Q31. Was your request for rou ne telework granted?

 Yes → Go to Q36 

No

 Sll in process → Go to Q36

Q32. If the request was NOT granted, what were the reasons 

your request was denied? (Mark all that apply) 

 The agency has no telework policy 

 I am not eligible (e.g., because of my occupaon; the 

type of work I do; or my status as a trainee intern, or

new employee; or because I am a supervisor) 

 Informaon security cannot be assured 

 The cost for equipment, training, etc. is too high

 It would jeopardize office coverage

 It would hinder teamwork, collaboraon, 

communicaon and/or interpersonal relaonships

among employees 

 It would hinder the employee-supervisor

relaonship and communicaon 

 There are no objecve performance measures to

track my producvity or performance 

 My supervisor would not be able to control who 

could telework

 My first-level supervisor does not support telework

 Leaders above my first-level supervisor do not 

support telework

 I was not rated fully successful or above on my last

performance appraisal 

Employees on Alternave Work Schedule (AWS) are 

not allowed to telework

Q33. Did you file a formal complaint or grievance when your

request for telework was denied? 

 Yes 

No → Go to Q36

Q34. What was the outcome of the complaint or grievance?

 I was ulmately allowed to telework

 I was not ulmately allowed to telework

 The issue is sll pending

(Go to Q36)

Q35. How important were the following factors in your

decision NOT to request approval to telework on a 

rou ne basis – at least two days per pay period? 

Very unimportant

Unimportant 

Neither important nor unimportant 

Important 

Very important 

a. I am not eligible (e.g., because of

my occupaon; the type of work

I do; or my status as a trainee,

intern or new employee; or

because I am a supervisor) ..............

b. I prefer working in the office

(e.g., it is more appropriate for 

my job; easier to keep up with

what is going on in the office; 

avoids home distracons; helps 

keep work and non-work

separate, etc.) ...................................

c. It might hinder teamwork, 

collaboraon, or communicaon

with others in the workplace ..........

d. It might negavely impact my

producvity or performance ...........

e. It might hinder interpersonal 

relaonships with others in the 

workplace .........................................

f. Informaon security cannot be

assured ..............................................

g. I might miss important training

or developmental opportunies.....

h. I do not have access to the 

necessary equipment or facilies 

for telework ......................................

i. It might irritate or frustrate my

supervisor because he or she 

does not like telework .....................

j. I do not believe my request 

would be approved..........................

k. We do not have objecve

performance measures to track 

producvity or performance ...........

l. Teleworkers in my organizaon 

do not have the same

opportunies for career

development as non-teleworkers 

do.......................................................

m. Teleworkers in my organizaon 

don’t seem to be promoted as

oen as non-teleworkers ................

n. I would have to give up my

Alternave Work Schedule

(AWS) ................................................
Appendix A: Telework Survey

A Report by the U.S. Merit Systems Protection Board 63

U.S. MERIT SYSTEMS PROTECTION BOARD ~ 7 ~ FEDERAL TELEWORK SURVEY

Q36. Including yourself, how many people are in your

immediate work unit? 

Q37. Including yourself, approximately how many people in

your work unit telework, on average, at least two days

per pay period? (Give your best esmate) 

Q38. What is your supervisory status? 

Non-supervisor

 Team leader

 Supervisor

 Manager Go to Q39 

Execuve

SECTION 9: SUPERVISORS AND MANAGERS: 

QUESTIONS ABOUT THE TELEWORK OF YOUR

EMPLOYEES

Q39. In the last 2 years, how many of your employees have

asked to telework on an ad hoc basis?

(If none, go to Q41)

Q40. How o en did you support these requests for ad hoc or

temporary telework in the last 2 years?

 0-20% of the me 

 21-40% of the me 

 41-60% of the me 

 61-80% of the me 

 More than 80% of the me 

Q41. In the last 2 years, how many of your employees have

asked to telework on a roune basis – at least two 

days per pay period? 

(If none, go to Q45)

Q42. How o en did you support these requests for roune

telework in the last 2 years?

 0-20% of the me 

 21-40% of the me 

 41-60% of the me 

 61-80% of the me 

 More than 80% of the me 

Go to Q50

Q44. How important were the following factors in your

decision to support or deny employees’ requests to

telecommute on a roune basis?

Very unimportant

Unimportant 

Neither important nor unimportant 

Important 

Very important 

a. The agency policy regarding 

telework.........................................

b. The degree to which agency

managers and leaders support 

telework.........................................

c. The degree to which I have

experience as a teleworker

myself .............................................

d. The degree to which I have

experience managing

teleworkers ....................................

e. The availability of objecve

measures to hold the employee

accountable for their 

producvity and performance ......

f. The employee’s occupaon, or

status as an intern, trainee or

new employee ...............................

g. The need to ensure office

coverage and/or have adequate

staff available for high priority, 

quick turn-around projects ...........

h. The need to support and 

facilitate interpersonal 

relaonships and collaboraon

among employees .........................

i. The need to be an aracve

employer that can recruit and 

retain high quality employees .......

j. My percepon of the 

employee’s reliability, discipline

and self-movaon .......................

k. The employee’s recent

performance appraisal rang........

l. Issues regarding actual or

perceived fairness or

discriminaon among 

employees .....................................

m. The possibility that the 

employee will file a grievance or

EEO complaint if I deny the 

request...........................................

n. The need to retain an individual

high-performing employee ...........

o. The ability to control who does

it .....................................................

p. My interest in supporng my

employees’ ability to balance 

work and family.............................
Appendix A: Telework Survey

64 Telework: Weighing the Information, Determining an Appropriate Approach

U.S. MERIT SYSTEMS PROTECTION BOARD ~ 8 ~ FEDERAL TELEWORK SURVEY

Q45. How many employees work for you? (If you are second 

level supervisor or manager, include all who work

below you)

Q46. How many of your employees, on average, telework

under each of the following schedules?

a. 4-5 days per week ................................... 

b. 2-3 days per week ................................... 

c. One day per week ................................... 

d. Once every pay period or every two 

weeks ...................................................... 

e. Once per month ...................................... 

f. Less than once per month or on an ad

hoc basis ..................................................

g. Never .......................................................

Q47. How many of your employees that telework have a 

formal telework agreement?

Q48. How much experience do you have supervising 

teleworkers?

None → Go to Q50

 Less than one year

 1-2 years 

 3-4 years 

 5 or more years 

Q49. Supervising teleworkers is: 

 More challenging than supervising on-site 

employees 

 About the same as supervising on-site employees 

Easier than supervising on-site employees 

SECTION 10: EXPERIENCE WITH AND IMPACT OF

TELEWORK

Q50. Which opon most closely reflects how frequently you 

telework from your home or from a telework center? 

 4-5 days per week

 2-3 days per week

 1 day per week

 On an ad hoc basis 

Never → Go to Q56

Q51. How long have you been working under this telework

arrangement?

 Less than 1 year

 1-2 years 

 3-4 years 

 5-6 years 

 7-10 years 

 More than 10 years 

Q52. Do you have a wrien telework agreement?

 Yes 

No

Q53. Are you willing to adjust your telework schedule to

work at the office if necessary (e.g., to ensure office

coverage or work on a crical assignment)?

 Yes 

No

Q54. Are you willing to adjust your telework schedule in

order to parcipate in training, work on a high visibility

project, or be promoted to a higher level posion?

 Yes 

No
Appendix A: Telework Survey

A Report by the U.S. Merit Systems Protection Board 65

U.S. MERIT SYSTEMS PROTECTION BOARD ~ 9 ~ FEDERAL TELEWORK SURVEY

Q55. How has your experience as a teleworker in your

organizaon impacted: 

Very negave impact

Negave impact

Neither posive nor negave impact

Posive impact

Very posive impact

a. The difficulty and complexity

of your work ..............................

b. Your personal producvity or

performance ..............................

c. Your ability to balance work

and non-work life ......................

d. Your amount of stress

related to work ma	ers ............

e. Your amount of stress

related to non-work ma	ers.....

f. Your opportunity for 

developmental assignments 

or training ..................................

g. Your opportunity for career

advancement or promoon ......

h. Your relaonships with your

colleagues ..................................

i. Your relaonship with your

supervisor..................................

j. Your desire to stay in your

organizaon...............................

k. Your sasfacon with your

job and organizaon..................

l. Your need to have people

cover for you .............................

Q56. How has the teleworking of others in your organizaon 

impacted: 

Don’t know, Not applicable

Very negave impact

Negave impact 

Neither posive nor negave impact

Posive impact

Very posive impact

a. The difficulty and 

complexity of your

work .................................

b. Your personal

producvity or

performance ....................

c. Your ability to balance 

work and non-work life ....

d. Your amount of stress

related to work maers...

e. Your amount of stress

related to non-work

maers.............................

f. Your opportunity for 

developmental 

assignments or training ....

g. Your opportunity for 

career advancement or

promoon ........................

h. Your relaonships with

your colleagues ................

i. Your relaonship with

your supervisor ................

j. Your desire to stay in

your organizaon .............

k. Your sasfacon with

your job and 

organizaon .....................

l. Requests or

expectaons for you to

cover people who 

telework ...........................
Appendix A: Telework Survey

66 Telework: Weighing the Information, Determining an Appropriate Approach

U.S. MERIT SYSTEMS PROTECTION BOARD ~ 10 ~ FEDERAL TELEWORK SURVEY

Q57. Overall, how has teleworking impacted your

organizaon’s:

Don’t know

Very negave impact

Negave impact 

Neither posive nor negave impact

Posive impact

Very posive impact

a. Producvity and 

performance .....................

b. Ability to ensure

effecve 

communicaon.................

c. Ability to support 

effecve teamwork ..........

d. Ability to support 

effecve work

relaonships.....................

e. Ability to recruit high

quality employees ............

f. Ability to retain high

performing employees .....

SECTION 11: DEMOGRAPHICS

Q60. How long have you worked for the Federal 

Government? 

 Less than 1 year

 1-3 years 

 4-5 years 

 6-10 years 

 11-15 years 

 16-20 years 

 21-25 years 

 More than 25 years 

Q61. How long have you worked for your agency? 

 Less than 1 year

 1-3 years 

 4-5 years 

 6-10 years 

 11-15 years 

 16-20 years 

 21-25 years 

 More than 25 years 

Q62. When will you become eligible for rerement from the 

Federal Government? 

 I am already eligible

 Less than a year

 1-3 years 

 4-5 years 

 6-10 years 

 11-15 years 

 16-20 years 

 21-25 years 

 More than 25 years 

 I don’t plan to work for the Government long

enough to rere → Go to Q64

Q63. When do you plan to rere from the Federal 

Government? (If you are not sure, give your best

esmate at this me) 

Early, if early rerement is offered

 As soon as I am eligible

 1-2 years aer I’m eligible

 3-5 years aer I’m eligible

 6-8 years aer I’m eligible

 More than 8 years aer I’m eligible

Q64. What is your agency? 

 Bureau of Reclamaon (BOR) 

 Census Bureau

 Centers for Disease Control and Prevenon (CDC) 

 Defense Informaon Systems Agency (DISA)

Employment Standards Administraon (ESA) 

 Federal Highway Administraon (FHWA)

 Food and Drug Administraon (FDA) 

Naonal Instute of Standards and Technology

(NIST)

Naonal Oceanic and Atmospheric Administraon 

(NOAA)

 Office of Thri Supervision (OTS) 

 Patent and Trademark Office (PTO) 

 Pension Benefit Guaranty Corporaon (PBGC)

 U.S. Geological Survey (USGS)
Appendix A: Telework Survey

A Report by the U.S. Merit Systems Protection Board 67

U.S. MERIT SYSTEMS PROTECTION BOARD ~ 11 ~ FEDERAL TELEWORK SURVEY

Q65. What is your occupa­on?

 Social Science, Psychology, and Welfare (100 series) 

Human Resources Management (200 series) 

 General Administrave, Clerical, and Office Services

(300 series) 

Natural Resources Mgmt and Biological Sciences

(400 series) 

 Accounng and Budget (500 series) 

 Medical, Hospital, Dental, and Public Health (600

series) 

Engineering and Architecture (800 series) 

 Legal and Kindred (900 series) 

 Business and Industry (1100 series) 

 Copyright, Patent, and Trademark (1200 series) 

 Physical Sciences (1300 series) 

 Mathemacs and Stascs (1500 series) 

 Informaon Technology (2200 series) 

 Other 

Q66. What is your annual salary, including locality pay?

 Less than $30,000

 $30,001 through $50,000 

 $50,001 through $70,000 

 $70,001 through $90,000 

 $90,001 through $110,000

 $110,001 through $130,000 

 $130,001 through $150,000

 $150,001 through $170,000

 $170,001 or more

Q67. What is your highest level of educa	on completed?

 Less than a high school diploma 

High school, equivalent diploma or GED 

 Some college but no degree

 Associate’s degree 

 Bachelor’s degree

 Graduate credits but no graduate degree 

 Master’s degree

 Professional degree (e.g., DDS, ED, JD, MD) 

 Doctoral degree (e.g., PhD, EdD)

Q68. On average, how much 	me does it take you to get to

your normal duty sta	on (one-way) on the days that

you commute to work? 

 Less than 15 minutes

 16-30 minutes

 31-45 minutes

 46-60 minutes

 61-75 minutes

 76-90 minutes

 91-105 minutes

 106-120 minutes

 More than 120 minutes 

Q69. On average, how many miles do you travel to your

normal duty sta	on (one-way) on the days you 

commute to work? 

 0-5 miles 

 6-10 miles 

 11-15 miles 

 16-20 miles 

 21-30 miles 

 31-40 miles 

 41-60 miles 

 More than 60 miles 

Q70. What is your gender?

 Male

 Female

Q71. What is your age?

 25 or under 

 26-29 

 30-35 

 36-39 

 40-49 

 50-59 

 60-69 

 70 or older 

Q72. Are you Hispanic or La	no?

 Yes 

No

Q73. Please select the racial category or categories with

which you most closely iden	fy. (Mark all that apply) 

 American Indian or Alaska Nave 

 Asian 

 Black or African America 

Nave Hawaiian or other Pacific Islander 

White 

Q74a. Based on your personal experience, can you describe

briefly a situa	on in which telework was effec	ve?

This could involve you as the teleworker, or working 

with others who are teleworkers.

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 
Appendix A: Telework Survey

68 Telework: Weighing the Information, Determining an Appropriate Approach

U.S. MERIT SYSTEMS PROTECTION BOARD ~ 12 ~ FEDERAL TELEWORK SURVEY

Q74b. Based on your personal experience, can you describe

briefly a situaon in which telework was NOT 

effecve? This could involve you as the teleworker, 

or working with others who are teleworkers.

____________________________________________ 

____________________________________________ 

____________________________________________ 

____________________________________________ 

____________________________________________ 

____________________________________________ 

____________________________________________ 

____________________________________________ 

Q75a. Describe briefly the biggest barrier to more effecve 

telework in your organizaon.

____________________________________________ 

____________________________________________ 

____________________________________________ 

____________________________________________ 

____________________________________________ 

____________________________________________ 

____________________________________________ 

____________________________________________ 

Q75b. What are other barriers to effecve telework in your

organizaon?

____________________________________________ 

____________________________________________ 

____________________________________________ 

____________________________________________ 

____________________________________________ 

____________________________________________ 

____________________________________________ 

____________________________________________ 

Q76a. Describe briefly the best way to improve the 

effecveness of telework in your organizaon.

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 

Q76b. What are other ways to improve the effecveness of

telework in your organizaon?

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 

_____________________________________________ 
A Report by the U.S. Merit Systems Protection Board 69

Appendix B:

MSPB Employee Engagement Scale

MSPB Engagement Scale Questions

1. I am given a real opportunity to improve my skills in my organization.

2. My agency is successful at accomplishing its mission.

3. I would recommend my agency as a place to work.

4. I am treated with respect at work.

5. My opinions count at work.

6. I know what is expected of me on the job.

7. My job makes good use of my skills and abilities.

8. I have the resources to do my job well. 

9. The work I do is meaningful to me.

10. A spirit of cooperation and teamwork exists in my work unit.

11. My work unit produces high quality products and services.

12. Recognition and rewards are based on performance in my work unit.

13. I have sufficient opportunities (such as challenging assignments or projects) 

to earn a high performance rating.

14. I am satisfied with the recognition and rewards I receive for my work.

15. Overall, I am satisfied with my supervisor.

16. Overall, I am satisfied with managers above my immediate supervisor.

Engagement Scale Scoring

The Engagement Scale we used in this report contains the same 16 questions used in previous 

MSPB reports. Each of the 16 questions contained a five-level response scale: Strongly Disagree 

(1 point), Disagree (2 points), Neither Agree nor Disagree (3 points), Agree (4 points) and 

Strongly Agree (5 points). This means that the minimum engagement score is 16 and the 

maximum engagement score is 80. Respondents who scored as if they agreed with each of the 

16 engagement items were classified as “engaged” (i.e., 4 points x 16 questions = 64). Therefore, 

scores of engaged respondents ranged from 64 to 80. Respondents who scored between 

pure neutrality (i.e., 3 points x 16 questions = 48) and our engaged cutoff were classified as 

“somewhat engaged.” Therefore, scores of somewhat engaged respondents ranged from 48 to 63. 

Respondents who scored less than neutrality for each question were classified as “not engaged.” 

Therefore, scores of not engaged respondents ranged from 16 to 47.72

72U.S. Merit Systems Protection Board, The Power of Federal Employee Engagement, September 2008, pp. 10-11.

A Report by the U.S. Merit Systems Protection Board 71

Appendix C:

Additional Information

on Study Methodology

We were initially interested in understanding the differences in how telework operates 

in organizations that have a relatively high degree of telework participation versus 

those that have a relatively low degree of telework participation, but that had similar 

missions and/or occupational makeups. Our selection of agencies was designed to support this 

comparative analysis. 

We selected agencies with relatively high and low telework usage from the 2007 Office of 

Personnel Management Telework Data Call Report. We selected “high” telework agencies with 

a range of missions based on the percentage of employees who routinely teleworked at least 1 

day per week. We reviewed the distribution of occupational groups in the high telework agencies 

and selected a “low” telework agency from the OPM Data Call that matched the high telework 

agency in terms of general mission and occupational distribution. We also tried to roughly equate 

the overall number of employees in the high and low telework groups. The agencies we surveyed 

are listed below.

High Telework Agencies

National Institute of Standards and Technology (NIST, Department of Commerce)

Patent and Trademark Office (PTO, Department of Commerce)

Defense Information Systems Agency (DISA, Department of Defense)

Food and Drug Administration (FDA, Department of Health and Human Services)

U.S. Geological Survey (USGS, Department of the Interior)

Pension Benefit Guarantee Corporation (PBGC)

Office of Thrift Supervision (OTS, Department of the Treasury)

Low Telework Agencies

National Oceanic and Atmospheric Administration (NOAA, Department of Commerce)

Census Bureau (Department of Commerce)

Federal Highway Administration (FHwA, Department of Transportation)

Centers for Disease Control (CDC, Department of Health and Human Services)

Bureau of Reclamation (BOR, Department of the Interior)

Employment Standards Administration (ESA, Department of Labor)
72 Telework: Weighing the Information, Determining an Appropriate Approach

Appendix C: Additional Information on Study Methodology

We surveyed only professional and administrative occupations that were appropriate for telework 

based on the type and method of the work involved. We did not include employees in the 

following occupations in our sample: 

Occupational Series Occupational Title

700 Veterinary medical science group 

1000 Information and arts group

1400 Library and archives group

1600 Equipment, facilities, and services group

1700 Education group

1800 Investigation group

1900 Quality assurance, inspection, and grading group

2000 Supply group

2100 Transportation group

To simplify the sampling plan, and provide an opportunity to identify and explore relationships 

between the general role of the employee and telework, we defined sampling strata by grouping the occupations as mission, nonmission or support, or supervisory (including managers and 

executives). We defined the population for the sample as all employees with appropriate occupations in each agency. The sampling frame consisted of all those in the appropriate occupations 

for which the agency was able to supply an email address. This strategy is consistent with the 

relationship between telework and technology and our decision to only administer the survey 

electronically. The percentage of the population of employees for which agencies provided email 

addresses ranged from 93 percent to 99 percent across the sampling strata. The sampling frame 

is very similar to the population, so the criterion of available email addresses most likely did not 

bias the sample. A stratified random sample was drawn from those with email addresses, with 

oversampling of selected strata to ensure we received enough surveys in each occupational group 

to analyze. 

Once the survey was administered and data collected we weighted the 9,773 surveys we accepted 

for analysis purposes. Surveys were assigned to a stratum based on whether or not the occupation 

(as defined by the Central Personnel Data File (CPDF) which is maintained by the Office 

of Personnel Management) was defined as mission or non-mission, self-reported agency, and 

self-reported supervisory status. Surveys were weighted by stratum, with weights calculated to 

represent the CPDF population (i.e., the actual number of employees) in each stratum. The 

weighted data allow us to generalize our results to the population in the agencies we surveyed, 

and to select segments of the population (e.g., a specific agency or occupation) for purposes of 

analysis. 

Our selection of agencies was designed to support comparative analysis between agencies with 

high telework usage versus agencies with similar missions and occupational make-up but with low 

telework usage. However, we found that the amount of routine telework reported in the 2007 

OPM Telework Data Call Report that we used to select our agencies differed considerably from 

the actual amount of routine telework reported by our survey participants. Empirical analysis of 
A Report by the U.S. Merit Systems Protection Board 73

Appendix C: Additional Information on Study Methodology

survey responses indicated that the proportion of routine teleworkers changed, mostly increasing, 

in many agencies from that reported in the older OPM data that we used for sampling purposes. 

Given these changes, we determined it would be more accurate to define high/low telework 

agencies based on the empirical survey data (i.e., to designate high/low telework using the 

proportion of routine telework as the criterion). Use of this criteria resulted in the USGS being 

designated as a low telework agency, and the CDC and the Federal Highway Administration 

being designated as high telework agencies. 

Although we looked at a number of agency variables to see if there were differences between 

high/low telework agencies, our data did not indicate any general agency differences except for 

leadership support of telework. Specifically, a higher proportion of employees in high telework 

agencies reported that their supervisors and leaders supported telework than did employees in 

low telework agencies. Leader support is a reasonable and expected driver of telework differences 

between agencies. Factors other than cross-agency levels of telework needed to be examined to 

better understand how telework was operating in agencies. 

A Report by the U.S. Merit Systems Protection Board 75

Appendix D:

Importance of Factors 

in Employees’ Decisions 

to Request Approval to 

Telework on a Routine Basis

Employees who requested approval to telework on a routine basis—at least 2 days per pay period—indicated 

the importance of several factors in their decision to request approval.

Factors Important

Neither Important 

nor Unimportant Unimportant

I can be more productive at home. 86% 11% 4%

The amount of time it takes to commute. 85% 8% 7%

I have less interruptions at home. 83% 12% 4%

The distance (number of miles) 

of my commute. 79% 12% 9%

I can better balance career and 

family obligations. 72% 19% 8%

*Totals may not equal 100 percent due to rounding.

A Report by the U.S. Merit Systems Protection Board 77

Appendix E:

Importance of Factors in 

Supervisors’ Decisions to Support 

or Deny Employees’ Requests 

to Telecommute on a Routine Basis

Supervisors who had employees who requested to telework on a routine basis rated the importance of several 

factors in their decision to support or deny employees’ requests to telecommute on a routine basis.

Factors Important

Neither 

Important/ 

Unimportant Unimportant

The agency policy regarding telework 85% 10% 5%

My perceptions of the employee’s reliability, discipline 

and self-motivation

85% 11% 4%

My interest in supporting my employees’ ability 

to balance work and family

83% 13% 4%

The availability of objective measures to hold 

the employee accountable for their productivity 

and performance

75% 17% 9%

The need to ensure office coverage and/or have 

adequate staff available for high priority, 

quick turn-around projects

73% 16% 11%

The degree to which agency managers and leaders 

support telework

72% 18% 10%

The employee’s occupation, or status as an intern, 

trainee or new employee

72% 19% 10%

The employee’s recent performance appraisal rating 72% 21% 8%

The need to retain an individual high-performing 

employee

62% 25% 13%

The degree to which I have experience managing 

teleworkers

59% 27% 15%

The need to support and facilitate interpersonal 

relationships and collaboration among employees

59% 29% 12%

The need to be an attractive employer that can recruit 

and retain high quality employees

59% 27% 14%

Issues regarding actual or perceived fairness or 

discrimination among employees

52% 33% 15%

The degree to which I have experience as a 

teleworker myself

49% 28% 23%

The ability to control who does it 32% 40% 28%

The possibility that the employee will file a grievance 

or EEO complaint if I deny the request

15% 40% 46%

*Totals may not equal 100 percent due to rounding.

A Report by the U.S. Merit Systems Protection Board 79

Appendix F:

Importance of Factors 

in Employees’ Decisions 

To Not Request Approval 

to Telework on a Routine Basis

Employees who did not request approval to telework on a routine basis—at least 2 days per pay period—

indicated the importance of several factors in their decision to not request approval.

Factors Important

Neither 

Important nor 

Unimportant Unimportant

I prefer working in the office (e.g., it is more appropriate 

for my job; easier to keep up with what is going on in the 

office; avoids home distractions; helps keep work and 

non-work separate, etc.).

48% 26% 26%

It might hinder teamwork, collaboration, or 

communication with others in the workplace. 41% 33% 26%

I do not believe my request would be approved. 33% 34% 33%

It might hinder interpersonal relationships with others 

in the workplace. 31% 38% 32%

I am not eligible (e.g., because of my occupation; 

the type of work I do; or my status as a trainee, intern 

or new employee; or because I am a supervisor).

29% 36% 35%

I do not have access to the necessary equipment 

or facilities for telework. 29% 31% 40%

It might negatively impact my productivity or performance. 28% 36% 36%

It might irritate or frustrate my supervisor because he 

or she does not like telework. 22% 40% 38%

Information security cannot be assured. 19% 36% 46%

I might miss important training or developmental 

opportunities. 18% 37% 45%

We do not have objective performance measures 

to track productivity or performance. 16% 46% 39%

I would have to give up my alternative Work Schedule 

(AWS). 10% 49% 41%

Teleworkers in my organization do not have the 

same opportunities for career development as 

nonteleworkers do.

7% 51% 42%

Teleworkers in my organization don’t seem to be 

promoted as often as nonteleworkers. 7% 53% 40%

*Totals may not equal 100 percent due to rounding.
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TELEWORK:

Weighing the Information,

Determining an Appropriate Approach