Telework Insights: 

A Current Look At Telework In The Federal Government And 

Promising Practices To Support A 21st Century Workforce

issue

The desire to telework 

among Federal 

employees and 

management support 

for telework appears 

to be at odds with 

each other—creating 

a missed opportunity 

for agencies and 

employees to maximize 

performance and 

engagement. There is 

a significant amount of 

research that highlights 

the benefits of telework 

to organizations, 

management, and 

employees.

insights

According to the 2018 Federal 

Work-Life Survey Report (FWLS), 

employees reported the use of 

telework improved performance 

(72%), increased the desire to stay 

at current agency (76%), improved 

morale (83%), and other outcomes 

that benefit both employees 

and management. Additional 

research indicates telework, as a 

work-life intervention, improves 

engagement by supporting 

employees’ ability to manage 

their professional and personal 

responsibilities (OPM, 2016 ), and 

in turn, high engagement improves 

organizational performance.

implications

Telework, as a strategic business 

practice, is an effective tool to 

support management goals and 

overall organizational effectiveness. 

The Federal Government must 

continue to maximize flexible work 

arrangements to attract and retain 

top talent especially considering... 

1) the anticipated increase of Federal

Employees with family and dependent

care responsibilities (from 36% to

64%),

2) the current record low

unemployment rates, and

3) more than half of Federal

employees express the desire for

more telework opportunities (58%).

About this Paper

This paper serves as a current review of telework in the Federal Government, presenting current issues, insights, and 

implications for practice. This review is the U.S. Office of Personnel Management’s (OPM) continued commitment 

to support agencies to Actively Manage the Workforce and Improve Performance Management and Engagement, as 

prescribed by the current President’s Management Agenda. The information presented is a review of research conducted 

by OPM and is intended to build evidence to improve program effectiveness. The featured OPM research sources used in 

this review include: 

• Federal Work-Life Survey Report (2018) – OPM’s first comprehensive and systematic evaluation of work-life

programs and employee needs.

• Status of Telework in the Federal Government Report to Congress (2010 – 2018) – OPM’s required annual report

to Congress addressing the telework programs of each Executive agency.

• Federal Employee Viewpoint Survey (FEVS) Report (2010 – 2017) – OPM’s annual survey that serves as a tool for

employees to share their perceptions in their work experiences, their agency, and leadership.

In addition to OPM’s research, this review includes insights from studies in the public and private sector, highlighting 

telework as a resource for organizational leaders and employees to optimize their flexibility, while supporting overall 

organizational effectiveness.
Telework Insights 2

Background

In 2010, the Federal Government began a major change 

initiative after the President signed the Telework 

Enhancement Act (the Act). The Act supported the 

Government's ability to achieve greater flexibility in 

managing its workforce. A key provision of the Act 

requires each Executive agency to establish a policy 

under which eligible employees are authorized to 

telework. The Act encourages agencies to implement 

telework to the maximum extent possible, as a workplace 

flexibility that helps maintain continuity of operations 

and reduces management costs while also improving 

Federal employees’ ability to manage their work and life 

commitments. 

What is Telework in the Federal Government?

Telework is a flexible workforce strategy leveraged to 

increase organizational agility and develop flexible teams 

that can be readily aligned to current and emerging 

business needs (Posthuma et al., 2013). OPM defines 

telework for the Federal Government as a strategic 

business practice that allows an employee to perform 

work during any part of regular, paid hours, at an approved 

alternative worksite on a routine or situational basis (e.g., 

home, telework center). 

Issue

According to the FEVS (2010 – 2017), in 2010 when the 

Telework Enhancement Act became law, approximately 

19% of Federal employees reported they teleworked 

(10% Routine and 9% Situational). By 2014, participation 

significantly increased to 29% (18% Routine and 11% 

Situational). Since then, participation has increased 

and appears to have plateaued--telework participation 

increased only one percent between 2016 and 2017 (35% 

to 36%). Nonetheless, while telework participation has 

increased over time, eligibility rates have remained stable 

(see Figure 1). 

There are two categories of telework: 

Routine telework occurs as part of a previously approved, 

ongoing, and regular schedule

Situational telework is approved on a case-by-case basis, 

where the hours worked were not part of a previously 

approved telework schedule.

Figure 1

Telework Participation and Eligibility Since the Telework Enhancement Act

Telework Type 2010 2011 2012 2013 2014 2015 2016 2017

Eligible* 32% 47% 47% 45% 44% 44% 42% 43%

Routine** 10% 10% 15% 16% 18% 20% 23% 24%

Situational** 12% 9% 10% 10% 11% 11% 12% 12%

Source: 

*OPM Telework Report to Congress, 2011, 2012, and 2018

**FEVS, 2010 – 2017
Telework Insights 3

To understand the gap between telework eligibility and 

use, OPM asked all Federal employees about the perceived 

support they receive to telework and value of telework. 

Shown in Figure 2, 43% of Federal employees said their 

immediate supervisor supports the use of telework and 

fewer perceived support from their senior leadership 

(38%). More than half of employees with a supervisory or 

management status (53%) agreed that telework supports 

their employee’s ability to perform their work, with nearly 

one-third (31%) indicating no opinion, and 15% disagreeing 

(FWLS, 2018). 

The desire to telework among Federal employees and 

management support for telework appears to be at 

odds with each other—creating a missed opportunity 

for agencies and employees to maximize performance 

and engagement. Attitudes and personal interests of 

management are critical components in the successful 

achievement of organizational change (Detert & Pollock, 

2008; Moss Kanter, Stein, & Jick, 1992). 

In addition to asking Federal employees about perceived 

support and value for telework, the survey asked 

employees why they did not telework. Employees 

indicated that they had a job that requires them to be 

physically at work (47%), did not receive approval even 

though they are eligible to telework (12%), or have a 

technical issue or data security concerns that prevents 

them from teleworking (9%) (FWLS, 2018). 

Management attitudes toward telework can be 

as important as technology and formal policies in 

determining the conditions in which telework may truly be 

implemented as a practice (Breaugh & Frye, 2008; Julien, 

Someville, & Culp, 2011; McNamara, Pitt-Catsouphes, 

Brown, & Matz-Costa, 2012). Likewise, organizational 

management support is critical to ensure sufficient 

resources are made available for effective implementation 

of telework programs.

On average, employees who telework do so 

approximately two (2) days per two-week pay 

period (FWLS, 2018). 

Figure 2

Telework Support: Employee and Supervisor Perspectives
Telework Insights 4

Insights

According to a 2018 Society for Human Resource 

Management (SHRM) benefits survey, 70% of companies 

offer their employees telecommuting opportunities, a 

threefold increase from 1996. In addition, 2012 data from 

Gallup (2012) showed that 39% of employees across the 

private and public sector in America teleworked in some 

capacity, meaning they spent at least some of their time 

working in a location different from their coworkers. In 

2016, that number grew four percentage points to 43%. 

With current record low unemployment rates, the Federal 

Government must continue to maximize flexible work 

arrangements to attract and retain top talent if it is to 

compete with other sectors.

Telework Benefits and 

Other Outcomes

There is a significant amount 

of research that highlights 

the benefits of telework. 

According to OPM’s research, 

Federal employees said their 

use of telework improved 

their performance (72%), 

increased desire to stay 

at current agency (76%), 

improved morale (83%), 

and other outcomes that 

benefit both employees and 

management (FWLS, 2018). 

Additional research shows 

telework, as a work-life 

intervention, assists leaders 

with driving engagement by 

supporting employees’ ability 

to manage their professional 

and personal responsibilities 

(OPM, 2015).

Implications for 

practice

Telework, as a strategic 

business practice, is an 

effective tool to support 

management goals and 

overall organizational 

effectiveness. Below are 

some ways telework can 

play a critical role to recruit 

and retain talent, support performance, and maintain an 

organization’s continuity of operations. 

Supporting Recruitment and Retention

In terms of attracting and retaining top talent in the 

Federal Government, a 2017 Gallup study reported 37% 

say the ability to work where they want at least part of the 

time is “very important” when considering to take a new 

job. Federal Work-Life Survey results revealed Millennials, 

employees born between 1980 and 1995, indicated the 

ability to telework was an important factor when making 

a decision to take a new job (51% for Millennials and 43% 

for all other cohorts). Likewise, Millennials that telework 

indicated a greater intention to remain in their current 

job compared to all other generational cohorts (82% for 

Millennials and 74% for all other cohorts). Understanding 

the needs of Millennials have become increasingly 

important as the number of Federal Employees eligible 

to retire increases, 

eventually leaving 

Millennials (with 

varying levels of 

institutional knowledge 

and training) as the 

largest percentage 

of the workforce 

(Kornanik & Shindell, 

2014). 

Reducing Absenteeism

Telework can help employees deal with many issues, 

including family and dependent care issues, and 

minimize the amount of time employees take leave (thus 

maximizing mission accomplishment). OPM estimates 

Federal employees miss about 3 days of work every three 

months because of last-minute family and dependent care 

problems. By 2022, the number of Federal employees 

with a responsibility to care for a family member or 

dependent is expected to increase from 36% to 64%. More 

specifically, those with adult dependent care (e.g., elders, 

adult dependents) responsibilities are expected to double 

to 31%, while the number of employees with child care 

responsibilities is expected to remain virtually the same. 

This anticipated rise in the number employees with adult 

dependent care responsibilities will increase the need 

for agencies to provide greater workplace flexibilities 

and other associated family and dependent care support 

services.

Compared to all other 

generations, Millennials 

were more likely to rate 

telework as an important 

factor when considering 

a new job (FWLS, 2018). 
Telework Insights 5

Telework can be used in conjunction with leave or other 

workplace flexibilities. Using a more comprehensive 

approach to telework can provide employees with valuable 

additional time by reducing commuting time or by allowing 

employees to temporarily care for a family member who 

resides in a different geographic location. An increased 

use in telework can help avoid absenteeism and support 

employee performance.

Continuity of Operations

The Telework Enhancement Act also requires Federal 

agencies to incorporate telework into their continuity 

of operations (COOP) planning. Incorporating telework 

into continuity plans means that these plans identify 

ways for an organization’s staff to perform the duties and 

responsibilities necessary to continue the organization’s 

essential functions during any type of threat or emergency 

from a telework location. 

Federal agencies have adopted telework as a critical 

component of their agency COOP. Use of telework in 

this capacity enables Federal organizations to continue 

functioning through hazardous weather, pandemic, 

physical attacks, or any other event that would result 

in the closure of Government buildings. According to 

one estimate, the Federal Government would gain $60 

million in additional productivity per day if it were able 

to maintain 100 percent of agency operations during an 

unscheduled leave/ unscheduled telework day (Mobile 

Work Exchange, Mobility Progress Report: Are Federal 

Agencies Passing the Test 2014).

There is a direct relationship between an agency’s 

COOP plan and telework. Both programs share a basic 

objective: to perform and maintain agency functions from 

an alternative location. According to the 2017 annual 

telework report to Congress, many agencies reported 

emphasizing telework in COOP plans or guidance and 

conducting regular telework drills. Additional strategies 

included encouraging or requiring those employees under 

a telework agreement to telework during Government 

closures related to weather emergencies and disruptions 

caused by special events. 

Moving Forward

OPM’s 2016 Status of Telework in the Federal Government 

report reinforced concerns about job suitability and its 

impact on eligibility. While participation in telework 

continues to increase steadily, eligibility rates have 

remained stable. OPM encourages Federal agencies to 

take steps, where appropriate, to revisit assumptions that 

informed earlier eligibility determinations to consider 

whether eligibility could be expanded. It is recommended 

that agencies evaluate telework eligibility and telework 

agreements on an annual basis.

It is also important to note that there are still challenges 

with management attitudes to overcome in order for the 

Federal Government to maximize mission accomplishment. 

Many case studies from the private sector show that line 

managers are likely to be reluctant about telework when 

organizations do not provide sufficient IT infrastructures, 

when managers do not possess the right skills to 

use IT, and when managers are not given adequate 

communication and performance management training to 

manage virtual teams (Peters, Bleijenberg, & Oldenkamp, 

2009). Agency leaders, telework program managers and 

other HR professionals at every level of the organization 

should work together to understand and develop best 

practices to support the needs of their organization and 

employees. 

OPM will continue to develop and provide guidance on 

how to best implement telework as a strategic business 

practice and understand the beneficial outcomes, as well 

as share best practices. To learn more about telework 

in the Federal Government and discover useful tools for 

program management, please visit www.telework.gov. 

OPM estimates Federal employees 

miss about 3 days of work every three 

months because of last-minute family and 

dependent care problems.
Telework Insights 6

Data for Figure 2

Employee Perspectives Agree Neutral Disagree

My immediate supervisor 

actively supports 

telework

43% 36% 21%

My senior leadership 

actively supports 

telework

38% 38% 23%

Supervisor Perspectives Agree Neutral Disagree

Telework supports my 

employees’ ability to 

perform work

53% 31% 15%

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