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National Guard Bureau

Guidance for Administrative Furlough

Updated 12 April 2013
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Overview

The enclosed guidance, prepared by the National Guard Bureau, Technician Personnel

Management Division (NGB-J1-TN), provides Human Resources Officers (HRO) information 

specific to administrative furloughs. By definition, an administrative furlough is a planned event 

which is designed to absorb reductions necessitated by downsizing, reduced funding, lack of 

work, or other budgetary situations other than a lapse in appropriations.

This guidance includes general discussion of legal issues, including collective bargaining 

obligations. Analysis of statutes, regulations, collective bargaining agreements, and decisions of 

courts and the Federal Labor Relations Authority may be required to properly address specific 

questions. This guidance is not regulatory in nature, nor is it a “collective bargaining agreement 

negotiated at the national level.” Users should be informed that the language of the guidance is 

general, not definitive, or ultimate, and that on specific questions it is not a substitute for 

consulting primary legal sources. 

TOPIC...............................................................................................................................PAGE

SUMMARY OF CHANGES..............................................................................3

A. General Information..............................................................................................................5

B. Covered Technicians.............................................................................................................6

C. Designation of Furlough Days ..............................................................................................7

D. Working During Furlough ....................................................................................................8

E. Pay and Compensation ..........................................................................................................9

F. Leave and Other Time Off.................................................................................................. 12

G. Holidays..............................................................................................................................13

H. Benefits ...............................................................................................................................14

I. Thrift Savings Plan ...............................................................................................................16

J. Unemployment Compensation.............................................................................................17

K. Benefits under the Federal Employees’ Compensation Act (FECA) .................................20

L. Service Credit for Various Purpose.....................................................................................21

M. Technicians on Military Duty.............................................................................................22

N. Miscellaneous......................................................................................................................23

O. Furlough Procedures – 22 workdays or Less......................................................................24

P. Furlough Procedures – More than 22 workdays (Extended Furlough) ...............................27

Q. Labor Management Relations Implications........................................................................30

R. Federal Employees Health Benefits Program .....................................................................33

Sample Notice 1. Notice of Proposed Furlough ......................................................................37

Sample Notice 2. Notice of Decision to Furlough -Modified decision base upon reply.........39

Sample Notice 3. Notice of Decision to Furlough- no Reply required ...................................40

Sample Notice 4. Notice of Decision to Furlough- with Reply ..............................................41

Sample Notice 5. Notice of Union Official of Planned Technician Furlough.........................42
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SUMMARY of CHANGE

DATE QUESTION CHANGE DESCRIPTION

April 8, 2013 A6 pg. 6 Change Email notification

D6 pg. 9 New Technician TDY from normal duty station

E6 pg. 10 New TDY Travel expenses during a furlough

E7 pg. 11 New Travel comp time earned while on furlough

E8 pg. 11 New Holiday pay, if holiday falls on a furlough 

day

E9 pg. 11 New Payment of awards and incentives during a 

furlough

E10 pg. 11 New Approval of comp time during a furlough?

H1 pg 14 Revised, see 

R1

Directs readers to new section R; titled 

Federal Employees Health Benefits Program

I1 pg.16 Revised Affect on TSP contributions

I2-I9 pg. 16-

17

New New TSP questions

Section K 

pg 20

New Changed title “Injury while on Furlough” to 

“Benefits under the Federal Employees 

Compensation Act”

K4 pg. 20 New Lost Wages Earning Capacity (LWEC) 

decisions and compensation for furlough 

days

K5 pg. 21 New Impact of LWEC on workers’ compensation 

K6 pg. 21 New Workers’ compensation and return to work 

under light-duty restrictions

K7 pg. 21 New Payment of FECA compensation and partial 

work days due to furlough

K8 pg. 21 New Impact on FECA benefits and modified light 

duty schedule

K9 pg. 21 New Affect of continuation of pay (COP) 

K10 pg. 21 New Schedule awards and medical benefits

N3 pg. 23 New Impact on Combined Federal Campaign 

Pledge

N4 pg. 24 New Mass Transit benefits

O2 pg. 24 Revised SF 50 Documentation of Administrative 

Furlough 

O3 pg. 24 New SF 50 remarks for furlough

O4 pg. 25 New SF 50 remarks for furlough

O5 pg. 25 New Furlough hours on LES

O6 pg. 25 Revised Tracking furlough hours

O7 pg. 25 New SF 50 corrections

O8 pg. 25 Revised Timecard codes KG vs. KE

Q8 pg. 32 New Written agreements with Unions

Q9 pg. 32 New Unions and negotiations

Q10 pg. 32 New Unions and negotiations

R1 pg. 33 New Continuation of FEHB coverage
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R2 pg. 33 New Ability to afford FEHB coverage

April 8, 2013

Contd.

R3 pg. 33 New Continuing FEHB coverage if pay is 

insufficient to cover premium

R4 pg. 33 New Termination of FEHB coverage for 

insufficient pay

R5 pg. 33 New Re-enrollment following termination of 

FEHB coverage

R6 pg. 34 New Impact of terminating FEHB coverage on 5-

year participation requirement for purposes 

of continuing coverage after retirement

R7 pg. 34 New Cancellation of FEHB coverage for 

technicians participating in premium 

coverage

R8 pg. 34 New Options available to technicians not 

participating in FEHB premium conversion

R9 pg. 34 New Impact of cancelling FEHB coverage

R10 pg. 35 New FEHB enrollment changes

R11 pg. 35 New Government share of FEHB premiums

R12 pg. 35 New Government share of FEHB premiums for 

part-time technicians

Section R 

Note pg. 36

New Note regarding additional information on 

FEHB Program

pg. 37 Revised Sample Notice 1

pg. 39 Revised Sample Notice 2

pg. 40 Revised Sample Notice 3

pg. 41 Revised Sample Notice 4

pg. 42 Revised Sample Notice 5
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A. General Information

1. What is Sequestration?

Sequestration is an across-the-board reduction in Federal budgetary resources in all budget 

accounts that are not exempted by statute. Under the Balanced Budget and Emergency

Deficit Control Act of 1985, as amended by the Budget Control Act of 2011, across-theboard reductions took effect on March 1, 2013. Sequestration reduces each agency's 

budgetary resources in non-exempt accounts for the remainder of the fiscal year (which runs

through September 30, 2013).

2. What is a furlough? 

Furlough is an action placing a technician, in a temporary non-duty, non-pay status, because of 

lack of work or funds, or other non-disciplinary reasons. 

3. What is an administrative furlough and why are administrative furloughs necessary? 

An administrative furlough is a planned event by an agency, designed to absorb reductions 

necessitated by downsizing, reduced funding, lack of work, or any other budget situation other 

than a lapse in appropriations. This type of furlough is typically a non-emergency furlough, in 

that the agency has sufficient time to reduce spending and give adequate notice to technicians of 

its specific furlough plan and how many furlough days will be required. For example, a furlough 

may be necessary when, as a result of Congressional budget decisions, an agency is required to 

absorb additional reductions over the course of a fiscal year. 

4. What is the difference between an administrative furlough and a shutdown furlough? 

An administrative furlough is a planned event by an agency that is designed to absorb 

reductions necessitated by downsizing, reduced funding, lack of work, or any other budget 

situation other than a lapse in appropriations. Furloughs that would potentially result from 

sequestration would generally be considered administrative furloughs. For more information 

on administrative furloughs, see http://www.opm.gov/furlough/Guidance-for-AdministrativeFurloughs.pdf.

In contrast, where there is a lapse in appropriations, a "shutdown" furlough may occur. A 

shutdown furlough is necessary when an agency no longer has the funds necessary to operate 

and must shut down those activities that are not excepted under the Antideficiency Act. Many

Federal technicians may be familiar with these types of furloughs from instances in previous

years in which the Government has faced a potential shutdown. For additional information on

shutdown furloughs see OPM’sguidance for shutdown furloughs related to potential lapse in

appropriations at http://www.opm.gov/furlough/ index.asp.

5. Under what authority is a furlough taken?

There are three legal authorities under which a furlough can be taken. Furloughs of 30 calendar 

days or less are covered under adverse action procedures found in Subpart D of 5 Code of 
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Federal Regulations (CFR) 752. Furloughs of more than 30 calendar days are covered under 

reduction in force (RIF) procedures found in Subpart B of 5 CFR 351.

6. How is a technician notified of a furlough?

Technicians are notified of a furlough in writing by memorandum that is personally handdelivered to the technician or, if not available in person, may be emailed to the technician with 

confirmation of delivery and read receipt or is mailed by certified/return receipt to their home 

address of record. If required to mail a notice to a technician, the certified/return receipt mail 

option provides proof of mailing that is a legally acceptable means of delivery.

B. Covered Technicians 

1. In planning a furlough how does a State account for differences among certain 

groups of technicians or certain work units?

The Adjutant General (TAG) has discretion, in accordance with published guidelines and 

local collective bargaining agreements, to identify which technicians will be furloughed and 

when to schedule furloughs based on the States’ particular needs and mission. The Human 

Resources Officer shall engage in pre-decisional consultation with the exclusive bargaining 

representative regarding the exercise of management’s discretion. To the extent required by 

law or applicable collective bargaining agreement, States must bargain over any negotiable 

Impact and Implementation (I&I) proposals with technicians' exclusive representative before 

implementing a furlough.

2. Which technicians may be affected by an administrative furlough? 

Technicians not engaged in exempt or excepted activities may be furloughed. The Adjutant 

General is responsible for identifying the technicians affected by administrative furlough based 

on budget conditions, funding sources, mission priorities (including the need to perform 

emergency work involving the safety of human life or protection of property), and other factors. 

See Furlough Procedures and also see the Labor Management Relations Implications. 

3. How will a technician be notified if they are affected by an administrative furlough? 

Each Human Resources Office (HRO) will coordinate the method and timing to notify a 

technician as to whether or not he or she is affected by an administrative furlough. (See Sample 

Notices located at the end of this document and also refer to the Labor Management Relations 

Implications questions and answers).

When notifying a technician, the written notice must include the following required information: 

(1) reason(s) for the furlough, (2) estimated length of the furlough, and (3) right to have the 

furlough action reviewed by the Adjutant General. If applicable, inform the technician of the 

basis for selecting some positions or technicians but not others. See Sample Notice 1 for 

examples.
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4. Who should technicians contact for information about whether sequestration will

impact them and whether they may be furloughed?

Technicians should contact their HRO for information about how sequestration will impact

them and whether they may be furloughed. Bargaining unit technicians may also contact their

union representatives.

5. Are furloughed detailees returned to their home agencies following any furlough?

Detailed technicians remain officially assigned to their permanent positions during the

detail. During a furlough, each State will determine the status of their technicians on detail

within the agency or to another agency.

C. Designation of Furlough Days

1. How should a State schedule administrative furlough time off? Must all States follow the 

same procedures for furloughing technicians? Can a technician choose to take furlough 

days all at once or spread them out? 

Each State will determine the timing of when technicians take administrative furlough days in 

accordance with local collective bargaining agreements. For technicians represented by 

labor unions, the timing of furlough days is subject to collective bargaining. An administrative 

furlough may affect each State differently depending on the extent of the budget reduction 

requirements. For example, a State may furlough technicians for one day per pay period for a 

finite period of time; designate a number of furlough hours that technicians must take; designate 

specific dates as furlough days off; or allow technicians to select their own furlough time off.

2. Is the one day a week model mandated, or may States accomplish the furlough action 

differently? Can different schedules be implemented at different work locations within the 

state (i.e., one office may want to take a two-week “block furlough” during annual training

or for a shutdown, but others may want to retain the one-day-a-week model).

Although DoD has established a general rule that no more than 16 hours per pay period should 

be executed, this presupposes all technicians are on a standard workweek and there are no local 

collective bargaining agreements detailing furlough procedures. Adjutants General may make 

an allowance for military technicians to schedule furlough days during Annual Training. 

3. Can technicians be furloughed for partial days?

Yes. States have discretion to schedule an administrative furlough in a variety of ways. 

OPM encourages agencies to take into account the effect of commuting when multiple

partial furlough days are scheduled. Adjutants General may make an allowance for military 

technicians to schedule furlough days during Annual Training. 
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4. How should a State schedule administrative furlough time off for a technician who is on 

a flexible or compressed work schedule under an alternative work schedule (AWS) 

program? 

Because the definition of a work day will vary, based on the type of work schedule and/or 

appointment, it is best for the State to develop a decision notice that provides equity and 

consistency. For ease of administration and equity, the State may schedule furloughs for all 

technicians (both alternative work schedule and regular work schedule) in terms of hours. For 

example, in the event that all full-time technicians are furloughed for 40 hours, for some 

technicians the actual number of furlough days could be more or less than 5 days, depending on 

their work schedules. 

5. How should the State schedule administrative furlough time off for a technician who 

does not work a standard work schedule (e.g., part time or uncommon tour of duty)? 

Furloughs of part-time, or uncommon tour of duty technicians, must comply with the procedures 

in TPR 715 or TPR 351 if the technicians are otherwise covered. In scheduling such furloughs, 

it would be equitable to prorate a technician’s furlough requirement by computing the furlough 

days as furlough hours in the same proportion to those hours scheduled for full-time technicians 

working 80 hours biweekly, based on work schedules. The hours of furlough might be computed 

as a percentage of the work schedule for full-time technicians working 80 hours biweekly. For 

example, a part time work schedule of 64 hours a pay period would equate to 64/80 of a fulltime 

work schedule, or 80%. This percentage could then be multiplied by the number of hours that a 

full-time technician is furloughed. The same method of proration would be used for uncommon 

tours of duty. For example, to derive the hours of furlough for a technician working 144 hours a 

pay period, a factor of 144/80, or 180%, would be multiplied by the number of hours of furlough 

designated for full-time technicians working 80 hours biweekly. 

6. How should the State schedule administrative furlough time off for a technician who 

works on a seasonal or intermittent basis? 

The State has the discretion to call seasonal or intermittent technicians to duty during an 

administrative furlough. The seasonal technician is recalled to duty at identified periods of the 

year in accordance with pre-established conditions. The intermittent technician is in a non-fulltime status without a regularly scheduled tour of duty. 

D. Working During Furlough 

1. May a technician volunteer to do his/her job, in a non-pay status, during any hours or 

days designated as furlough time off? 

No. A technician is not permitted to serve as an unpaid volunteer and will remain away from the 

work place until recalled.

2. What happens to a technician scheduled for training during an administrative furlough? 

In the event that scheduled training occurs during a furlough period, affected technicians must be 

placed in a furlough status and ordered not to attend the scheduled training. Technicians

currently on temporary duty will return to home station as soon as possible. Also, a technician
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cannot work on any training assignments on a furlough day. Technicians should consult with the 

training provider to make other arrangements (e.g. make-up sessions or rescheduling the course.)

3. May a technician take other jobs during a period designated as furlough time off? 

While on furlough, a technician remains an employee of the Federal Government. Therefore, 

executive branch-wide standards of ethical conduct and rules regarding outside employment 

continue to apply when an individual is furloughed (specifically, the executive branch-wide 

standards of ethical conduct (the standards, at 5 CFR 2635). In addition, there are specific 

statutes that prohibit certain outside activities and potentially State specific supplemental rules 

that may require prior approval of, and sometimes prohibit, outside employment. 

4. May a technician work during a period designated as furlough time off to earn 

compensatory time?

No. A technician may not work to earn compensatory time during hours and/or days designated 

as furlough time off.

5. May a technician work during a period designated as furlough time off to accumulate 

religious compensatory time off hours for religious observances? 

No. A technician may not work during a period designated as furlough time off; even to accrue 

religious compensatory time. 

6. If a technician is away from their normal duty station on TDY at the time of a furlough, 

how will this be handled? 

Managers within the State will determine if the technician’s services are still needed at the 

temporary duty station based on mission critical requirements and authorized exemptions. In the 

case of those technicians who are notified by their agency that they are to remain on travel, 

because the continuation of their travel is in direct support of an exempted agency activity, their

travel expenses are properly incurred obligations of the agency (as part of the agency carrying 

out an exempted activity), and the agency will reimburse per diem and travel costs.

E. Pay and Compensation

1. When a technician’s pay is insufficient to permit all deductions to be made because 

furlough time off occurs in the middle of a pay period, resulting in a partial paycheck, what 

is the order of withholding precedence? 

The United States Property and Fiscal Office (USPFO) will follow the guidance, at the below 

referenced website, to determine the order of precedence for applying deductions from a

technician’s pay when the gross pay is insufficient to cover all authorized deductions. 

http://www.chcoc.gov/transmittals/TransmittalDetails.aspx?TransmittalID=1477 
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2. May the State deny or delay within-grade or step increases for a General Schedule or 

Wage System technician during a furlough? 

It depends on the length of the furlough. Within-grade and step increases for GS and WG 

technicians are awarded on the basis of length of service and individual performance. Such 

increases may not be denied or delayed solely because of lack of funds. However, extended 

periods of non-pay status (e.g. furlough for lack of funds) may affect the timing of such 

increases. For example, a GS technician in steps 1, 2, or 3 of the grade, who is furloughed for 

more than 2 work weeks during the waiting period, would have his/her within-grade increase 

delayed by at least a full pay period. (See 5 CFR 531.406(b))

3. Are technicians entitled to unemployment compensation while on furlough?

It is possible that furloughed technicians may become eligible for unemployment 

compensation. State unemployment compensation requirements differ. Some States require a

1-week waiting period before an individual qualifies for payments. In general, the law of the

State in which a technician’s last official duty station in Federal civilian service was located will 

be the State law that determines eligibility for unemployment insurance benefits. (See the 

Department of Labor website "Unemployment Compensation for Federal Employees" at 

http://workforcesecurity.dol eta.gov/unemploy unemcomp.asp.) HROs or technicians should 

submit questions to the appropriate State, Territory or District of Columbia office. The 

Department of Labor's website provides links to individual State offices at 

http://www.servicelocator.org/OWSLinks.asp.

4. Will technicians in a Temporary Duty (TDY) status during the furlough period be paid 

their salary?

During an administrative furlough, salaries continue except furlough days are non-pay days. 

5. What resources are available if a technician needs financial assistance during a furlough 

period?

Some Employee Assistance Programs (EAP) include financial consultation services. The HRO 

should counsel the technician on the benefits of utilizing the services of the EAP. The HRO 

should provide contact information to include a phone number. The technician may want to 

contact his/her financial institution or research options at the TSP website at http://www.tsp.gov.

6. If the State notifies the technician while the technician is still on TDY to return to their 

duty station, can the technician elect to delay the return? If the technician decides to delay 

the return, and as a result does the technician incur additional travel costs; and who is 

liable for those additional travel costs?

If the technician is notified to return home, the technician should do so as soon as practicable. If 

the technician returns promptly, the travel expenses incurred in the return, are properly-incurred 

obligations of the agency (as part of the agency's orderly- activities), and the agency will 

reimburse these travel costs after appropriations are enacted and are available for that purpose. If, 

however, the technician elects not to return promptly and, as a result of this decision, the 

technician incurs additional travel expenses, those additional travel expenses are not obligations 

of the agency, and will not be reimbursed (instead, the technician is personally liable for the 

additional travel expenses); while the technician will be personally liable for the additional travel 
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expenses, the agency will continue to incur the obligation for those travel costs that would have 

been incurred if the technician had returned promptly, and the agency will reimburse such 

"prompt return" travel costs for that purpose. 

7. Can a technician earn travel compensatory time while on furlough?

Yes. Travel status includes only the time "actually" spent traveling between the official duty 

station and a temporary duty station, or between two temporary duty stations, and the usual 

waiting time that precedes or interrupts such travel.

8. Will Technicians be paid for a Federal holiday if it is their furlough day? 

General guidance put forth by OPM states that it would not be proper to furlough a technician 

solely on a holiday. Supervisors will be responsible for making any additional furlough schedule 

adjustments for each pay period with a Federal holiday to ensure technicians are provided 

flexibility to change their scheduled furlough days in order to receive holiday leave. It is 

recommended that technicians have a discussion with their supervisors about their work schedule 

and Federal holidays. 

Federal holidays occurring during the expected furlough period include: 

Day of the Week Date Holiday

Thursday July 4, 2013 Independence Day

Monday September 2, 2013 Labor Day

9. Are annual Incentive Awards Program funds available for performance and/or special 

act or achievement? Pending updated NGB guidance

Neither law nor regulation requires agencies to pay performance awards granted under 5 U.S.C. 

Chapters 43 and 45 and 5 CFR 451.104(a) (3). If the State’s performance management policies 

and practices require the payment of performance awards, the State may delay payment until 

after the furlough when funds are available.

10. When may supervisors approve compensatory time during a Furlough?

A supervisor is prohibited from approving compensatory time off during an administrative 

furlough, except as necessary to protect the health, safety and security of personnel or property; 

to ensure the direct and timely provision of services and materiel to deployed units or to units 

that are preparing to deploy; or to perform similar mission critical functions. 

Any approval of compensatory time must be documented in advance of the time and date on 

which the work is to be performed, in writing, signed and dated by the approval authority that 

also sets forth the purpose of compensatory time and the rationale for concluding that the work 

meets definition above. 
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F. Leave and Other Time Off 

1. May a technician take paid leave or other forms of paid time off (e.g., annual, sick, court, 

military leave, leave for bone marrow or organ donor leave, any compensatory time off 

earned, or time off awards) instead of taking administrative furlough time off? 

No. During an administrative furlough, a technician may not substitute paid leave or other forms 

of paid time off for any hours or days designated as furlough time off. 

2. If a technician who received a furlough notice had previously scheduled annual

or sick leave on a furlough day, what happens to the scheduled leave?

Scheduled leave is canceled on furlough days only (annual leave, sick leave, or other).

Absences during scheduled furlough days may not be charged to leave. Leave may be

requested and approved on scheduled workdays.

3. How does the State treat a technician, who is on approved leave without pay (LWOP),

during an administrative furlough period? 

If a technician is scheduled to be on approved LWOP during the furlough period, he/she may 

designate any hours and/or days of LWOP as furlough time off in order to meet the furlough 

requirement. States are not required to provide a technician with a furlough notice if the 

technician is not expected to work during the furlough period. (e.g. the technician is deployed for 

a period in excess of the planned furlough period or the technician is currently serving on an 

AGR tour) If the technician returns to work before the end of the furlough period, the State could 

require the technician to take furlough time off, based on the State’s furlough requirement. If 

upon return to service, the technician has taken enough LWOP to cover the State’s requirement 

for furlough time off, the State may choose not to place the technician in a furlough status. 

4. For technicians who are currently mobilized who restore to their technician position 

sometime after the furlough period, is their 14-day furlough prorated? In other words, the 

technician restores after 1 July 2013, how many furlough days must said technician take 

before 30 Sep 2013? 

If the technician returns to work before the end of the furlough period, the State could require the 

technician to take furlough time off, based on the State’s furlough requirements. If, upon return 

to service, the technician has taken enough LWOP to cover the State’s requirement for furlough 

time off, the State may choose not to place the technician in a furlough status. 

5. May a technician take LWOP under the Family and Medical Leave Act (FMLA) during 

an administrative furlough period? 

Yes. A technician may take LWOP under FMLA during the designated furlough period. The 

technician may designate any hours and/or days of LWOP under FMLA as furlough time off in 

order to meet the state’s furlough requirement. During a furlough any LWOP under FMLA, that 

is scheduled to be taken instead of a furlough day off, will not count toward the technician’s 12

week FMLA leave entitlement. A technician, who takes LWOP under FMLA instead of a 

furlough day off, may not substitute paid leave for those days at a later time. States are not 

required to provide a technician with a furlough notice if the technician is not expected to work 

during the furlough period (e.g. a technician who has just given birth and has requested 12 weeks 
19-Apr-13 Page 13

of unpaid leave (LWOP under the FMLA). If the technician is scheduled to return to work, from 

approved LWOP during the designated furlough period, the technician should be provided with a 

written furlough notice (effective on the date of scheduled return).

6. What happens under sequestration if a technician has use-or-lose leave or

earned compensatory time off?

Sequestration should not affect a technician’s ability to take approved use or lose annual leave

before the end of the leave year or to use earned compensatory time off within the established

timelines. 

7. Can technicians be required to perform compensatory time on non-furlough days to 

perform work that otherwise would be performed on a furlough day?

No. 

8. Will the furlough impact leave accrual?

Once a technician’s balance of non-pay hours equals their scheduled hours in a pay

period (e.g., 80 hours in a biweekly pay period, fewer hours for part-time technicians), the

Technician will not accrue leave for that pay period. Leave accrual resumes the next pay

period. Note: This will occur once if the furlough period is 14 days.

9. May technicians who were designated as exempt from an administrative

furlough be granted paid leave?

Yes. Technicians exempted from administrative furloughs would see no change from

normal leave situations, subject to supervisory approval.

G. Holidays 

1. May a technician be administratively furloughed on a holiday? 

Yes. However, the State should select the furlough days off on programmatic and administrative 

grounds that are unrelated to the fact that the period includes a holiday. For example, the State

may not properly furlough a technician for a 3-day period, the middle of which is a holiday, for

the sole purpose of saving 3 days pay while losing only 2 days of work. (See Comptroller 

General opinion B-224619, August 17, 1987). Nor would it be proper to furlough a technician

solely on a holiday. (See Comptroller General Opinion B-222836, May 8, 1986).

2. If a technician has a designated administrative furlough day off on the last workday 

before a holiday or the first workday after a holiday (but not on both days), will the

technician be paid for the holiday? 

Yes. The general rule is that a technician is entitled to pay for a holiday as long as he/she is in a 

pay status on either the workday preceding a holiday or the workday following a holiday. The 

technician is paid for the holiday based on the presumption that, but for the holiday, the 

technician would have worked. (Note: A holiday should not be the first or last day of the period 

covered by a furlough.) 
19-Apr-13 Page 14

3. If a technician has a designated administrative furlough day off on the last workday 

before a holiday and the first workday after a holiday, will the technician be paid for the 

holiday? 

No. If a furlough includes both the last workday before the holiday and the first workday after 

the holiday, the technician is not entitled to pay for the holiday because there is no longer a 

presumption that, but for the holiday, the technician would have worked on that day. (See 

Comptroller General opinion B-224619, August 17, 1987). States that allow a technician to 

choose the furlough days off must advise the technician that he/she will not be paid for the 

holiday if the technician chooses to take a furlough day off both before and after the holiday. 

H. Benefits

1. Will a technician continue to be covered under the Federal Employees Health Benefits 

(FEHB) Program during an administrative furlough? 

Technician FEHB coverage will continue if the technician’s salary is sufficient to pay the 

premiums. If the technician’s salary becomes insufficient to pay FEHB premiums due to the 

furlough, the leave without pay/insufficient pay rules apply:

(http://www.opm.gov/insure/health/reference/handbook/fehb13.asp). If a technician chooses to 

remain covered, the enrollee share of the FEHB premium will accumulate and be withheld from 

pay until which time the pay is sufficient to cover the premiums. 

(NOTE: see new section R for FEHB)

2. Will a technician’s Flexible Spending Account Program (FSAFEDS) be impacted during 

an administrative furlough? 

The technician’s FSAFEDS coverage continues, and allotments made by the technician continue 

if the technician’s salary in each pay period is sufficient to cover the deduction(s). If the 

technician’s salary is insufficient to cover his/her allotment(s), then incurred eligible health care 

expenses will not be reimbursed until the allotments are successfully restarted (in which case the 

remaining allotments would be recalculated over the remaining pay periods to match the 

technician’s annual election amount). Incurred eligible dependent care expenses may be 

reimbursed up to whatever balance is in the technician’s dependent care account, as long as the 

expenses incurred allow the technician (or technician’s spouse if married) to work, look for 

work, or attend school fulltime. Once dependent care allotments are successfully restarted, 

remaining allotments would be recalculated over the remaining pay periods to match the 

technician’s annual election amount. 

3. Will a technician continue to be covered under the Federal Employees' Group Life 

Insurance (FEGLI) during an administrative furlough? 

The technician’s FEGLI coverage continues while in a non-pay status due to furlough for up to

12 months without cost to the technician or to the agency. However, if the furlough is for only 

part of a pay period the FEGLI premiums are required. If the technician receives any pay in a 

pay period, FEGLI premiums for the whole pay period will be deducted from pay. The 

premiums are not prorated. If the technician’s salary becomes insufficient to pay FEGLI 
19-Apr-13 Page 15

premiums due to the furlough, the leave without pay/insufficient pay rules apply: 

(http://www.opm.gov/insure/health/reference/handbook/fehb13.asp). 

4. Will the technician continue to be covered under the Federal Employee Dental and 

Vision Insurance Program (FEDVIP) during an administrative furlough?

Yes. Just as with scheduled LWOP, if BENEFEDS is unable to take the necessary premium 

deduction from a technician’s pay, BENEFEDS collects the premium up to twice the biweekly 

amount from the next full pay period to make up for the missed premium deduction. If the

furlough continues for more than two consecutive pay periods, BENEFEDS will mail a direct 

bill to the technician. The technician should pay premiums directly billed to him/her on a timely 

basis to ensure continuation of coverage. 

5. Will the technician continue to be covered under the Federal Long Term Care 

Insurance Program (FLTCIP) during an administrative furlough?

Yes. Eligible claims will continue to be paid. Coverage will terminate if premiums are not paid. 

If the contractor does not receive premiums for two or fewer pay periods, they will adjust future 

premium deductions, increasing by no more than $50 per pay period to recover the missed

premiums. Three consecutive pay periods of no premiums will result in the contractor billing the

technician directly.

The technician also has the option to change to direct billing or to make a payment via electronic 

funds transfer. If premiums are not collected, or a final bill is not paid within a 30-day grace 

period, FLTCIP will send a termination letter. The technician has 35 days, from the date of the 

letter in which to pay the premium; otherwise, the technician will be disenrolled retroactively to 

the last pay period in which premium was paid. 

6. Will furloughs impact wages considered when calculating a retirees high three for 

CSRS/FERS retirement?

No. The furlough does not affect this calculation; it is the technician’s grade/step which is 

considered for retirement purposes. 

7. Will this furlough be considered a qualifying life event/Open Season to adjust benefits? 

Some techs will face financial difficulties and may want to change/reduce coverage to 

reduce deductions, will they have that option?

No. The furlough is not considered a qualifying life event. The next open season is 11 

November 2013 through 9 December 2013. 

8. During a furlough what is the impact to technicians who will retire this year? What 

about in the next 2-3 years?

Generally there will be no effect on a technician’s retirement pay unless the furlough causes the 

technician to be in a non-pay status for more than six months during a calendar year.

9. To what extent does non-pay status affect retirement coverage?

Federal Employees Retirement System (FERS) and Civil Service Retirement System
19-Apr-13 Page 16

(CSRS) coverage continue during an Administrative Furlough of 30 days or less.

10. Will social security contributions be affected?

Social security contributions are determined by a percentage of a technician’s basic pay

and may be stopped or reduced if the technician has no earnings or if basic pay is reduced.

I. Thrift Savings Plan (TSP) 

1. What is the impact of a furlough on the TSP? What will happen to the contributions?

There will be a reduction in the technician’s and employer contributions, unless the technician

chose a set dollar amount vice percentage of pay. By law, a technician who is in a non-pay status 

cannot contribute to their TSP account while on furlough. 

2. How will a furlough affect the technician’s TSP contributions?

TSP contributions are deducted from the technician’s pay. 

Example 1: If the technician is currently making contributions based on a percentage of their 

basic pay, here’s what happens: 

• If the technician earns $1,000 of basic pay every two-week pay period and they 

contribute 10% of it to the TSP, they will have a $100 TSP contribution every pay period. 

• If they are furloughed for 2 days per pay period, then their basic pay would decrease to 

$800 and as a result, their TSP contribution would decrease by an equal percentage so 

that their contribution would be $80 per pay period. 

• Simply stated, the technician’s TSP contribution decreases in direct proportion to the 

reduction in their basic pay. Therefore, the technician may find that lowering their 

contribution percentage is not necessary. 

Example 2: If, however, the technician is currently making TSP contributions based on a dollar 

amount of their pay, that dollar amount will not automatically decrease with the reduction in pay. 

The technician may want to revisit whether that amount is still appropriate given the expected 

impact of their furlough.

3. Should technicians terminate their TSP contributions?

If the technician is making traditional contributions, it is important to remember that those 

contributions are subtracted from their pay before tax. It is equally important for the technician 

to be aware that stopping their TSP contribution could potentially increase their adjusted gross 

income and, as a result, their income tax liability. Technicians should think carefully about 

terminating their contributions. 

Note: One of the great things about TSP contributions, no matter how small, is that the earnings 

compound over time. If the contributions are stopped, even for a short time, the technician will 

miss the opportunity to have their earning compound altogether. And, if the technician is a 
19-Apr-13 Page 17

FERS participant, they are leaving free money on the table because if they stop their 

contributions, their matching contributions stop as well.

4. Will the government matching contribution to TSP be reduced during the furlough 

period? 

Government matching contributions determined by a percentage of a technician’s basic pay may 

be stopped or reduced if the technician has no earnings, or if basic pay is reduced. 

5. Will a technician’s TSP investments be affected? What about disbursement?

TSP investment activity will continue. Share prices and account balances will continue to be 

updated each business day, and loans and withdrawals will continue to be disbursed.

6. May a technician take out a TSP loan while furlough? 

Yes. By law, a TSP participant may take a TSP loan during a furlough which results in a shortterm break in pay. The TSP Executive Director has determined a Government shutdown does 

not disqualify one from TSP loan eligibility. See the TSP Fact Sheet (Impact of a Government

Shutdown on the Thrift Savings Plan, dated March 4, 2011) at:

https://www.tsp.gov/PDF/formspubs/oc11-5.pdf . The technician should be referred to the cited 

reference for additional information specific to loan payment requirements.

7. What impact does the furlough have on a technician’s loan payments?

Payments continue. If the technician’s salary is insufficient, the loan may be extended or

have a balloon payment at the end.

8. Is the HRO required to send in a Form TSP-41 to notify TSP of a technician’s furlough 

status?

No. 

9. Can the Government take money from the TSP to resolve this financial situation?

No. The money in the TSP is held in trust for its participants. Neither Congress nor the

Administration can take money from a technician’s TSP account.

J. Unemployment Compensation

1. Is a technician entitled to unemployment compensation while on furlough? 

It depends. Rules for unemployment compensation eligibility differ State to State. It is possible 

that a furloughed technician may become eligible for unemployment compensation immediately 

in some locations; whereas other states require a one-week waiting period before qualifying for 

compensation. In general, the State’s laws, relative to the location of the technician’s last official 

duty station while in technician service, determine eligibility for unemployment insurance 

benefits. (See the Department of Labor website “Unemployment Compensation for Employees

(technicians)” at http://workforcesecurity.doleta.gov/unemploy/unemcomp.asp). Before 

applying for unemployment compensation, the technician should contact the HRO Employee 

Benefits Specialist for the required SF 8 form. The HRO Employee Benefits Specialist will 
19-Apr-13 Page 18

provide employment information upon request from the Department of Labor Unemployment 

Compensation Office. The Department of Labor’s website provides links to locations of 

individual state unemployment compensation offices at 

http://www.servicelocator.org/OWSLinks.asp. 

2. Are Human Resources Offices required to provide furloughed Federal technicians with

an SF-8, Notice to Federal Employee about Unemployment Insurance?

Federal agencies are required to provide technicians with an SF-8 if they will be in a nonduty

status for seven or more consecutive days.

3. What address should the HR Office provide on the SF-8, Notice to Federal Technician

about Unemployment Insurance? What is the Federal Identification Code (FIC)?

The address on the SF-8 should be the address for the Human Resources Office. The FIC is 422 

for the Department of the Army and 424 for the Department of the Air Force.

4. Is an unemployment compensation claim based on the state where the technician lives or 

where they work?

Unemployment compensation claims are based on the state in which the work was performed.

5. Are technicians who are lower than a Grade 9, Step 5, exempt from paying back

unemployment compensation benefits if they are later paid for the furlough period?

The decision on whether or not technicians would have to pay back unemployment 

compensation benefits would be decided by each State Employment Security Agencies based on 

their unemployment compensation law. Overpayment requirements apply to all technicians for a 

particular state, regardless of their grade or salary.

6. Is information available as to what the states require before processing a claim for 

unemployment because of a furlough?

Yes. The list below gives Web sites or instructions for each state when filing an initial

claim for unemployment; different procedures often apply when filing claims for

additional benefits. You should also note that Kentucky has a Web site – at

http://www.oet.ky.gov/des/ui/staterefguide.asp - that lists state Web sites, plus telephone

numbers, for about 40 states.

Alabama – http://dir.alabama.gov/uc

Alaska – http://www.labor.state.ak.us/esd_unemployment_insurance/biff-splash.htm

Arizona – https://www.azdes.gov/landing.aspx?id=4211

Arkansas - http://www.arkansas.gov/esd/UI/index.htm

California – https://eapply4ui.edd.ca.gov/

Colorado –

https://wwws.coworkforce.com/ucontinuedclaims/default.asp?ci=0&ps=0&er=0&li=e

Connecticut –http://www.ctdol.state.ct.us/progsupt/unemplt/M1A/LogInIntro.htm

Delaware – http://www.delawareworks.com/Unemployment/welcome.shtml

District of Columbia – https://does.dcnetworks.org/InitialClaims/

Florida –
19-Apr-13 Page 19

http://www.floridajobs.org/job-seekers-community-services/reemployment-assistancecenter/

file-a-claim

Georgia - http://www.dol.state.ga.us/

Hawaii – http://hawaii.gov/labor/ui

Idaho – http://labor.idaho.gov/dnn/Default.aspx?alias=labor.idaho.gov/dnn/idl

Illinois – http://www.ides.state.il.us/individual/certify/default.asp

Indiana – http://www.in.gov/dwd/

Iowa – http://www.iowaworkforce.org/ui/file1.htm#1.

Kansas – www.getkansasbenefits.gov

Kentucky – http://www.kewes.ky.gov/

Louisiana – https://laors.laworks.net/laclaims/Web site/

Maine – https://gateway.maine.gov/DOL/mics/BasePage.aspx

Maryland – electronic filing not permitted if technician worked for the Federal

Government in the past 18 months. File by phone at 410-949-0022 in the Baltimore area,

or 1-800-827-4839 outside the Baltimore area. Information is at

http://www.dllr.state.md.us/employment/unemployment.shtml

Massachusetts – initial claim by phone or in person only. File by phone at 1-877-626-

6800 from Massachusetts, 617-626-6800 outside Massachusetts. Information is at

http://www.mass.gov/?pageID=dlwdconstituent&L=2&L0=Home&L1=Claimants&sid=

Edwd

Michigan – http://www.michigan.gov/uia/0,1607,7-118--77962--,00.html

Minnesota – http://www.uimn.org/

Mississippi http://mdes.ms.gov/unemployment-claims/

form must then be brought in person to a Mississippi Job Center

Missouri – http://www.labor.mo.gov/DES/Claims/

Montana – https://app.mt.gov/ui4u/index

Nebraska – https://uibenefits.nwd.ne.gov/BPSWeb/jsp/BPSClaimantWelcome.jsp

Nevada – http://www.ui.nvdetr.org/UI_Agreement.html

New Hampshire – http://www.nh.gov/nhes/

New Jersey – http://lwd.dol.state.nj.us/labor/ui/ui_index.html

New Mexico – http://www.dws.state.nm.us/

New York – https://ui.labor.state.ny.us/UBC/home.do?FF_LOCALE=1

North Carolina – https://www.ncesc.com/individual/webInitialClaims/applyBegin.asp

North Dakota – https://secure.apps.state.nd.us/jsnd/uiiaclaims/login.htm

Ohio – http://unemployment.ohio.gov/

Oklahoma – https://unemployment.state.ok.us/instructions.asp?x=n

Oregon – http://findit.emp.state.or.us/ocs

Pennsylvania – https://www.paclaims.state.pa.us/UCEN/

Puerto Rico - http://www.trabajo.pr.gov/

Rhode Island – https://uiclaims.state.ri.us/RI-ICS/Intro/index.aspx?AC=yes

South Carolina – http://dew.sc.gov/

South Dakota – http://dlr.sd.gov/ui/default.aspx

Tennessee – http://www.state.tn.us/labor-wfd/esdiv.html

Texas – http://www.twc.state.tx.us/ui/uiclaim.html

Utah – http://jobs.utah.gov/ui/WebInitialCubs/Welcome.aspx

Vermont – file by phone only, by calling 1-877-214-3330. Information is at

http://www.labor.vermont.gov/Unemployed/tabid/109/Default.aspx

Virginia – http://www.vec.virginia.gov/vecportal/seeker/jslogin.cfm

Virgin Islands – file in person only

http://www.vidol.gov/OP/Contact.htm
19-Apr-13 Page 20

Washington – http://www.esd.wa.gov/uibenefits/index.php

West Virginia – http://www.wvuc.org/

Wisconsin – https://ucclaim-wi.org/InternetInitialClaims/InfoBasicRequirements.asp

Wyoming - https://doe.state.wy.us/InetClaims/

K. Benefits under the Federal Employees’ Compensation 

Act

1. If a technician was in receipt of Federal Employees’ Compensation Act (FECA)

wage-loss compensation and was then furloughed, what effect would the furlough have on 

his/her compensation?

None. FECA wage-loss compensation is not considered wages and, therefore, is not affected by

a lack of funding at the employing agency

2. Are technicians who are injured while on furlough or LWOP eligible to receive workers’

compensation? 

No. Workers compensation is paid to technicians only if they are injured while performing their 

duties. Technicians on furlough or LWOP are not in a duty status for this purpose. A technician

who is receiving workers’ compensation payments will continue to receive workers’ 

compensation payments during a furlough and will continue to be charged LWOP.

3. Are technicians who are currently reemployed from the Workers’ Compensation roles 

exempted from furlough? 

 

No. A technician who has been reemployed from OWCP roles is not exempt from furlough. 

They are to be treated the same as any other technician. However, if a returned technician is 

receiving lost wages from the Department of Labor (DOL), those wages will continue to be paid 

by DOL.

4. Will a technician with a Lost Wage Earnings Capacity (LWEC) decision in place be 

compensated from OWCP on the days the agency is furloughed?

No. Once OWCP issues a formal LWEC decision, it cannot be changed except for one of three 

reasons. Those reasons are listed in the Federal Regulations, at 20 CFR 10.511, as follows: (1) 

Modification of such a determination is only warranted where the party seeking the modification 

establishes either that there is a material change in the nature and extent of the injury-related 

condition; (2) the technician has been retrained or otherwise vocationally rehabilitated, or (3) the 

original determination was erroneous. So if OWCP has issued a formal LWEC decision, and 

then the technician is furloughed, no additional OWCP benefits would be payable; a furlough is 

not one of the 3 reasons listed in these regulations.

5. If a technician is receiving wage-loss compensation from OWCP as a result of a Lost 

Wage Earnings Capacity (LWEC) decision, will the claimant's compensation from OWCP 

be reduced due to sequestration?

No. Monies received from OWCP for wage-loss compensation are not considered wages and, 

therefore, are not affected by a lack of funding at the employing agency.
19-Apr-13 Page 21

6. Is a furlough day considered a withdrawal of light duty for a technician with a work 

related injury, who is working light duty based on temporary work restrictions? Is the 

technician eligible to apply to DOL for wages lost on the furlough day?

It is the agency's opinion that the furlough action is not a direct withdrawal of light duty as the 

furlough requirement applies to all technicians unless exempted by proper authority. DOL is the 

decision authority on a technician's claim for loss of wages. If the technician wishes to claim 

compensation from DOL for the furlough period they must submit a completed Form CA-7 to 

the agency's ICPA. DOL in turn will issue a decision on the compensation claim.

7. How does an administrative furlough affect the compensation of a technician who is 

receiving FECA benefits and is under medical orders to work part-time?

When a technician is already out on total or partial wage loss benefits, FECA compensation 

continues at the usual rate. Claims for FECA compensation benefits submitted as a result of 

missing a partial day due to a furlough are not payable under the FECA.

8. How does an administrative furlough impact the compensation of a technician who is 

receiving FECA benefits and is required to work a modified light duty schedule?

FECA compensation benefits are not payable for work days lost as a result of administrative 

furlough.

9. How does a furlough affect Continuation of Pay (COP)?

If a technician sustains a traumatic injury and is receiving COP before furlough days have been 

scheduled, COP should continue. However, if a technician sustains a traumatic injury and has 

already been scheduled for one or more furlough days, then there would be no COP entitlement 

for any day that the technician was not scheduled to work due to an administrative furlough.

10. Are schedule awards or medical benefits affected by an administrative furlough? 

No. Schedule award and medical benefits continue regardless.

L. Service Credit for Various Purposes 

1. Is being furloughed or on leave without pay (LWOP) considered a break in service? 

No. Both mean the technician is in a nonpay, nonduty status for those days/hours. However, an 

extended furlough or extended LWOP may affect the calculation of creditable service for certain 

purposes. 

2. To what extent does non-pay status affect technician benefits and programs? 

The effects of a non-pay status (which includes furlough, leave without pay, absence without 

leave, and suspension) on technician benefits and programs vary based on current law and 

regulation. For additional information, see OPM’s fact sheet on the “Effect of Extended Leave 

Without Pay (or Other Nonpay Status) on Benefits and Programs” at

http://www.opm.gov/oca/leave/HTML/LWOP_eff.asp. 
19-Apr-13 Page 22

3. What effect will a furlough have on the calculation of a technician's creditable

service?

Time spent in a non-pay status (including furlough) is credited as follows:

• Career tenure: The first 30 calendar days of each non-pay period is

creditable service. (5 CFR 315.201(b)(4)(ii)(A))

• Probationary period: An aggregate of 14 workdays in a non-pay status is

creditable service. (5 CFR 315.802(c))

• Qualification standards: There is no requirement to extend qualifying

periods by the amount of non-pay status. However, agencies may require such

extensions in order to meet training requirements or ability to perform. 

• Time-in-Grade: Non-pay status is creditable service. (5 CFR 300.605(a))

• Service Computation Date-LEAVE: Up to six months in non-pay status is

creditable. (5 U.S.C. 6303(a))

• Service creditable for within-grade-increases: The time in a non-pay status

that is creditable is determined by the current step (See 5 CFR531.406(b) for GS & 

532.417(c)(2) for FWS)

M. Technicians on Military Duty 

1. May a National Guard technician perform military duty while furloughed? And is it a 

dual compensation situation?

A military technician may perform military duty while he/she is furloughed. It is not a dual 

compensation situation because furloughed technicians are not in a pay status. They will be 

compensated by the military and continue to be carried in an Absent-US status.

2. Will a technician continue to receive reservist differential payments (5 U.S.C. 5538) if 

the technician is affected by an administrative furlough from the technician position while 

on active duty? 

It depends. In computing a reservist differential, the State must compare the technician’s

projected technician basic pay to the allocated military pay and allowances for each technician

pay period. If the technician is affected by a furlough from his/her position while on active duty, 

the State must reduce the technician’s projected basic pay during any pay period in which 

furlough time off occurs. If the allocated military pay and allowances are greater than, or equal 

to, the projected technician basic pay adjusted for furlough time off, no reservist differential is 

payable for that pay period. If the projected technician basic pay (as reduced to account for 

furlough time off) is greater than the allocated military pay and allowances, the difference 

represents the unadjusted reservist differential. 

3. Will there be an impact on the within-grade increase (WGI) waiting period for General 

Schedule (GS) technicians affected by an administrative furlough while in an Absent 

Uniformed Service (AUS) status? 

No. Furlough has no impact on a the WGI waiting period for GS technician’s affected by a 

furlough while in an AUS status (i.e., Nature of Action Code 473, used when the technician has 

restoration rights). An absence, for the purpose of engaging in military service, is creditable 

service in the computation of waiting periods for successive WGIs when the technician returns to 
19-Apr-13 Page 23

a pay status through the exercise of a restoration right provided by law, Executive Order, or 

regulation. (See 5 CFR 531.406(c)(1)(i) and 5 CFR 532.417(c)(4)).

N. Miscellaneous

1. Can States offer early retirements (VERAs) or separation incentives (VSIPs) to 

furloughed technicians? Can VERA/VSIP be offered during sequestration? Can 

VERA/VSIP be offered in lieu of a furlough?

Both Voluntary Early Retirement Authority (VERA) and Voluntary Separation Incentive 

Payments (VSIP) are programs to incentivize voluntary separations to avoid involuntary 

personnel actions associated with a State’s decision to restructure its workforce. States with

NGB-approved VERA and or VSIP may continue offering these options to covered

technicians during a furlough.

VERA and VSIP result in permanent separations from the agency workforce. (Please note 

that VSIP recipients may not be reemployed by the Federal Government within 5 years unless

they repay the VSIP to the agency that paid it.) Furloughs are associated with temporary

issues, such as lack of work or funds, with the intention that technicians would return to

their jobs after the furlough. The State will decide which option to take based on its situation,

e.g., the need to permanently reduce or restructure its workforce or to save funds by

furloughing technicians.

2. If the furlough impacts the technician’s ability to meet financial obligations

(e.g., mortgage or rent payments), will it impact their eligibility for continued

suitability for Federal employment, access to classified information, or to hold a

sensitive position?

A furlough is a circumstance beyond an employees control. The Federal Adjudicative Guidelines

specify that the adjudicative process is the careful weighing of a number of variables known as 

the 'whole person concept.' Mitigating factors include whether the conditions that resulted in the 

concern were largely beyond the person's control and whether or not the individual acted 

responsibly under the circumstances. As a proactive measure, technicians may wish to contact 

the local Employee Assistance Program (EAP) to see if financial planning is available.

3. What impact will a furlough have on a technician’s Combined Federal Campaign 

pledge?

The technician’s allotment to charity will continue if their salary is sufficient to pay the 

deduction according to the order of precedence and unless they provide other instructions to the

payroll office representative. They may lower or cancel a CFC pledge by contacting their payroll 

office representative or CSR. If they cancel a CFC pledge, they will not be able to restart it until 

the next campaign season (for the 2014 payroll year). 
19-Apr-13 Page 24

4. Will the furlough impact a technician’s mass transit subsidy/benefits?

Furlough does not change the maximum monthly limit (currently $245) for mass transit 

subsidy/benefits. Since participants may claim only the days for which mass transit was used, 

furloughed participants--commuting fewer days in a month--will claim fewer days.

O. Furlough Procedures - 22 workdays or Less 

1. May the State schedule administrative furlough days consecutively or discontinuously 

(e.g., one workday per week for 22 weeks)? 

Yes. Nothing in law or regulation prohibits discontinuous furloughs. Moreover, discontinuous 

furloughs can be advantageous to both the technician and the State by distributing the furlough 

days over time, minimizing the financial impact on a technician, and lessening the disruption of 

agency services to the public. 

In AFGE, Local 32 and OPM, 22 FLRA 307 (1986), the Labor Relations Authority held that a 

proposal, giving the furloughed technician the right to determine whether his/her furlough was to 

be continuous or discontinuous, is a negotiable 5 U.S.C. 7106(b)(3) “appropriate arrangement.” 

For ease of administration and equity, the State may also schedule furloughs for all technicians

(both alternative work schedule and regular work schedule) in terms of hours. For example, all 

full-time technicians would be furloughed for 40 hours; even though for some technicians, the 

actual number of furlough days could be more or less than 5 days. 

2. How is an administrative furlough documented? 

NG-J1-TN will process the mass actions to prepare an SF-50, Notification of Personnel Action 

for each technician subject to furlough. The appropriate Nature of Action Code (NOAC) to use 

according to the Guide to Processing Personnel Actions (GPPA) Chapter 15, will be NOAC 471 

– Furlough. Since NOAC 471 is being used, there is no requirement for a Return to Duty 

(NOAC 292) personnel action to be processed at the conclusion of the furlough period. The 

actual furlough days will be coded via technician timecards using employee leave code “KE” 

(Furlough). The furlough hours used by pay period and the accumulated furlough hours will 

flow back into the Defense Civilian Personnel Data System (DCPDS) from the Defense Civilian 

Pay System (DCPS) to allow HROs to track the hours for each technician. 

3. What remark will indicate the period of the furlough on the SF-50?

DoD has received permission from OPM to use the following remark with the NOAC 471 –

Furlough. The remark has been modified to read “To be furloughed on discontinuous days 

between (beginning date of furlough period) and (ending date of furlough period) not to exceed a 

maximum of (number of hours) during the furlough period. Prior to the beginning of each pay 

period supervisors will inform technicians of the specific date(s) that he/she will be furloughed 

during the pay period.”
19-Apr-13 Page 25

4. How will furlough hours be shown on the technician’s Leave and Earning Statement

(LES)?

All furlough hours will show on the technician’s Leave and LES in Leave Category as Furlough 

and will be combined with any LWOP in the LWOP Used YTD field.

5. How will supervisors track the furlough hours used by technicians?

Supervisors will be able to track the furlough hours their technicians use by running the 

“Furlough Indicator” report in the My Workplace located within the Defense Civilian Personnel 

Data System (DCPDS). The data will be updated one week after the end of each pay period

6. Are Correction SF-50 actions required if the furlough ends early?

Correction SF-50 is not required or necessary to correct the ending date of the furlough period if 

the furlough ends early and the furlough SFs-50 were coded with the optional "M73" remark that 

OPM recently approved. 

7. How are timecards coded if technicians are on non-continuous furlough days? KEFurlough vs. KG-Furlough Military(Absent-US) (Pending official NGB guidance)

Scenario: A Dual Status Technician’s work schedule is Mon-Fri. On their scheduled furlough 

day the technician wants to perform military duty, AT, UTAs, or other IADT. 

• Question: Can the technician perform military duty (AT, UTAs, or other IADT) on their 

furlough day? 

o Answer: Yes.

• Question: If technicians perform military duty (AT, UTAs, or other IADT) on their 

furlough day, how is the time coded on their time card? 

 

o Answer: Code the time card: KE – Furlough.

• Question: Can DS Tech’s time card be coded “KG – Military Furlough (Absent-US)” 

instead of KE - Furlough?

o Answer: Yes, if the technician was called to active duty. If not, use KE –

Furlough.

8. How can HROs track technicians’ cumulative furlough hours? 

HROs will be able to track the cumulative furlough hours by having their Human Resources 

Specialist (Information Systems) run reports in the Business Intelligence 4 system. Available 

furlough hour fields include: "Furlough Hours Used PP" and "Furlough Accumulated Hours".
19-Apr-13 Page 26

9. If a discontinuous administrative furlough extends for more than 30 calendar days, is it 

a furlough covered by procedures in TPR 715, or is it covered by the reduction-in-force 

(RIF) procedures in TPR 351? 

Based on the definition of “day” as “calendar day” (5 CFR 210.102), OPM has determined that 

22 workdays equates to 30 calendar days for adverse action purposes for technicians. Thus, a 

discontinuous furlough of 22 workdays or less would be covered by Voluntary and NonDisciplinary Action procedures(TPR 715), and one of more than 22 workdays would be covered 

by RIF procedures (TPR 300(351)). For example, if a holiday is included in a furlough of 22

consecutive workdays, the furlough might equate to more than 30 calendar days (e.g. the month 

of November has two holidays: Veterans Day and Thanksgiving Day. Therefore, the number of 

calendar days will be extended beyond 30 by two days).

10. What procedural rights would apply for an administrative furlough of 30 calendar days 

or less for technicians covered under TPR 715?

For a short furlough, the law (5 U.S.C. 7513) gives a covered technician the following rights: 

• At least 30 calendar days advance written notice, from the organization, stating the specific 

reasons for the proposed action. (Typically, the reasons for the action would involve a lack of 

work or funds.) The 30 calendar day period begins effective upon the technician’s receipt of the 

written notice. Therefore, the HRO should plan accordingly and allow time for mailing the 

notice when hand delivery is not possible. (See Sample Notice 1 for proposal to furlough and 

Sample Notice 2 for decision to furlough.) 

• A technician may request a review of the furlough action, in writing, through the HRO to the 

Adjutant General (TPR 715, paragraph 3-7/TPR 351). 

• The right of the technician to be represented by an attorney or other representative. 

• Allow at least seven calendar days for the technician to answer, orally and in writing, to the 

proposal notice and to furnish documentary evidence in support of his/her answer. (A summary 

of any oral answer must be made and maintained by the HRO.)

• A written decision by the organization with the specific reason(s) for the action at the earliest 

time practicable. 

Additionally, TPR 715 requires that the HRO inform the technician of the right to review the 

material it relied on to support the reasons for its action. The State must designate an oral reply 

official who can either make or recommend a decision, and must issue its decision on or before 

the effective date of the action. 

NOTE: In accordance with TPR 715, the Adjutant General has the inherent authority to furlough 

any or all of its technicians if there are legitimate reasons. If the State is furloughing some, but 

not all technicians in a competitive level, the notice of proposal must state the reasons for the 

furlough. States who anticipate furloughing some, but not all technicians, should ensure the 

accuracy of established competitive levels in order to meet the obligations under this guidance.

The term competitive level refers to positions at the same grade level and classification series, 

the duties of which are interchangeable. Where bargaining unit technicians are concerned, 

additional procedural rights may be provided by their negotiated agreement. 
19-Apr-13 Page 27

11. What procedures and appeal rights are applicable for probationers, technicians under 

temporary appointments, technicians in the Excepted Service with less than 2 years of 

continuous service, and others not covered by 5 U.S.C. Chapter 75 but also affected by an

administrative furlough?

There are no mandatory procedures. However, States should ensure that all administrative 

procedures required by negotiated agreements or internal personnel policies are followed, subject 

to any exceptions to those procedures that would apply in the event of an administrative 

furlough. Any request to review/appeal a furlough is limited to the Adjutant General. (Note: 

VRA appointments are initially made as two year excepted appointments followed by 

noncompetitive conversion to a competitive appointment.)

12. How should the decision letter for an administrative furlough be framed if the State

has not set a specific number of furlough days? 

While it is desirable, whenever possible, to inform the affected technician of a specific number 

of furlough days in the decision letter, the State only needs to set out the maximum time that may 

be involved, so that the technician has as much information as possible. 

P. Furlough Procedures - More Than 22 workdays

(Extended Furlough)

1. When is the Adjutant General required to use reduction in force (RIF) procedures to 

administratively furlough technicians? 

The Adjutant General must follow RIF procedures for an extended furlough of more than 30 

continuous calendar days, or of more than 22 discontinuous workdays. (NOTE: a furlough is a 

temporary placement in a non-pay/non-duty status. It is not a permanent separation from 

service). 

2. Is there a maximum period a technician may be administratively furloughed for an 

extended period? 

Yes. A technician may be placed on an extended furlough only when the State plans to recall the 

technician to his/her position within 1 year. The furlough may not exceed 1 year. 

3. If the State needs to administratively furlough a technician for more than 30 calendar 

days (or more than 22 workdays) must all RIF procedures be followed? 

Yes. The RIF procedures in TPR 351 must be followed, and include a minimum lead time of 

60 days for a specific written notice of the furlough action. The only exception to the regular 

procedures involves assignment rights referenced in Question 4.

4. When does a technician, who is reached for an extended furlough action during an 

administrative furlough, have a right of assignment to another position? 

A technician reached for release from the competitive level, because of an extended furlough,

has assignment rights to other positions on the same basis as a technician reached for release as a 

result of other RIF actions (e.g., separation or downgrading). 
19-Apr-13 Page 28

Because of the requirement in TPR 351 that assignment rights apply only to positions lasting at 

least 3 months, a technician reached for an extended continuous furlough does not have 

assignment rights to a position held by another technician who is not affected by the furlough,

unless the furlough extends for 90 or more consecutive days. A technician reached for a 

discontinuous extended furlough action does not have assignment rights to another position. 

The undue interruption standard could apply to an extended furlough over 90 consecutive days. 

As defined in TPR 351, “undue interruption” essentially means that a higher-standing technician,

who is otherwise qualified for the assignment, may exercise the assignment right only if the 

technician is able to perform the work of the position of the lower standing technician within 90 

days of the assignment. In such cases, the State must consider whether undue interruption would 

result from both (1) the displacement of a lower-standing technician from the competitive level 

affected by the furlough, and (2) the recall of both technicians to their official positions at the 

end of the furlough period. 

5. Are there any other situations in which a TAG may restrict a technician’s assignment 

rights in an administrative furlough situation? 

The TAG may make a temporary exception to the order of release and assignment rights to keep 

the incumbent in his/her position for 90 days or less after the commencement of the furlough,

when needed to continue an activity without undue interruption. (See TPR 351 for additional 

reasons that a temporary exception may be used.)

The TAG may make a continuing exception to the order of release and assignment rights to keep 

the incumbent in a position that no higher standing technician can take over within 90 days and 

without undue interruption to the activity. 

6. What action is taken if a technician refuses an offer of assignment during an 

administrative furlough? 

The technician is furloughed from his/her position. 

7. If a technician “bumps” to a different job as a result of an administrative furlough, is 

the technician temporarily assigned to that job?

No. The technician becomes the incumbent of that job even though the furlough anticipates the 

technician’s eventual recall to his/her former job. 

8. If circumstances change and the State is unable to recall an administratively furloughed 

technician at the point specified in the technician’s extended furlough notice, what 

additional action is required? 

In this situation, the State must issue the technician a new notice of an extended furlough or 

proposed RIF separation, as the situation requires. This new action must meet all the 

requirements in TPR 351 (e.g., 60 day advance notice). 

9. Do these requirements also apply if the State finds that it can recall a technician before 

he/she has reached the administrative furlough limits specified in the notice? 

No. 
19-Apr-13 Page 29

10. What happens to a temporary technician serving under an appointment limited to 1 

year or less in extended administrative furlough situations? 

The State may not retain a temporary technician in pay status to furlough a permanent technician

in the same competitive level. The temporary technician is either separated or furloughed in 

such situations, and is not entitled to the protections of adverse actions or RIF procedures when 

this occurs. As a matter of good human resources management, the State should try to give the 

temporary technician as much advance written notice as possible. 

Time spent in furlough status by a temporary technician counts the same as time in a pay status 

toward the appointment’s not-to-exceed date and the 2 year limit on the overall service specified 

in 5 CFR 316.401(c). 

11. What notice must the State provide to a technician of an extended administrative 

furlough action? 

The State must give the technician a minimum 60 day specific written notice before the effective 

date of any action, including furlough. The same notice requirements are applicable to both a 

continuous and a discontinuous furlough. 

12. What option is available if the State is unable to provide a technician with the 

minimum required notice of an extended administrative furlough?

When the action is caused by unforeseeable circumstance, the State may request that NGB

authorize a notice period of less than 60 days. However, the State must still provide each 

technician with a minimum of 30 calendar days written notice of the action.

13. Is the State required (or permitted) to register technicians administratively furloughed 

in the DoD’s Reemployment Priority List, or is the technician eligible for priority 

consideration under placement programs such as the DoD Priority Placement Program or 

the Interagency Career Transition Assistance Program? 

No. These programs are only available to technicians who are separated. These programs are 

not available to technicians who are furloughed. 

14. What if the State plans for and gives notice of an administrative furlough of 22

workdays or less, but then finds it needs to extend this furlough time beyond 22 workdays

in order to meet budget requirements? Must the agency use TPR 351 furlough procedures 

when it extends the furlough beyond 22 workdays?

If the State’s initial assessment resulted in a furlough of 22 workdays or less, OPM recommends 

that the State complete that furlough effected under TPR 715 procedures and issue new furlough 

notices under either TPR 715 or TPR 351, as appropriate, in the event it determines that 

additional savings are necessary. 
19-Apr-13 Page 30

Q. Labor Management Relations Implications 

1. When the State is required to effect an administrative furlough, what is the State’s

obligation to bargain? 

The decision to furlough technicians, and determination of those activities exempt from 

furlough, are management rights that are not subject to bargaining. See 5 U.S.C. 7106(a). 

When the State determines that an administrative furlough is necessary, the TAG is required to 

notify the exclusive representatives and, upon request, bargain over any negotiable impact and 

implementation proposals the labor organization may submit; unless the matter of furlough is 

already “covered by” a collective bargaining agreement. 

The TAG should be aware that collective bargaining agreements may also contain provisions 

with respect to the time frame within which to provide the labor organization a notice of a 

change in conditions of employment. It is advisable to check the individual labor agreement for 

applicable notice provisions and to comply with those provisions. 

State contracts may also contain provisions regarding “adverse actions” and “reduction- inforce” (RIF) whereby States must comply in giving notice to bargaining unit technicians of 

pending furloughs. It is advisable to check the State’s individual labor agreements for applicable 

“adverse action” and “reduction in force” notice provisions, and to comply with those provisions. 

In the event that States are required to absorb unexpected substantial budget cuts during a short 

term continuing resolution, or because of the limited time remaining in the fiscal year to absorb 

these unexpected budget cuts, States might be required to furlough without delay because the 

cuts must be absorbed during the term of the continuing resolution or remainder of the fiscal year 

and cannot be deferred until later in the year or into a new budget year. In this event, the written 

notice of furlough, to individual technicians, and the opportunity to be heard are not required 

because of unforeseeable circumstances. Unforeseeable circumstances could include unexpected 

cuts by the Congress to an agency’s budget late in the fiscal year. The statutory requirement 

that agencies provide appropriate notice to labor organizations of changes in conditions of 

employment, however, still applies.

2. May the State effect an administrative furlough for technicians in a bargaining unit 

before negotiations are completed? 

If the parties bargain to impasse and the labor organization does not invoke the services of the 

Service Impasses Panel in a timely manner, the State may furlough technicians without further 

delay provided the State HRO gives the labor organization adequate notice of its intent to 

implement its last bargaining offer on a specific date. If the labor organization invokes the 

services of the Service Impasses Panel by that date, the State may not furlough technicians unless 

it can show it is necessary to do so without further delay. 

States required to absorb substantial budget cuts during a short term continuing resolution, or 

because of the limited time remaining in the fiscal year to absorb those cuts, might be required to 

furlough without further delay because the budget cuts must be absorbed during the term of the

continuing resolution or the current fiscal year and cannot be deferred until later in the year or 

into a new budget year. However, in the case of cuts that can be absorbed over the course of the 

fiscal year, it would be difficult to demonstrate that a furlough could not be delayed pending 
19-Apr-13 Page 31

resolution of the bargaining impasses. If bargaining is not completed and the State must

furlough technicians, the State should continue to bargain and, if possible, implement any 

agreement retroactively. NGB advises that all attempts should be made to complete the 

collective bargaining process first, if possible.

3. While no decision has been made to administratively furlough technicians, the labor 

organization has submitted a midterm bargaining request on furlough procedures 

regarding any possible future administrative furlough. A State’s collective bargaining 

agreement is silent on furlough procedures and the labor organization is invoking its right 

to initiate mid-term bargaining on matters not covered by the agreement. Does a State 

have an obligation to bargain when no decision has been made to furlough technicians? 

Even though no decision has been made to furlough technicians, it is possible that the State has a 

duty to bargain regarding the labor organization initiated mid-term bargaining request; assuming 

the matter is not already covered by the State collective bargaining agreement. The law requires 

a State bargain during the term of a collective bargaining agreement on negotiable union initiated 

proposals concerning matters that are not expressly contained in, or otherwise covered by, the 

collective bargaining agreement, unless the labor organization has waived its right to bargain 

about the subject matter involved. With this in mind, the State will have to evaluate the 

circumstances of the situation to determine whether or not there is a duty to bargain on furlough 

procedures. 

4. Along with a bargaining request on furloughs, the labor organization has submitted an 

information request under 5 U.S.C. 7114 seeking information, such as the State

administrative furlough plan and a list of technicians expected to be furloughed, and 

whether or not the furloughs are planned to be continuous or discontinuous. Does the State 

have to provide this information? 

It depends. The State is required to provide data that is normally maintained, reasonably 

available, and necessary to perform the representational duties of a labor organization. A labor 

organization who is requesting information must establish a particular need for the information 

by articulating, with specificity, why it needs the requested information, including how the labor 

organization will use this information and the connection between the use of this information and 

the labor organization’s representational responsibilities under statute. The labor organization 

must establish that the requested information is required in order for it to adequately represent its 

members. A State denying a request for information must assert and establish any countervailing 

anti-disclosure interests. The State may not satisfy its burden by making conclusory or bare 

assertions; its burden extends beyond simply saying “no.” With this in mind, the State must 

evaluate the circumstances of the situation to determine whether to provide the requested 

information. 

5. If a bargaining unit technician decides to challenge a discontinuous administrative 

furlough, what is the time frame for the technician to file a grievance under the negotiated 

grievance procedure (NGP)?

The time limits and other procedures applicable to bargaining unit technicians are spelled out in 

applicable provisions of the State’s negotiated collective bargaining agreements. 
19-Apr-13 Page 32

6. May a manager or supervisor have a meeting with technicians in a bargaining unit to 

discuss an administrative furlough without a union representative present?

The law grants a union the right to be represented at certain meetings between managers and one 

or more bargaining unit technicians if the meeting concerns issues such as personnel policies or 

practices or other general conditions of employment. Under the law, this meeting is referred to as 

a ―formal discussion.‖ With this in mind; you will have to evaluate the circumstances of your 

situation to determine whether the meeting constitutes a formal discussion. If you have 

determined the meeting is a formal discussion, advance notice of the meeting must be provided 

to the union. See 5 U.S.C. 7114(a) (2) (A).

7. Are technicians who serve as union representatives on 100% official time subject

to the furlough?

Yes. Unless technicians who have been granted 100% official time to represent the union

are otherwise exempted from the furlough, they must be furloughed and will have no

entitlement to official time during the furlough period.

8. Will written agreements with the union on furloughs be subject to Agency Head 

Review?

Yes. Any agreement reached with a local union that is documented in writing is subject to 

agency head review per 5 U.S.C. 7114 (c) (1). However, DCPAS is not normally reviewing 

furlough agreements at this time. If a State desires a review, the agreement should be sent to the 

NGB, Technician Personnel Division, Labor Relations Branch.

9. A union has proposed that management rotate the designation of “excepted from the 

furlough” among technicians who are equally qualified. This minimizes the impact on all 

technicians, especially if Congress does not provide pay for those furloughed. Is this 

negotiable? 

Yes. Management retains the right to determine which duties and responsibilities must be 

performed during the furlough and which technicians are qualified to perform such duties and 

responsibilities. How these technicians are selected from among those that are qualified, 

however, is negotiable. While the excepted designation is not negotiable, once it has been 

determined which positions are excepted, the determination of which among equally qualified 

technicians should be designated excepted is negotiable.

10. If rotation of the excepted designation is negotiable, do the parties have to agree? The 

burden on management for processing so many actions would be great. 

No. The parties must deal in good faith with each other, either in partnership or through 

collective bargaining. They are not required in either approach to reach agreement. Where 

agreement cannot be reached, the services of a neutral third party may be used. If the parties 

have not reached agreement before the furlough, then management has no choice but to proceed 

by implementing its last offer. Management should, to the maximum extent possible, continue to 

negotiate with the union during implementation. Management must be prepared to show that the 

requirement to rotate employees would impose an undue burden on the State.
19-Apr-13 Page 33

R. Federal Employees Health Benefits (FEHB) Program 

1. If a technician is furloughed, does their FEHB coverage continue or terminate? 

Yes, the technician’s FEHB coverage will continue if the technician’s salary is sufficient to pay 

the premiums. If pay becomes insufficient to cover premiums, a technician that has FEHB 

coverage and participates in premium conversion (paying his or her share of FEHB premiums on 

a pre-tax basis) has several options available. If the furlough results in pay for a regular pay 

period to be insufficient for the technician’s employing office to withhold the technician’s share 

of premium from that pay (after the agency applies all deductions in accordance with the 

required order of precedence, see Question E.1.), the HRO must notify the technician and give 

the technician an opportunity to elect to either continue or terminate FEHB coverage. If the 

technician does not respond to this notice within the time for response, the HRO will terminate 

the FEHB coverage. In some instances, a technician may cancel FEHB coverage. See Questions 

R.7., R.8., and R.9. for more information. 

2. Can a technician terminate FEHB coverage because he/she thinks it’s not affordable? 

No, the technician’s view of his/her ability to afford FEHB coverage is not a basis for 

terminating coverage. However, if the technician has insufficient pay to cover the technician’s 

share of the premium (as explained in Question R.1.), the technician may choose to terminate 

coverage. 

3. How can a technician continue FEHB coverage if his or her pay is not enough to cover 

the premium? 

If a technician elects to continue FEHB coverage, the technician may directly pay the DFAS to 

keep premiums current, or the technician may incur a debt that the DFAS will recover when the 

technician’s pay becomes sufficient to cover the premium. 

4. What happens if FEHB coverage terminates for insufficient pay during furlough? 

If a technician elects to terminate FEHB coverage, or if the technician does not respond to the 

election notice, the coverage will end retroactive to the last day of the last pay period in which 

the premium was withheld from pay. The technician and any covered family members are 

entitled to a 31-day temporary extension of coverage which commences retroactively to the day 

after the coverage ended. The technician will also have the right to convert to an individual 

contract for health benefits. 

5. If a technician’s coverage terminates, can the technician re-enroll once pay returns to a 

level that covers the technician’s share of the FEHB premium? 

Yes. A technician may re-enroll in FEHB upon returning to sufficient pay status and does not 

have to wait for an open season to re-enroll. The technician must reenroll within 60 days of 

becoming eligible as a result of renewed sufficient pay. Otherwise, the technician will be 

required to wait for an open season or a Qualifying Life Event (QLE) that allows for enrollment 

outside of open season.
19-Apr-13 Page 34

6. How will the technician’s termination affect his or her 5-year participation for purposes?

of continuing FEHB after retirement? 

For purposes of meeting the 5-year participation requirement, counting of the time the technician 

is covered under FEHB will stop when the technician’s enrollment terminates and resume upon 

re-enrollment provided the technician reenrolls within 60 days of becoming eligible as a result of 

renewed sufficient pay. In other words, the technician does not start a new 5-year participation 

period in this circumstance. However, the period of time in which the technician is not covered 

due to insufficient pay will be considered a period of ineligibility for FEHB, and will not be held 

against the technician for purposes of meeting the 5-year continuous coverage requirement. A 

technician who does not re-enroll within 60 days but postpones re-enrollment until the next open 

season must begin a new 5-year participation period for purposes of continuing FEHB coverage 

into retirement. 

7. Can a technician who participates in premium conversion (paying his or her share of 

FEHB premiums on a pre-tax basis) just cancel FEHB coverage if the technician is 

furloughed? 

No. For technicians participating in premium conversion (paying his or her share of FEHB 

premiums on a pre-tax basis), an administrative furlough is not a Qualifying Life Event (QLE) 

that would allow a cancellation. If the administrative furlough causes a technician’s pay for a 

pay period to become insufficient for the HRO to withhold his or her share of the FEHB 

premium for that pay period, the HRO must give the technician an opportunity to elect to 

continue his or her FEHB and incur a debt or to terminate enrollment. The HRO will terminate 

FEHB coverage if no response is timely received. This termination, either by election or by 

default, is not a cancellation for FEHB purposes. 

8. What options are available to a technician who does not participate in premium

conversion (therefore, paying his or her share of FEHB premiums after taxes) and gets 

furloughed? 

A technician who specifically waived premium conversion (therefore, paying their share of 

FEHB premiums after taxes), and whose pay for a pay period is insufficient to cover the 

technician’s share of premium, will be offered the same choices available to a technician covered 

by Question R.7. However, unlike a technician who participates in premium conversion, he or 

she may cancel FEHB coverage at any time. He or she does not need a QLE.

9. If a technician cancels his or her FEHB enrollment, will the technician forfeit rights to 

31-day temporary extension, Temporary Continuation of Coverage and conversion to an

individual policy, coverage while receiving workers’ compensation, continuation into 

retirement and coverage for survivors? 

A technician who elects to cancel coverage should be made fully aware that if coverage is 

cancelled: 

(1) the technician and all eligible family members do not get a 31-day temporary extension of 

coverage upon cancellation, and the technician may not reenroll in FEHB until he or she has 

another QLE that permits enrollment, or the next FEHB Open Season, even upon transfer to 

another Federal agency; 
19-Apr-13 Page 35

(2) if the technician separates from employment without reenrolling before separation, he or 

she will not be eligible to purchase temporary continuation of coverage (TCC) or an 

individual conversion policy; 

(3) if the technician is injured and receives benefits from the Office of Workers’ 

Compensation Programs (OWCP) during the time coverage is cancelled, the technician will 

not have an FEHB enrollment to continue during the period of OWCP coverage; 

(4) if the technician retires while coverage is cancelled, the technician will not have a FEHB 

enrollment to continue into retirement. Moreover, even if the technician while still employed 

reenrolls in FEHB on account of a QLE or at FEHB Open Season, the period of cancellation 

is considered a break in FEHB coverage that may preclude his or her ability to continue 

FEHB coverage into retirement; 

(5) if a technician dies while coverage is cancelled, there will be no self and family 

enrollment for survivors to continue, even if they are eligible for a survivor annuity. 

10. Can a technician make an enrollment change because the technician is under an 

administrative furlough? 

No. An administrative furlough is not a QLE that would permit a technician to change his or her

FEHB plan or option. A technician who participates in premium conversion (paying his or her 

share of FEHB premiums on a pre-tax basis) may not change to a self only enrollment. 

Note that a technician who waived premium conversion (therefore, paying his or her share of 

FEHB premiums after taxes) may change to self only at any time. However, the technician 

should be aware that this will deprive his or her covered family members of FEHB coverage and 

the technician cannot change back to self and family until the technician has a QLE or the next 

FEHB Open Season. In the event of the technician’s death, there will be no FEHB enrollment for 

surviving family members to continue, even if they are eligible for a survivor annuity.

11. Will full-time technicians receive a lower, pro-rated Government share of FEHB 

premiums if their hours are reduced under an administrative furlough? 

No. FEHB law (title 5, U.S. Code, section 8906(b) (3)) requires the Government contribution 

toward FEHB premiums to be prorated (thus a larger technician share) for part-time career 

technicians, i.e. technicians with a documented regularly scheduled workweek of 16-32 hours 

per week. An administrative furlough does not change a technician’s regular work schedule, e.g., 

from full-time to part-time. Thus, as long as a full-time technician does not change to part-time 

career employment, the technician remains entitled to a full Government contribution and the 

proration does not apply even if the number of hours per pay period is reduced during the 

furlough to within 16-32 hours per week. 

12. Will part-time technicians receive a lower prorated Government share of the FEHB? 

premiums if their hours are reduced under an administrative furlough? 

No. The Government contribution toward the FEHB premium for a technician working part-time 

is prorated based on the technician’s regular work schedule. A technician’s Notification of 

Personnel Action (SF 50) documents the technician’s work schedule and number of part-time 

hours the technician is scheduled to work per pay period (blocks 32 and 33). This part-time 
19-Apr-13 Page 36

schedule should be the part-time schedule established for leave usage purposes (i.e., the schedule 

from which leave is charged for absences). A furlough action will place the technician in a nonduty/non-pay status during an otherwise scheduled workday, but it does not change the 

technician’s regular work schedule. Therefore, the Government’s prorated share of FEHB 

premium will not decrease. 

Note: Additional Sources of Information 

A list of QLEs for the FEHB Program may be obtained at 

http://www.opm.gov/forms/pdf_fill/sf2809.pdf. 

OPM’s FEHB webpage on Leave Without Pay and Insufficient Pay Status may be found at 

http://www.opm.gov/healthcare-insurance/healthcare/reference-materials/reference/leavewithout-pay-status-and-insufficient-pay.
 Notice of Proposed Furlough

19-Apr-13 Page 37

SAMPLE NOTICE 1—NOTICE OF PROPOSED FURLOUGH 

1. This memorandum notifies you that the [State name] National Guard proposes to 

furlough you no earlier than 30 days from receipt of this notice. This furlough is being 

proposed in accordance with Technician Personnel Regulation (TPR) 715, Voluntary and 

Non-Disciplinary Actions. This administrative furlough is necessitated by the 

extraordinary and serious budgetary challenges facing the Department of Defense (DoD) 

for the remainder of Fiscal Year (FY) 2013, the most serious of which is the sequester 

that began on March 1, 2013. The Budget Control Act of 2011, as amended by the 

American Taxpayer Relief Act of 2012, makes across-the-board reductions to budgetary 

resources for the Federal government. In addition, the DoD must and will protect wartime 

operations funding for our troops in harm's way. This inevitably means larger cuts in 

base-budget funding for the Operation and Maintenance (O&M) accounts. Thus, the DoD 

will need funding in other accounts that can be used to provide the warfighters with what 

they need to protect national security and fight the war. This furlough is proposed to help 

meet their need while avoiding a deficit of funds in FY 2013.

2. If other technicians in your competitive level (i.e., generally, positions at the same grade 

level and classification series, the duties of which are generally interchangeable) are not 

being furloughed or are being furloughed for a different number of days/hours, it is 

because they (1) are currently in a non-pay status; (2) are on an assignment not otherwise 

causing an expenditure of funds to the agency; or (3) are in a position whose duties have 

been determined to be of crucial importance to this State’s military mission and 

responsibilities and cannot be curtailed. [This paragraph may be changed only based 

upon approved Component management plan.]

3. We plan to apply the following procedures and conditions related to the furlough: [Items 

1, 2, 3, and 4 of this section may need to be modified based on the results of collective 

bargaining]

4. The furlough will be on discontinuous (intermittent) days, unless the needs of the state 

military mission require otherwise, and beginning [date] through approximately [date]. 

Full-time technicians will be furloughed no more than 14 workdays or 112 hours. If you 

are a part-time technician, your furlough time off will be prorated, based on your work 

schedule.

5. Due to the uncertain and potentially fluctuating amount of funding which may be 

available to this State, the number of hours per pay period required for the furlough may 

vary. Accordingly, if the decision is made to furlough, you will be advised in advance of 

each pay period of the number of furlough hours required to allow financial obligations 

of the DoD to be met. Generally, you will not be furloughed for more than 16 [this 

number may change based on when the furlough is implemented] hours for each pay 

period between [date] and [date].

6. Based upon mission and workload considerations and subject to management approval, 

you may request a specific schedule for furlough.
19-Apr-13 Page 38

7. Annual, sick, court, military leave, or leave without pay which has been approved for a 

day which is later designated as a furlough day will be recorded as a furlough and you 

will be placed in a non-pay status for the day. However, when you receive the notice of 

your furlough dates, you may request that the furlough time off be rescheduled, as 

provided in paragraph 3 above, if you wish to use leave as approved.

8. At this time, we do not reasonably anticipate the need for furlough beyond 14 workdays 

(112 hours). However, should additional furlough days/hours become necessary, 

technicians will be given another notice. We recognize the difficult personal financial 

implications of any furlough, no matter how limited its length. We will make every effort 

to keep you informed as additional information regarding the agency funding level 

becomes available. If you have questions, contact [contact name, phone number, and 

email address].

9. You will be allowed seven calendar days from receipt of this letter to respond in 

accordance with TPR 715. You may requests review of your furlough action by 

submitting your objections to the Human Resource Officer (HRO). The Adjutant General 

(TAG) will take whatever action he/she deems appropriate to thoroughly review your 

objections along with management's need for the furlough. To review the supporting 

materials, please contact the appropriate individuals listed below: [This paragraph may 

be modified as needed to fit Component requirements.]

10. [Contact names, phone numbers, and email addresses]

11. Your written reply should be mailed to the HRO [name and title], [address] or may be 

delivered to [address/room number].

12. A final decision will be issued by TAG as soon as possible after the seven days allowed 

for your reply has elapsed.

13. No decision to furlough you has been made or will be made until full consideration is 

given to your reply.

_______________________ ___________

Human Resource Officer Date

I acknowledge receipt of this notice.

_______________________ ___________

Technician’s Signature Date
 Notice of Decision to Furlough-Modified decision base upon reply

19-Apr-13 Page 39

SAMPLE NOTICE 2—NOTICE OF DECISION TO FURLOUGH (TPR 715)

1. By written notice of [date], you were notified of a proposal to furlough you pursuant to 

the procedures in TPR 715, Voluntary and Non-Disciplinary Actions.

2. I have determined that the reasons for the proposed furlough, as stated in the notice of the 

proposal, remain valid. The procedures and conditions related to the furlough as proposed 

have been determined to be the most equitable means of implementing the furlough. 

Therefore, you will be required to be on a discontinuous furlough during the period 

beginning [date] through [date].

3. In accordance with the procedures and conditions outlined in the notice of proposal dated 

[insert date], you will be furloughed for no more than [number] hours in each of the pay 

periods or parts thereof, between [date] and [date]. The maximum furlough time for fulltime technicians will be no more than 14 discontinuous workdays, for a maximum of 114

hours. For full-time technicians, this maximum is based on a regular work schedule of 80 

hours per pay period. A part-time technician’s number of hours required for furlough is 

prorated according to the specific work schedule.

4. Your supervisor will inform you of the amount of furlough time required prior to each 

pay period. Please contact your supervisor if you have any questions concerning the 

scheduling of your furlough days.

5. When you are on furlough, you will be in a non-pay, non-duty status. Also, during any 

furlough period, you will not be permitted to serve as an unpaid volunteer, must remain 

away from your workplace, and are prohibited from performing any work-related duties 

during that time.

6. In accordance with 32 U.S.C. § 709(f) (4), there is no right of appeal beyond the adjutant 

general.

7. We recognize the difficult financial implications of any furlough, no matter how limited 

its length. We will make every effort to keep you informed as additional information 

regarding the agency funding level becomes available. If you have questions, contact 

[contact name, phone number, and email address].

_______________________ ___________

Adjutant General Date

I acknowledge receipt of this decision.

_______________________ ___________

Technician’s Signature Date
 Notice of Decision to Furlough –no Reply Required

19-Apr-13 Page 40

SAMPLE NOTICE 3— NOTICE OF DECISION TO FURLOUGH

1. By written notice of [date], you were notified of a proposal to furlough you pursuant to 

the procedures in TPR 715, Voluntary and Non-Disciplinary Actions.

2. Your reply(ies) received in response to that proposal notice have been reviewed and 

carefully considered. I have determined that the reasons for the proposed furlough, as 

stated in the notice of the proposal, remain valid. The procedures and conditions related 

to the furlough as proposed have been determined to be the most equitable means of 

implementing the furlough. Therefore, you will be required to be on a discontinuous 

furlough during the period beginning [date] through [date].

3. In accordance with the procedures and conditions outlined in the notice of proposal dated 

[insert date], you will be furloughed for no more than [number] hours in each of the pay 

periods or parts thereof, between [date] and [date]. The maximum furlough time for fulltime technicians will be no more than 14 discontinuous workdays, for a maximum of 112 

hours. For full-time technicians, this maximum is based on a regular work schedule of 80 

hours per pay period. A part-time technician’s number of hours required for furlough is 

prorated according to the specific work schedule.

4. Your supervisor will inform you of the amount of furlough time required prior to each 

pay period. Please contact your supervisor if you have any questions concerning the 

scheduling of your furlough days.

5. When you are on furlough, you will be in a non-pay, non-duty status. Also, during any 

furlough period, you will not be permitted to serve as an unpaid volunteer, must remain 

away from your workplace, and are prohibited from performing any work-related duties 

during that time.

6. In accordance with 32 U.S.C. § 709(f)(4), there is no right of appeal beyond the adjutant 

general.

7. We recognize the difficult financial implications of any furlough, no matter how limited 

its length. We will make every effort to keep you informed as additional information 

regarding the agency funding level becomes available. If you have questions, contact 

[contact name, phone number, and email address].

_______________________ ___________

Adjutant General Date

I acknowledge receipt of this decision.

_______________________ ___________

Technician’s Signature Date
 Notice of Decision to Furlough – with Reply

19-Apr-13 Page 41

SAMPLE NOTICE 4—NOTICE OF DECISION TO FURLOUGH

1. By written notice of [date], you were notified of a proposal to furlough you pursuant to 

the procedures in TPR 715, Voluntary and Non-Disciplinary Actions.

2. Your reply(ies) received in response to that proposal notice have been reviewed and 

carefully considered. While I have determined that the reasons for the proposed furlough, 

as stated in the notice of the proposal, remain valid, I have decided to mitigate your 

furlough as follows. 

3. [This paragraph may be modified to properly reflect relief granted.] You will be 

required to be on a discontinuous furlough during the period beginning [date] through 

[date]. You will be furloughed for no more than [number] hours in each of the pay 

periods or parts thereof, between [date] and [date]. The maximum furlough time for fulltime technicians will be no more than 14 discontinuous workdays, for a maximum of 112 

hours. For full-time technicians, this maximum is based on a regular work schedule of 80 

hours per pay period. A part-time technician’s number of hours required for furlough is 

prorated according to the specific work schedule.

4. [This paragraph may be modified to properly reflect relief granted.] Your supervisor 

will inform you of the amount of furlough time required prior to each pay period. Please 

contact your supervisor if you have any questions concerning the scheduling of your 

furlough days.

5. When you are on furlough, you will be in a non-pay, non-duty status. Also, during any

furlough period, you will not be permitted to serve as an unpaid volunteer, must remain 

away from your workplace, and are prohibited from performing any work-related duties 

during that time.

6. In accordance with 32 U.S.C. § 709(f)(4), there is no right of appeal beyond the adjutant 

general.

7. We recognize the difficult financial implications of any furlough, no matter how limited 

its length. We will make every effort to keep you informed as additional information 

regarding the agency funding level becomes available. If you have questions, contact 

[contact name, phone number, and email address].

_______________________ ___________

Adjutant General Date

I acknowledge receipt of this decision.

_______________________ ___________

Technician’s Signature Date
 Notice of Union Official of Planned Technician Furlough

19-Apr-13 Page 42

SAMPLE NOTICE 5— NOTIFICATION TO UNION OFFICIAL OF PLANNED 

TECHNICIAN FURLOUGH 

[Note: This is the advance written notice required by collective bargaining agreements, when the 

State is planning an administrative furlough in order to absorb reductions in funding over a 

period of time. This sample has been written for the scenario where the State chooses to furlough 

on discontinuous days. States who choose to furlough on a continuous-day basis should amend 

the sample accordingly.] 

1. Under the Balanced Budget and Emergency Deficit Control Act of 1985, as amended 

by the Budget Control Act of 2011, across-the-board reductions are scheduled to take 

place March 1, 2013, unless legislation is enacted that avoids such reductions. If this 

happens, sequestration will reduce each agency’s budgetary resources in non-exempt 

accounts for the remainder of the fiscal year (which runs through September 30, 2013). 

2. If sequestration occurs, the Department of Defense and National Guard Bureau have 

directed the execution of technician furloughs not to exceed 14 discontinuous days. A 

furlough is the placing of a technician in a temporary non-duty, non-pay status because of 

lack of work, reduction/ lack of funds, or other non-disciplinary reasons. 

3. This letter serves as management’s advance notice of a possible furlough affecting 

bargaining unit technicians in the [state] National Guard. Our Human Resources Office 

personnel are reviewing furlough procedures outlined in our collective bargaining 

agreement(s). We invite a cooperative approach from your officers to help us all get 

through these challenging times. 

4. Questions or concerns regarding this correspondence may be addressed to [name of 

labor relations specialist], [state] Human Resources Office, [POC email and phone 

number]. 

Sincerely, 

Signature Block
 

19-Apr-13 Page 43

“Supporting those who are Always Ready...Always There”