For example, the guidance  instructed agencies to consider telework—also referred to as  telecommuting or flexiplace—as an option in their continuity  planning. Few Agencies Demonstrated That They Had Adequately Prepared to Use Telework in a COOP Event

Although more agencies reported plans for essential team members  to telework during a COOP event than in our 2004 survey, few  documented that they had made the necessary preparations to  effectively use telework during an emergency. While FPC 65 does  not require agencies to use telework during a COOP event, it does  state that they should consider the use of telework in their  continuity plans and procedures. The agencies that did plan to use telework in emergencies did not  consistently demonstrate that they were prepared to do so. We  previously identified steps agencies should take to effectively use  telework during an emergency. However, only one agency documented that it had notified its team  members that they were expected to telework during such an event. In March 2006, FEMA disseminated guidance to agencies regarding  the incorporation of pandemic influenza considerations into COOP  planning. It  suggests the use of telework during such an event. Earlier this month, after we briefed your staff, the White House  released an Implementation Plan in support of the National Strategy  for Pandemic Influenza. This plan calls on OPM to work with DHS  and other agencies to revise existing telework guidance and issue  new guidance on human capital planning and COOP. The plan  establishes an expectation that these actions will be completed  within 3 months. If the forthcoming guidance from DHS and other responsible  agencies does not require agencies to make the necessary  preparations for telework, agencies are unlikely to take all the steps  necessary to ensure that employees will be able to effectively use  telework to perform essential functions during any COOP event. In  addition, inadequate preparations could limit the ability of  nonessential employees to contribute to agency missions during  extended emergencies, including a pandemic influenza scenario. Although FEMA’s recent telework  guidance does not address the steps agencies should take to prepare  to use telework during an emergency event, new guidance on  telework and COOP is expected to be released later this year. Among other things, we recommended that  the Secretary of Homeland Security direct the FEMA Director to  establish a time line for developing, in consultation with OPM,  guidance on the steps that agencies should take to adequately  prepare for the use of telework during a COOP event. In commenting on a draft of the report, the Director of DHS’s  Liaison Office partially agreed with this recommendation and stated  that FEMA will coordinate with OPM in the development of a time  line for further telework guidance. In addition, he stated that both  FEMA and OPM have provided guidance on the use of telework. However, as stated in our report, present guidance does not address  the preparations agencies should make for using telework during  emergencies. With the release of the White House’s Implementation Plan  regarding pandemic influenza, a time line has now been established  for the issuance of revised guidance on telework; however, unless  the forthcoming guidance addresses the necessary preparations,  agencies may not be able to use telework effectively to ensure the  continuity of their essential functions.
Why GAO Did This Study

To ensure that essential government services are available in emergencies, federal agencies are required to develop continuity of operations (COOP) plans. The Federal Emergency Management Agency (FEMA), within the Department of Homeland Security (DHS), is responsible for providing guidance to agencies on developing such plans. Its guidance states that in their continuity planning, agencies should consider the use of telework--that is, work performed at an employee's home or at a work location other than a traditional office. The Office of Personnel Management (OPM) recently reported that 43 agencies have identified staff eligible to telework, and that more than 140,000 federal employees used telework in 2004. OPM also reported that many government operations can be carried out in emergencies using telework. For example, telework appears to be an effective strategy for responding to a pandemic--a global outbreak of disease that spreads easily from person to person and causes serious illness and death worldwide. In previous work, GAO identified steps that agencies should take to effectively use telework during an emergency. GAO was asked to testify on how agencies are addressing the use of telework in their continuity planning, which is among the topics discussed in a report being released today (GAO-06-713).

What GAO Found

Although agencies are not required to use telework in continuity planning, 9 of the 23 agencies surveyed reported plans for essential team members to telework during a COOP event, compared to 3 in GAO's previous survey. However, few documented that they made the necessary preparations to effectively use telework during such an event. For example, only 1 agency documented that it had communicated this expectation to its emergency team members. One reason for the low levels of preparations reported is that FEMA has not provided specific guidance on preparations needed to use telework during emergencies. Recently, FEMA disseminated guidance to agencies on incorporating pandemic influenza considerations into COOP planning. Although this guidance suggests the use of telework during such an event, it does not address the steps agencies should take when preparing to use telework during an emergency. Without specific guidance, agencies are unlikely to adequately prepare their telework capabilities for use during a COOP event. In addition, inadequate preparations could limit the ability of nonessential employees to contribute to agency missions during extended emergencies, including pandemic influenza. In its report released today, GAO recommends, among other things, that FEMA establish a time line for developing, in consultation with the OPM, guidance on preparations needed for using telework during a COOP event. In commenting on a draft of the report, DHS partially agreed with GAO's recommendation and stated that FEMA will coordinate with OPM in developing a time line for further telework guidance. DHS also stated that both FEMA and OPM have provided telework guidance. However, as GAO's report stated, present guidance does not address the preparations federal agencies should make for using telework during emergencies. On May 3 the White House announced the release of an Implementation Plan in support of the National Strategy for Pandemic Influenza. This plan calls on OPM to work with DHS and other agencies to revise existing telework guidance and issue new guidance on human capital planning and COOP. The plan establishes an expectation that these actions will be completed within 3 months. If the forthcoming guidance does not require agencies to make necessary preparations for telework, agencies are unlikely to take all the steps necessary to ensure that employees will be able to effectively use telework to perform essential functions in extended emergencies, such as a pandemic influenza.