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Document Profile Title: Telework Pilot Program in the Public Service (Guide)* Author/Information: Please direct enquiries to the responsible officers in departmental headquarters who, in turn, may direct questions to and seek advice and guidance from: Public Service Adjustment Human Resource Branch Treasury Board Secretariat Telephone: (613) 957-2678 Last Revision: January 1995 For Print Copy: Treasury Board Distribution Centre Telephone: (613) 995-2855 Catalogue No: BT43-95/1992 Alternative Formats: This publication is available in alternative formats. For information on other electronic versions, contact: Electronic Dissemination Unit Planning and Communications Directorate Treasury Board of Canada Secretariat Telephone: (613) 957-2421 * This document is protected by Crown copyright; permission is granted to copy and distribute it freely within the Canadian federal government and other levels of Canadian government only. TELEWORK PILOT PROGRAM IN THE PUBLIC SERVICE (GUIDE) ACKNOWLEDGEMENTS The telework pilot program represents over three years of research and consultation. It was developed in the Policies and Procedures Group of the Treasury Board Secretariat, under the direction of Rod Grainger, and under the project leadership of Bob Fortier. Others who made significant contributions and who were members of the project team at one time or another include Bernard Brodie, Lenore Bordeleau, Christina Enright, Tom Morry, Marie Conlin, Michael Vaughan, Eleanor Willing, and more recently, Corey Doering, who has worked full-time on the project. Our explorations into the subject of telework have given us the opportunity to be one of the Canadian pioneers in introducing this new concept. During the course of the project, many individuals contributed their time and effort, and without their assistance, it would have been impossible to adapt the concept of telework to the complex environment of the Public Service. Special appreciation is therefore given to the following individuals who worked on the project. It is very difficult to thank each and every individual who worked on the project, and apologies are given to anyone not mentioned. The departmental members of the Interdepartmental Work at Home Committee including Margaret Adams (Transport Canada), the late Benoit Duguay (Department of the Secretary of State of Canada), Bob Baser (Communications Canada), Janelle Sadler (Industry, Science and Technology Canada), Dan Weir (Employment and Immigration Canada), Jean Lafrance (Statistics Canada), Arto Keklikian (National Capital Commission), and last but certainly not least, a special thanks to Barbara Bova, with the help of Pierre Rondeau (both of Consumer and Corporate Affairs Canada), for providing enthusiastic support and knowledge to the project; the Public Service Bargaining Agent representatives who participated in the many meetings of the Telework Consultation Committee for their patience and many suggestions; subject matter experts from various departments including Revenue Canada Taxation for giving income tax advice, Department of Justice lawyers, particularly Bruce Mann and Nicole Jeffrey, for their excellent advice, and Labour Canada officers for their advice concerning Workers' Compensation; the many Treasury Board Secretariat officials, or former officials, who contributed valuable and professional advice to the policy development process: Pierce Sutherland, Ron Hunt, Ko Kwan, Craig Lee, Doug Powell, Jane Panet, Bob Douglas, Marcia Lalonde, Frances Fleming-Ross, Peter Barnes, Mary Lou Levisky, and Carol Silcoff; and individuals and organizations of the United States who gave us the benefit of their experience, particularly Gil Gordon, teleworking consultant from Gil Gordon Associates, for his excellent advice, which he provided without charge; the Telecommuting Advisory Council for their valuable research; and Dr. Wendell Joyce, who is the project leader of the U.S. government's telecommuting project in the Office of Personnel Management, for his advice and for sharing the details of his project with us. TABLE OF CONTENTS EXECUTIVE SUMMARY PART 1 - TELEWORK PILOT POLICY PART 2 - IMPLEMENTING TELEWORK 1. INTRODUCTION (A) Background (B) The Telework Project (1) Treasury Board/Departmental Team (2) Three-Year Pilot (3) Teleworking Situations Prior to September 1, 1992 (C) Definition of Telework (D) Why Telework? (E) For Whom Is Telework Appropriate? (F) Perceptions and Attitudes 2. GENERAL INFORMATION (A) Advantages of Telework (1) The Employer (2) Employees (3) Canadians in General (B) Disadvantages of Telework (1) The Employer (2) Employees (3) Canadians in General (C) Telework for Part or All of the Work Week (D) Productivity 3. SUITABILITY FOR TELEWORK (A) For What Jobs Is Telework Appropriate?.............. (B) Employees (C) The Manager or Supervisor 4. THE TELEWORKPLACE (A) For What Locations Is Telework Appropriate? (B) Satellite Office or Shared Facility Centre (C) Occupational Safety and Health 5. PRINCIPLES WHICH MUST APPLY TO EACH TELEWORK SITUATION (A) General (B) Discretion of Management (C) Description of the Telework Arrangement Document (D) Terminating or Modifying an Arrangement 6. TERMS AND CONDITIONS (A) Hours of Work (B) Overtime (C) Accessibility (D) Workers' compensation (E) Stand-by/Call-back/Reporting Pay (F) Isolated Post Allowance (G) Disability Insurance 7. TECHNICAL DETAILS (A) Types of Equipment (B) Who Provides the Equipment? (C) Maintenance of Equipment (D) Records 8. LEGAL/SECURITY/CONFLICT OF INTEREST ISSUES (A) Liabilities: Equipment and Personal (B) Conflict of Interest (C) Ethics (D) Zoning (E) Security Issues (F) Contracting Out (G) Employer-Employee Relationship 9. FINANCIAL ISSUES (A) Tax Implications (B) Equipment and Supplies (C) Insurance (D) Related Expenses (E) Mileage/Travel Costs (F) Net Cost 10. LABOUR-RELATIONS ISSUES (A) Consultation (B) Grievances (C) Bargaining (D) Strikes (E) Union Notices 11. RESPONSIBILITIES (A) Departments (B) Supervisors (C) Employees 12. TRAINING AND COUNSELLING 13. INTERFACE WITH OTHER POLICIES AND GOVERNMENT INITIATIVES 14. MONITORING AND EVALUATION 15. ENQUIRIES PART 3 - QUESTIONS AND ANSWERS EXECUTIVE SUMMARY Telework is the logical extension of alternative work patterns such as part-time work, the compressed work week, and flexible hours. All of these help workers living in an increasingly complex society to better balance the demands of the workplace with their own personal responsibilities. Telework is based on the belief that mature, responsible adults do not need constant close supervision in order to properly perform their work. Telework has already proven to be beneficial to employers, employees and society in general. The interest in telework is driven by many factors. Some of these factors are demographic, such as the increase in single parent and dual career households, a greater number of elderly people requiring care and the shrinking skilled labour market. Other factors are societal, such as the opportunity to involve persons with disabilities in the work force. Sociological factors are also a driving force. Telework can, for example, diminish crime by increasing the adult presence in suburban neighbourhoods during the daytime, relieve traffic congestion by reducing the number of commuters, and decrease pollution and reliance upon fossil fuels. Rapid advances in modern technology and the new power and affordability of computers now make this alternative working arrangement possible. In addition to outlining the Telework policy, this publication describes the locations suitable for telework and explains why "satellite offices" are, for now, excluded. It also describes the type of work and worker most suitable for the telework option. The perceptions and attitudes of workers, managers, and the general public are discussed, and the advantages of telework for the employer, the employee, and society at large are presented. There is a potential downside of telework, and considerable space is devoted to the issue of suitability: of the work assignment, of the employee, of the manager or supervisor, and of the potential telework work site. The telework initiative has been built around several key principles which are outlined in the Telework policy, and which the employer sees as vital to the successful introduction of telework in the Public Service. In short, for each case of telework, departments must ensure that: 1. it is operationally feasible; 2. it does not result in any loss of output; 3. it is voluntary; 4. it does not generate extra costs that cannot be recouped over a reasonable period of time; 5. it has been approved by management; 6. the employee is still subject to the terms and conditions of employment or the relevant collective agreement; and 7. a description of the telework arrangement signed by the supervisor has been given to the employee. Employee relations issues are central to making telework situations feasible. These include such issues as hours of work, eligibility for overtime, accessibility, stand-by, call-back and reporting pay, and workers' compensation for injuries sustained during work hours at the teleworkplace. This publication also addresses the technical side of telework, such as equipment supply, maintenance and repair, and proper record-keeping. It also attempts to steer employees and managers through the difficult areas of liability (both equipment and personal), conflict of interest, ethics, and security. Because each employee represents a unique situation, there are some issues (for example, taxation benefits, zoning requirements, and insurance) where only general guidance can be given and the involvement of professionals is suggested. Finally, this publication addresses the responsibilities of all participants in the telework situation: departments, managers, supervisors, and employees. It also suggests the training and/or counselling that should take place prior to the launching of any arrangement. It concludes with a questions-and-answers section designed to highlight some of the key issues outlined in the other two sections of this publication. PART 1 TELEWORK PILOT POLICY POLICY OBJECTIVE To allow employees to work at alternative locations, thereby achieving a better balance between their work and personal lives. POLICY STATEMENT The employer recognizes the opportunities that the telework option can present, and during the period covered by the pilot policy (September 1, 1992 - August 31, 1995), encourages departments to consider applying the concept where it is economically and operationally feasible to do so. APPLICATION This policy applies to the departments and agencies listed under Schedule 1, Part 1 of the Public Service Staff Relations Act. POLICY REQUIREMENTS 1. In a teleworking situation, the employee's official workplace (business address) is the place where the employee would work if there were no telework situation. Note: The teleworkplace is the other location where the employee is permitted to work. 2. The approval of each telework situation shall be made on a case-by-case basis and shall be at the discretion of management. Telework is not to be viewed as an employee right. 3. Prior to approving requests from employees to telework, whether for some or all of the regular work week, departments shall ensure that the following conditions apply: 3.1. each case must be operationally feasible. Having the work done at the teleworkplace must make sense from the point of view of the overall operation; 3.2. there must be no loss of output. Departments shall ensure that for each teleworker, the overall quality and quantity of work (reviewed in accordance with the Performance Review policy) does not diminish relative to that carried out in the official workplace; 3.3. having the work done at the teleworkplace must not cost more than having it done at the official workplace. Certain up-front costs are permissible, provided they can be recouped over a reasonable period. In summary, no telework situation shall be approved that would generate ongoing net additional costs; 3.4. no employee shall be required to telework, that is, employee participation in telework is to be voluntary. With reasonable notice by either party, a telework arrangement may be terminated at any time; 3.5. telework shall not affect the terms and conditions of employment of employees, nor the provisions of their relevant collective agreements. In addition, aspects such as existing policies and legislation still need to be respected; 3.6. details of the telework arrangement signed by the supervisor shall be given to each employee participating in a telework situation; 3.7. departments are to ensure that all existing telework situations established prior to the introduction of this three-year pilot meet all of the requirements of the telework policy; and 3.8. pending further review by the Treasury Board Secretariat, satellite offices are to be exempt from the requirements of the Telework policy. 4. Before approving requests, departments should provide employees with counselling and guidelines on what is involved in telework. Once requests are approved, both employees and their supervisors should be trained on the practical considerations of telework, where it is considered appropriate or necessary. 5. While the employer will provide the employee's supplies and equipment, employees are responsible for the costs of maintaining the teleworkplace (such as insurance, heat, and hydro). Each employee must also ensure: 5.1. that a telework arrangement does not violate municipal zoning regulations; 5.2. that the teleworkplace is adequately equipped from a safety and health point of view; and 5.3. that the environment of the teleworkplace is such that the employee will be able to respect the terms and conditions of employment, relevant collective agreements, legislation, and policies. 6. Employees shall use supplies and equipment belonging to the employer only for the purposes of carrying out the employer's work. 7. Departments shall encourage employees to consult their bargaining agent before undertaking a telework arrangement. Employees are to be encouraged to share the details of the arrangement with their bargaining agent. MONITORING Departments must maintain records indicating the number of employees who are teleworking, and be able to demonstrate that each teleworking arrangement complies with the conditions outlined in this policy. REFERENCES Performance Review policy Collective agreements Terms and conditions of employment Public Service Staff Relations Act Conflict of Interest and Post-Employment Code Security policy ENQUIRIES Enquiries about this policy should be directed to the responsible officers in departmental headquarters who, in turn, may direct questions to and seek advice and guidance from: Policies and Procedures Group General Personnel Policy Development and Compensation Division Personnel Policy Branch Treasury Board Secretariat PART 2 IMPLEMENTING TELEWORK 1. INTRODUCTION (A) Background The purpose of this part is to acquaint you with the practical considerations of a relatively new flexible work arrangement - telework. The concept of a flexible work arrangement is not new to the Public Service. In the past few years several types of flexible working arrangements have been proposed and adopted. These include: part-time employment, job sharing, compressed work week and, more recently, self- funded leave. Each of these initiatives is aimed at helping employees balance their work and personal responsibilities. As we approach the year 2000, it becomes increasingly important that the Public Service employ innovative strategies to meet the needs of a drastically changing work force. These changes are characterized by: an ageing work force and its changing expectations; an increase in the number of women entering and remaining in the paid work force; a transition in the traditional family structure; and the potential labour shortage as a result of the "baby bust". Clearly, the Public Service must become as competitive as possible in its recruitment and retention efforts. Attractive working arrangements which can be adapted to suit the individual needs of possible candidates will be of significant value in promoting the Public Service as a comparatively attractive employer, thereby securing its share of the most skilled recruits, while retaining the services of those who are already employees. The idea of employees' teleworking is not a new concept. Telework has been practised for several decades in occupations such as sales, consulting, accounting, and journalism. Significant numbers of employers in both the public and private sectors throughout North America and elsewhere have instituted telework policies for their traditional office workers. For example, the U.S. government has implemented "Flexiplace" as an alternative work arrangement for federal Civil Service employees. There are a number of driving forces promoting the advancement of telework as a feasible alternative work arrangement. Some of these include advances in and affordability of computer and telecommunications equipment, a need for new employment opportunities for persons with disabilities, new lifestyles and flexible work environments, an increase in single parent and dual career households, an ageing North American work force, and concerns about air quality, traffic congestion, and energy conservation. (B) The Telework Project (1) Treasury Board/Departmental Team The Policies and Procedures Group in the Personnel Policy Branch of the Treasury Board Secretariat (TBS) was given the responsibility of exploring the feasibility of having employees telework, with the objective of drafting a Telework policy for the federal Public Service. To achieve this objective, an interdepartmental working group was established in August 1990. It comprised representatives from several departments as well as TBS experts from areas such as staff relations, communications, administration and law. As part of the process, views were sought from departments and other employers, as well as from bargaining agents. (2) Three-Year Pilot Telework is expected to have a significant impact on management, employees and the way work is completed in the Public Service. Because this initiative is a relatively new concept for the Public Service and there is a great deal to be learned, the policy is being implemented as a three-year pilot project with an evaluation in the third year to permit all interested parties to monitor the implementation and propose appropriate changes to the policy. (3) Teleworking Situations Prior to September 1, 1992 Departments are to ensure that all telework situations established prior to September 1, 1992 meet all of the requirements of the Telework policy. (C) Definition of Telework For the purposes of the Public Service telework initiative, two definitions have been developed with respect to the term "workplace". This has been done to ensure consistency, to avoid confusion and to prevent the unwarranted payment of benefits in certain policy areas. official workplace: the location where the employee would ordinarily work if there were no telework situation, that is, the employee's headquarters. In a teleworking situation, the employee's official workplace continues to be the official workplace business address. Teleworkplace: the location at which the employee and the employer have mutually agreed the employee will telework. In general, telework involves the authorization for employees to work away from their official workplace for part or, in some cases, all of their regular work week. Although in most cases it is anticipated that telework arrangements will involve employees' working from their homes, it is by no means limited solely to the home. Any location away from their official workplace (further explained in section 4.A), with the exception of satellite offices, may be suitable, provided certain overriding principles are respected. These principles, which include the need to maintain service to the public and cost-effectiveness, are described more fully elsewhere in this document. Telework is not about "cottage industry" style work where workers have traditionally had few benefits and protections. Rather, telework encompasses the move of traditional office workers away from their regular place of work to a teleworkplace such as the home. Under a telework arrangement, employees retain all of their protections, terms and conditions of employment, and benefits. Many terms other than "telework" are currently being used. Examples include "remote working", "working at home" and "telecommuting". While earlier versions of this document employed the term "working at home", the term "telework" has been substituted since working at home implied that the teleworkplace could only be an employee's home. Telework, however, more appropriately reflects the concept since its prefix "tele" means "at a distance" or "from afar", and it is intended that the policy will permit employees to work from a range of alternative locations other than the official workplace. Just as employee participation in telework situations must be voluntary, management agreement is also a must and telework programs should provide for training or counselling, when required, of both employees and their supervisors. (D) Why Telework? As mentioned earlier, as the "baby boomers" leave the Public Service, there will be a growing demand on a diminishing pool of skilled labour. This will likely result in increased competition between the Public Service and other employers. A flexible workplace would make the Public Service a more attractive place to work and would benefit both the employer and employees in many ways. Some of these benefits are outlined later in this document. Telework arrangements can be a more efficient way of performing certain types of tasks because they may be re-arranged in such a way that there are fewer distractions than usually occur in an office setting. Work that at times might be interrupted due to inclement weather might continue and under such circumstances, teleworkers would have an advantage over those employees who must commute. One of the primary objectives of the telework initiative is to allow employees to work away from the official workplace, thereby achieving a better balance between their work and personal lives. Because the employer recognizes the opportunities that the telework option can bring, it encourages departments to consider applying the concept where it is economically and operationally feasible to do so. (E) For Whom Is Telework Appropriate? (see also 3.A) Employees who are self-motivated and wish to have the flexibility that telework provides tend to be the better candidates for this option. When an employee requests a telework arrangement, management must assess whether the type of function performed by that employee can feasibly and economically be performed from a remote location. Some of the many examples of occupations which may be suitable for this type of arrangement include computer programming and analysis, word processing, translating, proofreading, editing, writing, telephoning, accounting, financial analysis and bookkeeping. It is strongly recommended that before approving requests, departments provide employees with counselling and information on what is involved in telework. Once requests are approved, both employees and their supervisors should be trained and/or counselled on the practical considerations of the telework arrangement (see section 12). (F) Perceptions and Attitudes In the past, there has been a corporate, societal and even personal reluctance to accept telework as a viable work alternative. However, this reluctance is diminishing as more is learned about the increasing success of this alternative work arrangement. In fact, this alternative work arrangement has been successfully functioning in other sectors for years. Information and education about the scope, criteria, suitability and benefits of alternative work arrangements may change traditional attitudes and perceptions. They may help Public Service managers realize that, while telework situations are not appropriate for all employees, they may be beneficial for some. Such education may also help to dispel the misconception that telework is primarily a woman's issue, rather than one which is intended to be gender-neutral. While the telework option is not suitable for everyone and managers are under no obligation to authorize such arrangements, they should at least seriously consider each situation on its own merit. Information gained from public and private sector experiences can help supervisors make informed decisions based on a review of the pros and cons, taking into account employee suitability, operational feasibility and cost-effectiveness. 2. GENERAL INFORMATION The employer, employees and Canadians in general can be affected by telework situations. This section presents some of the potential advantages and disadvantages for each of these groups. (A) Advantages of Telework (1) The Employer Improvements in employee productivity, effectiveness and morale. Studies indicate that the telework arrangement results in "better" work for time spent. There is also strong evidence that telework increases production partly because of decreased number of interruptions and distractions, fewer rules, regulations and rigid routines. Expanded "pool" of potential workers: employees who need to care for dependants such as children and the elderly; employees with disabilities; employees with commuting difficulties; and superannuated employees who wish to remain in the work force and whose capabilities are still required by the department. Reduction in office space and parking facility requirements. Attractive working condition to aid in the recruitment and retention of skilled employees; an aid in reducing the voluntary separation of key employees. Decline of absenteeism: while employees are expected not to work when they are too ill to perform their duties, the telework initiative is intended to extend to employees the flexibility to make the decision that although they may feel too ill to complete a full day of work, they may feel well enough to complete a partial day of work at home. Accommodation of trained employees with health problems or disabilities while they are still able and willing to work. During snow and other emergencies, office workers often cannot get to work on time or early departures may be authorized. In some cases, they cannot get to work at all. In the case of snow storms, for example, teleworkers may be able to continue to work regardless of the weather. Carry-over of benefits of management-by-results to other parts of the organization. (2) Employees Reduced commuting time. Increased flexibility to coordinate work schedules with personal and family priorities. Ability to capitalize on personal peak productivity periods. More control over their lives through increased flexibility to balance work and personal responsibilities. Increased physical comfort, for example, the ability to work in more comfortable clothes, take short breaks as needed and not at fixed times, work in a personalized work area where lighting, heat, and humidity may be adjusted. Reduction in costs for transportation, parking, food, clothing and child care, for example. Improvement in communications. Studies show that telework usually compels supervisors and employees to learn new methods to communicate and this tends to result in an overall improvement in this area. Reduced stress due to increased freedom from supervision, traffic tie-ups, worries regarding children, and improved finances because of reduced costs. Sense of renewal and motivation especially in ageing or plateaued workers. (3) Canadians in General Reduction in traffic congestion and accidents, and reduction (over time) in cost for new roadways. Contribution to the harmonization of work and family life. Very "Green": reduction in air pollution and less use of transportation fuels (energy conservation). Reduction in taxes: a decrease in the need to levy taxes for environmental and transportation measures. Improved employment opportunities and greater ease of "getting to work" for persons with disabilities and those who have restricted mobility. Reduction in problems associated with the care of the elderly and of "latch-key" children. Gradual decrease in the need for mass transit. Boost to private sector businesses in suburbs. Fewer burglaries if homes are not empty during working hours. (B) Disadvantages of Telework (1) The Employer Some loss of direct control over employees: the supervisor of an employee who is teleworking cannot visually monitor the employee at his or her desk. As a result, the supervisor may feel that there has been some loss of direct control over that employee. To counteract this, supervisors may wish to take certain measures such as establishing clear work objectives, permitting only reliable employees to telework, and maintaining frequent contact by telephone or electronic mail. Potential for distraction leading to decline in work output: telework is for proven employees who are organized, disciplined, and conscientious self-starters. Departments should ensure the suitability of the telework environment. A description of the telework arrangement reflecting the responsibilities of both parties is required and must be signed by the supervisor. Possible negative public perception: teleworkers should be counselled to use their discretion. Some individuals may feel that employees who telework are not really working, even though this is contrary to evidence that telework usually results in greater effectiveness and efficiency. Employees should use their judgement and common sense to avoid embarrassing the government. Training and counselling costs: U.S. studies suggest that the average training costs are approximately $150 per employee. (2) Employees Isolation and reduced social interaction: some individuals who telework may experience a sense of isolation from the office environment and reduced social interaction with colleagues. One way to minimize feelings of isolation may be to have the employee return to the office to spend part of the work week with colleagues. Impact on career and promotional opportunities: some telework employees express concern that by decreasing their visibility in the office, they may damage their career objectives because of the "out- of-sight, out-of-mind" phenomenon. Departments have an obligation to provide their employees with information about various matters such as those relating to employment opportunities, administration, and items of general interest. While it is certainly easier and more convenient to carry out this responsibility when employees work in premises controlled by the employer, the fact that certain employees do not work in places controlled by the employer does not in any way remove the employer's responsibility to ensure that its employees are adequately informed. Departments are responsible for determining how this will be achieved and might tailor-make arrangements to suit individual telework situations. Costs of increased electricity in the home, possible extra insurance coverage needs, and other costs: any increase in these costs as a result of a telework arrangement is the responsibility of the employee. However, any such increase in costs would likely be of a limited nature and constitute a trade-off. Each employee, however, would need to analyze and accept these as a cost of telework before deciding to request this work arrangement. (3) Canadians in General Possible loss of income to private sector firms in city cores, transportation companies, automobile sales and service, parking lot owners, restaurants and stores which cater to Public Service employees during working hours. Possible loss of tax income to governments for fuel, goods and services, provincial sales taxes and as a result of deductions from the employee's taxable income. (C) Telework for Part or All of the Work Week Telework can be for all or some of the regular work week. It may be advantageous for an employee to work part-time at home on a daily basis, or on certain days only. What is key is that each arrangement should be designed to accommodate the needs of both employees and their supervisors. (D) Productivity Existing telework programs in both the private and public sectors have demonstrated that productivity is often increased when an individual works off-site. This may be due to fewer interruptions and distractions, and/or an increase in personal motivation and work commitment. It has also been shown that there are fewer "incidental" absences, partially due to a reduction in stress. At home, the employee is free from the structured office environment with its emphasis on start and stop times, imposed rules and regulations, and rigid routines. At home, the employee does not have to work in an open- office environment which tends to have attendant interruptions and a lack of privacy, and there is freedom from certain group norms which may limit productivity. Whether at the teleworkplace or at the official workplace, whenever there is a change in an employee's job (in the actual duties or in the percentage of time allocated to each duty), the supervisor as well as the employee should review any corresponding change in the objectives and expected results, and adjust these if necessary, in accordance with the principles of the Performance Review policy. It is not intended that management should place demands on the teleworker that are inconsistent with the standards of work that would have been placed on the employee were he or she working in the normal office environment. The reverse also applies to those employees who remain in the official workplace. 3. SUITABILITY FOR TELEWORK Key to the success of telework arrangements is the suitability of the work assignment, the employee and the manager. The following gives a brief overview of some ideal characteristics of each. (A) For What Jobs Is Telework Appropriate? (see also 1.E) Successful telework programs need not be restricted to jobs with measurable output, such as word processing. An examination of work performed in the office may reveal many jobs which could potentially be performed equally well from a teleworkplace. In addition, field workers, such as inspectors, and some engineers who use their office space only occasionally, may find that a telework arrangement is a viable work alternative. Managers and employees may wish to keep in mind, however, that certain jobs cannot feasibly be completed from an alternative location; for example, those that would require the removal of sensitive materials that directly affect the public (e.g., passport documentation, UIC documentation). Information such as this, if lost or stolen, could cause embarrassment to the government or hardship to citizens. Similarly, jobs which require extensive face-to-face interaction with the supervisor, the public, or other employees might not be suitable for consideration. Other inappropriate situations include, for example, those involving specialized facilities, equipment, or frequent need for access to paper files. These would render it physically impossible for the work to be done at a teleworkplace. Departments should ensure that the profile of those jobs identified as being suitable for telework incorporate and promote the equitable application of this initiative across all employment groups and levels. To summarize, each potential telework situation should be examined on a case-by-case basis taking into account the principles outlined in this document. (B) Employees Experience has shown that the most successful teleworkers are individuals who like to work on their own. They are independent people who are self- starters, are able to set their own priorities and deadlines, can assess their own performance, and require little ongoing direct supervision. Employees suitable for the telework option should generally have successful performance records. In addition, they should be highly motivated individuals with good time-management skills, and be well-organized and achievement-oriented. Suitability for telework is also linked to the employee's affiliation needs. Individuals with a lower need for social interaction are less likely to experience feelings of isolation when teleworking. Telework should not be viewed as a substitute for child or elder care. Based on experience in the private and public sectors, combining a telework arrangement with the full-time care of young children or elders may jeopardize the success of both, and accordingly, these types of arrangements should be discouraged. Employees who volunteer for telework solely for part-time child or elder care purposes should be informed of the likely pitfalls. Telework is often preferred by parents of older children, to avoid the "latch-key kid" problem, and by employees who need to be available for occasional care of elders who are otherwise relatively independent. Telework may also be a viable option for the occasional professional development day when there is no alternative child care available. (C) The Manager or Supervisor An individual supervising a telework arrangement should ideally have better than average supervisory and communication skills and should be able to clearly define specific tasks and expectations. While true for all jobs, it is especially important for supervisors of employees who are teleworking to review work performance against pre-established objectives. Supervisors with a strong need to physically "observe" their employees working must re-orient their management style or they will likely be unable to properly contribute to the success of telework projects. It is necessary that these supervisors trust their employees. Those who supervise by "coaching" rather than "policing" their staffs are more suitable for supervising "off-site" employees. Just as employees must be achievement-oriented, supervisors must be results-oriented. In summary, supervisors need to be as supportive of the telework concept as their employees are. 4. THE TELEWORKPLACE (A) For What Locations Is Telework Appropriate? As outlined earlier in this publication, many terms other than "telework" are currently in use. The term "telework" is used to describe a flexible work arrangement whereby employees who have traditionally carried out their work-related duties at the official office may now receive approval to perform these duties from a teleworkplace. The term "teleworkplace", in most instances, will refer to the employee's residence. While it could include other non-office locations such as a cottage, the provisions of the Telework policy do not for the moment apply to satellite offices. In all cases, for the purposes of the Telework policy, the location(s) will be mutually agreed to by the supervisor and the employee as the teleworkplace. (B) Satellite Office or Shared Facility Centre A satellite office is an office where the employees (who are usually employed by the same employer) work together away from the normal office. The premises, which are generally owned or leased by the employer, are usually located in or near the neighbourhood of the employees who work in the satellite office. A shared facility centre is essentially the same as a satellite office except that the employees are employed by more than one employer. For now, satellite offices or shared facility centres are excluded from the Telework policy as there are some important distinctions from working at home. Many of the major issues covered in this implementation publication, such as zoning, the Travel Directive, taxes, insurance, and occupational safety and health do not apply in the same way to satellite or other similar offices. The extent to which these types of issues impact on such locations can only be determined following an extensive review of the satellite office concept - a review to be undertaken by the Treasury Board Secretariat once the Telework policy has been introduced. The exclusion from the policy of satellite offices or shared facility centres does not mean that departments may not establish these types of workplaces; it only means that for now, the provisions of the Telework policy do not apply. (C) Occupational Safety and Health In teleworking situations where employees are working at home, it is understood that they will take reasonable steps to ensure their own safety. 5. PRINCIPLES WHICH MUST APPLY TO EACH TELEWORK SITUATION (A) General (1) Each case is operationally feasible service to the public must not be adversely affected it has to make sense from a business viewpoint all aspects, including possible increases in the workload of those remaining in the office, must be considered (2) There is no loss of output employees must perform work that is at least as much and carried out as well as when they were at the office the level of service to the public must not be reduced (3) It does not generate extra costs having the work done at a teleworkplace must not cost more than having it done at the office there must be no additional ongoing net cost (one-time start-up costs are permissible, provided they are recouped over a reasonable period) (4) It has been approved by management telework is not an entitlement each request is to be reviewed on a case-by-case basis (5) It is voluntary where employees telework, they must do so voluntarily termination of an arrangement may occur at any time, with reasonable notice, by either party (6) Telework does not affect the terms and conditions of employment, nor the provisions of collective agreements of employees only the place of work changes; other elements remain the same, including the need to respect existing legislation, policies, collective agreements and terms and conditions of employment (7) A description of the telework arrangement, signed only by the supervisor, must be given to each employee involved in a telework situation (B) Discretion of Management It is essential that the approval of individual telework situations be left to the discretion of departments, and that all telework arrangements be in accordance with the terms of the relevant collective agreements or terms and conditions of employment. (C) Description of the Telework Arrangement Document Whatever the duration, the supervisor must sign a description of the telework arrangement (Telework Arrangement Document) prior to the commencement of all telework situations. As the telework arrangement document is not an agreement, it is not to be signed by the employee, only the supervisor. This document should reflect the understanding reached between the supervisor and the employee and address issues such as: the voluntary nature of the arrangement, the duration of the arrangement, the specific days the employee will telework, hours of work, including overtime (to be established within the provisions of collective agreements), the telework location, work objectives and expected results, issues of liability (personal and equipment), the requirement to adhere to all aspects of government policies, rules and regulations, responsibility for increases in costs associated with telework, i.e., utilities and insurance, conditions for termination of the arrangement, whether the arrangement is to be regular or episodic, and anticipated telework training required. Departments should encourage employees to consult their bargaining agent before undertaking a telework arrangement. Employees are to be encouraged to share the details of the arrangement with their bargaining agent. (D) Terminating or Modifying an Arrangement Participation in a telework arrangement should not be viewed as an entitlement or a right, nor as an obligation. Termination of a telework arrangement remains an option available to either party. The terms of such a termination should be mutually agreed to prior to the commencement of the arrangement and should be reflected in the telework arrangement document. 6. TERMS AND CONDITIONS In general, the benefits of employees who telework are the same as if they were working at the official workplace. (A) Hours of Work The work schedules of teleworkers need to identify the days and times the employee will work in each work setting. Work schedules can parallel those in the office or be specific to the telework arrangement. Periodic work schedule adjustments should be made, if necessary, to achieve an optimal schedule suiting employee and organizational needs. Management should ensure that the telework arrangement provides the flexibility to request that an employee return to the office on a sporadic basis when and if required. Most existing collective agreements permit only a restricted application of telework arrangements. Most current provisions on hours of work have daily parameters, for example, 7 1/2 hours within an 11-hour period from 7 a.m. to 6 p.m. A telework arrangement would have to respect these or any other collective agreement provisions. (B) Overtime Any overtime work must be authorized in advance by the employer or must be in accordance with standard operating instructions. (C) Accessibility Whether working at the official workplace or at a teleworkplace such as the home, employees and their supervisors should agree (in accordance with their relevant collective agreements or terms and conditions of employment) as to what the official hours of work should be, as well as when and how the employee should be available or accessible to the supervisor. Supervisors do not normally contact employees, regardless of their work location, for work-related purposes outside the employees' official hours of work. If this is required, it could give rise to claims for stand-by, call-back or overtime pay (see 6.E). In summary, it is particularly important that in telework, accessibility be well-defined and mutually agreed to by both the manager and employee, and as per the section dealing with productivity, management should not place demands on the teleworker which are inconsistent with demands that would have been placed on the employee were he or she working in the official workplace. (D) Workers' compensation Under the Government Employees Compensation Act, and consistent with the jurisprudence on the subject of workers' compensation, Public Service employees who are injured in the course of their duties are to be compensated for their work-related illnesses or injuries. This is the case whether the illness or injury takes place at the employer's official workplace or at any other location, including the employee's automobile, hotel room or home. This is consistent with the Canada Labour Code, which defines the "work place" as any place where an employee is engaged in work for the employer, and this can include employees' "homes". It should not be presumed that liability for compensation cases will increase just because employees are teleworking. Labour Canada suggests that where employees telework, compensation costs may increase due to the following reasons: (1) the employer may have a diminished ability to prevent work-related accidents. While this may be true, it may also be the case that such accidents are less likely to occur at home where the employee is more familiar with the layout of the premises and furnishings; (2) greater difficulty in proving or disproving that an accident at home occurred while the employee was performing work for the employer; and (3) while employees are to be compensated for all work-related injury or illness, there may be some additional administrative complexities (none of them new or incapable of resolution) in processing a claim where the employee's official workplace is in one province, but the teleworkplace is in another. The employee must bring any accident or injury occurring in a telework situation to the immediate attention of the supervisor. (E) Stand-by/Call-back/Reporting Pay Present collective agreement provisions deal with employees' being off duty and being called back to work. Telework situations may well result in a blurring of on-duty, off-duty status, and what may be considered to be away from or a return to a work location when home and the work location are one and the same. The problem may be exacerbated by the existence of communications links allowing or requiring "work" outside the employee's normal hours of work. (F) Isolated Post Allowance For the purposes of the Isolated Posts Directive, employees who telework will be considered to be working at the "official workplace" as defined in the policy. A telework arrangement in itself will not give rise to claims for isolated post allowances. (G) Disability Insurance For the person who teleworks, access to various benefit plans, such as disability insurance, appears to remain unchanged inasmuch as work location is not a factor in approval of the claim. 7. TECHNICAL DETAILS (A) Types of Equipment The equipment requirements for teleworkers will depend on the requirements of the job. In some cases only a pen and paper, and perhaps a telephone, may be required. In other cases, more specialised equipment may be required, and might include some of the following: a computer, a modem, additional telephone features (call forward, call waiting, voice mail messaging), a printer, a facsimile machine, electronic mail, a photocopier, a pager, a cellular telephone, specialised equipment for persons with disabilities. (B) Who Provides the Equipment? The department is responsible for determining, based on the type of arrangement, what equipment and supplies are required by the employee in a telework situation. In addition, departments are to supply equipment such as computers, facsimile machines, modems and photocopiers. Departments will not undertake to provide furnishings that would reasonably be found in most homes and could be used for work purposes. (C) Maintenance of Equipment While the employer may provide the equipment for telework arrangements, and be responsible for appropriate repairs to and maintenance of this equipment, the employee must ensure that this equipment is used only for the purpose of conducting official business. Employees must treat equipment loaned by the employer with care, and take reasonable steps to prevent abuse or negligence. In the event that equipment is damaged, it is the employee's responsibility to inform his or her manager as soon as the damage is discovered. (D) Records The teleworker may need access to records, regulations, handbooks, manuals, and files normally maintained at the central office. As it is not always practical to duplicate paper records or maintain a library in the home office, personal computers and modems may allow employees to communicate with the office from any location and access records stored electronically. 8. LEGAL/SECURITY/CONFLICT OF INTEREST ISSUES (A) Liabilities: Equipment and Personal The 1990 Indemnification policy provides that the government will bear equipment losses if the damage occurred in the course of employment and the employee was acting honestly and without malice. In addition, employees should not be liable for costs for damages caused by the employer's equipment. Employees would likely be indemnified should they suffer any losses as a result of an accident. A risk assessment may well suggest enhanced risks in telework situations, but in the decision-making process these would be balanced against the potential savings. The employee would likely be entitled to compensation in the event of injury on duty at the teleworkplace. (B) Conflict of Interest Teleworkers should be reminded of their obligations under the Conflict of Interest Code, and that the provisions of the Code apply to all employees, no matter where the workplace is located. (C) Ethics The desire to do what is right should be an integral factor in every working decision at every level in the Public Service. A personal commitment on the part of each employee to adhere to the highest of ethical standards, surpassing the letter of the law, is essential if the integrity of the Public Service is to be preserved and, indeed, enhanced. This element should not be altered by a mere change in work location. Teleworkers should be sensitive to the possibility that they may well come under closer scrutiny from the public (neighbours and other observers). (D) Zoning Employees are responsible for informing themselves of any municipal or provincial restrictions which could have an impact on their telework situation. (E) Security Issues In each telework situation, the employer's security standards must be respected. A statement to this effect should be included in the document setting out the telework arrangement. In addition, before approving requests for telework, departments may wish to carry out threat and risk assessments wherever they appear to be warranted. (F) Contracting Out The employee in a telework arrangement is prohibited from contracting out his or her work. In addition, telework is not intended to result in the conversion of Public Service employees to independent contractors. (G) Employer-Employee Relationship Telework is not intended to alter the employer-employee relationship currently in existence in the Public Service, nor to set the stage for large-scale privatization and contracting out of work units. 9. FINANCIAL ISSUES (A) Tax Implications Provided certain conditions are met, teleworkers may be able to deduct expenses (related to their work space at home) from their employment income for income tax purposes. As the provisions of the Income Tax Act are complex, and each telework situation is unique, we have not attempted to provide all of the guidelines in this area. Nevertheless, the major qualifications which employees must meet are the following: 1. They must telework "principally" at home, which means more than 50% of the time; 2. They must be able to demonstrate they are "required": a) to provide a work space in their homes; and, b) pay for the additional costs involved in providing this work space. Although telework is voluntary, employees who accept the arrangement are required to provide a suitable place of work in their homes, and are responsible for the additional costs involved in providing the work space; and, 3. They must file with their income tax returns a prescribed Revenue Canada form (currently, the name of the form is T2200 "Declaration of Conditions of Employment"), signed by their employer, certifying that conditions of eligibility for such deductions were met. The final determination for eligibility for deductions will depend upon whether the requirements of the Income Tax Act have been met. For more information employees should refer to the Employment Expenses Tax Guide that is published by Revenue Canada. Employees who decide to consider teleworking may wish to talk to their tax advisor or to Revenue Canada Taxation. In the course of such discussions they should arrive prepared to discuss, among other issues: whether work will take place in owned or rented premises; the costs of heat, light, hydro and minor repairs; what supplies are utilized in the performance of the duties; and other related expenses for the premises. (B) Equipment and Supplies Whether work is conducted at the official workplace or at a teleworkplace, equipment and supplies are furnished by the employer. The employer is also responsible for determining, based on the type of arrangement, what equipment and supplies are required by the employee in a telework situation. (C) Insurance When the employee's home has been designated his or her teleworkplace and equipment is required by the employee to perform the duties of the position, the employee will not be responsible for insuring the equipment. It is, however, advisable that employees review their home insurance policies, since the use of the home as an office may not be covered by existing home policies. Any increase in home insurance coverage as a result of a telework arrangement is the responsibility of the employee. (D) Related Expenses Long-distance telephone charges and other expenses relating to the purchase of supplies, etc., resulting from a telework arrangement are subject to normal employer approval procedures and, once approved, are the responsibility of the employer. Other costs resulting from a telework arrangement (i.e. additional costs in heat and hydro) will be the responsibility of the employee. (E) Mileage/Travel Costs Employees who telework and are required to return from their telework location to the official workplace must be prepared to do so at their own expense (e.g., child care, transportation and parking costs). Since telework is voluntary, employees should be prepared to accept these conditions to ensure that no extra expenses are incurred by the employer. (F) Net Cost The telework arrangement can bring such benefits as improved recruitment and/or retention of employees, reduced need for office space, and increased productivity. While a one-time start-up cost and possibly some ongoing costs may be incurred, the telework situation should not result in an overall additional net cost to the employer. 10. LABOUR-RELATIONS ISSUES (A) Consultation Telework is a new human resource tool, and union-management consultations will play an important role in ensuring it represents the interests of both groups. Treasury Board Secretariat has encouraged, and will continue to encourage, ongoing consultations with the bargaining agents in order to refine the telework policy. (B) Grievances Employees have the right to present grievances on any management decision, and decisions pertaining to telework are no exception. If an employee feels that he or she has been treated unjustly with respect to the Telework policy, he or she is entitled to present a grievance through the normal procedure. (C) Bargaining A telework arrangement cannot legally alter or prevent the application of any term or condition specified in the employee's collective agreement. (D) Strikes In the event of a strike, whether employees are working at the official workplace or at a teleworkplace, many issues come into play and need to be reviewed by management. Some of the issues include: the personal safety of employees, the protection of equipment and other government property and the maintenance of performance. For more specific information concerning procedures to be followed during strikes, refer to Vol. 7, Chapter 10, "Strikes", of the Personnel Management component of the Treasury Board Manual. In the event of a strike, there may occasionally be a need for special interim procedures. For example, in light of the issues raised above, management may decide that teleworkers who are not on strike be asked to temporarily return to the official headquarters office. Teleworkers are entitled to some degree of protection from pickets by virtue of the Criminal Code of Canada (s. 381), and in many cases, by their municipal by- laws. (E) Union Notices With regard to employee access to union information posted on departmental bulletin boards, departments should remind employees that it is their responsibility to periodically check the boards to inform themselves of the most recent union material. 11. RESPONSIBILITIES The following represents a suggested division of some of the responsibilities between management and employees involved in telework situations. (A) Departments evaluation of the telework proposal based on operational feasibility and cost-effectiveness, and ultimate approval or denial of the request recommended training and counselling for telework participants and supervisors provision of equipment, supplies and maintenance compliance with the requirements of pertinent government legislation and policies (Government Security, Conflict of Interest, Collective Agreements) maintenance of records on teleworkers liaison with appropriate government experts for advice and guidance, as necessary, on matters relating to telework termination of telework arrangements where necessary planning of office space to accommodate those employees who occasionally return to the official office, or those who return at the end of a telework arrangement (B) Supervisors reviewing this publication ensuring proper completion of the telework arrangement document and giving a signed copy to the employee establishing and advising the teleworker of objectives and expected results ensuring compliance with the requirements of pertinent legislation and policies such as Security, Conflict of Interest and Collective Agreements participating in telework training and/or counselling arranging for periodic reviews with the employee to assess the telework arrangement ensuring that employees are advised of the terms of their relevant collective agreements or terms and conditions of employment (C) Employees reviewing this publication participating in telework training and/or counselling reviewing and understanding performance objectives and expected results complying with the requirements of pertinent legislation and policies such as Occupational Safety and Health, Security, and Conflict of Interest reviewing personal insurance coverage to ensure its validity in a telework arrangement investigating possible zoning restrictions that might affect the telework arrangement ensuring that a safe and proper work environment is maintained in the teleworkplace 12. TRAINING AND COUNSELLING Before approving requests, departments should provide employees with counselling and guidelines on what is involved in telework. Once requests are approved, both employees and their supervisors should be trained on the practical considerations of telework, where it is considered appropriate or necessary. It is recommended that each employee who is interested in telework receive a copy of this publication. Recommended training for the supervisor and the employee should cover: Supervisor Topics: (1) managing for results, rating work produced; (2) establishing quantity and quality of work expected; (3) communication with the employee; (4) administration of the terms and conditions of employment; (5) trusting the employee and managing from a distance; (6) maintaining equitable treatment of all employees; (7) career management issues; (8) counselling for employees not selected to telework; and (9) terminating telework arrangements Employee Topics: (1) ways to avoid isolation, guilt, or inability to leave work; (2) finding the best mix of home and office hours; (3) communicating with supervisors and colleagues, and arranging meetings (4) work planning and time-management; (5) progress reporting; (6) expectations regarding personal responsibility, dependability and accountability, self-discipline and respecting deadlines (7) adequacy of work station and facilities; (8) family issues; (9) image and self-esteem; (10) dealing with distractions; (11) public perception; (12) managing the career from a distance; (13) recognizing and accepting when a telework arrangement is not successful; (14) how to establish a safe and ergonomic working environment, including Workers' Compensation and Occupational Safety and Health issues; and (15) terms and conditions of collective agreements such as overtime, stand-by and call-back. Technical training may be required by the telework employee, and managers should be prepared to enhance general training by developing and administering any specific training that may be needed. Such specific training may include equipment operation and software applications. Periodic refresher and update courses may also be necessary. 13. INTERFACE WITH OTHER POLICIES AND GOVERNMENT INITIATIVES Telework arrangements may provide improved employment opportunities for Employment Equity target groups. The language rights of the telework employee should remain the same in the majority of cases. For most situations, the only change will be the location of work. Most government policies will apply in the same manner as though the employee remained at the official workplace. 14. MONITORING AND EVALUATION The Treasury Board will evaluate the pilot and its application in departments during the third year of the project. The results will be shared with departments and the bargaining agents. To facilitate this evaluation, departments must maintain records indicating the number of employees who are teleworking, and be able to demonstrate that each teleworking arrangement complies with the conditions outlined in the policy. These records must also indicate geographic location, group and level, sex, hours of work patterns, and duties performed. It is suggested that all records be kept in a central location to facilitate the compilation of detailed reports. 15. ENQUIRIES Enquiries about this document should be directed to the responsible officers in departmental headquarters who, in turn, may direct questions to and seek advice and guidance from: Policies and Procedures Group General Personnel Policy Development and Compensation Division Personnel Policy Branch Treasury Board Secretariat PART 3 QUESTIONS AND ANSWERS General Concept: Criteria and Benefits What is telework? Telework is an authorized working arrangement where employees perform all or part of their regular work away from the official workplace. Telework may also be on a regular or episodic basis. When was the Telework policy implemented in the Public Service? The Telework policy was implemented on September 1, 1992, after more than two years of study and consultation that involved bargaining agents and public and private sector employers. Under the Telework policy, can an employee work in a location other than the home? Yes. Most locations away from the official workplace (excluding neighbourhood or satellite offices) may be acceptable, provided the policy requirements are respected. What equipment is needed to telework? Technological requirements are determined by the work to be done. Some employees may require only pen and paper to do their work; others may require a computer, modem, or dedicated terminal to communicate with people and access the information needed to do their jobs. Who supplies the equipment under a telework arrangement? Under a telework arrangement it is the employer's responsibility to supply the necessary equipment. The equipment required will be determined by the work to be done. Can anyone telework? Any employee may be eligible to telework provided certain principles are met: telework is operationally feasible; there is no loss of output; it is voluntary; it does not generate extra costs that cannot be recouped over a reasonable period of time; it has been approved by management; employees who are teleworking are subject to the same terms and conditions of employment as colleagues in the workplace; and a description of the telework arrangement has been signed by the supervisor and a copy has been given to the employee in each case of telework. What types of jobs are adaptable to telework? Any job that complies with the basic principles outlined in the Telework policy may be eligible. Some examples are: auditors, computer systems administrators, historical researchers, actuaries, architects, scientists, translators, management and program analysts, personnel specialists, technical writers, claims examiners, clerks, and word processor operators. Each case must be judged individually, with the final approval resting with management. Certain qualities might make some jobs more adaptable to telework. For example, project-oriented tasks such as reading proposals and reviews, making funding decisions, conducting research, and easily quantifiable tasks such as data and word processing would be more easily adaptable. What kind of person is best suited to telework? Experience has shown that the most successful telework employees are individuals who like to work on their own. They are independent people who are self-starters and able to set their own priorities and deadlines, can assess their own performance, and require little ongoing direct supervision. Would telework be suitable for employees who want to telework temporarily or only once in a while? Yes, provided that the basic principles are respected. A supervisor may agree to approve a short-term telework arrangement. Some situations where temporary telework arrangements may work well include the following: during convalescence from a short-term injury or illness; or when the official workplace itself is not usable, e.g., during office renovation. How can I convince my boss that I should be allowed to telework? If you believe that the arrangement would meet the basic principles outlined in this publication, talk to your supervisor. Remember that a telework arrangement must be made on a voluntary basis by both supervisor and employee. For a telework arrangement to be successful, both parties must feel comfortable with it. Why would an employee want to telework? Increased flexibility to coordinate work schedules with personal and family priorities; More employee control over personal life; Reduction in commuting; Reduction in costs of transportation, food and clothing; Freedom to work without interruption or office stress; and Ability to capitalize on peak productivity periods. What are some of the benefits for supervisors? Improvements in effectiveness and morale; Reduction in costs of office space, parking facilities and transportation; Retention of skilled employees and reduction in employee turnover; Decline of absenteeism; and Carry-over of benefits of management-by-results to other parts of the organization. What are some of the benefits for Canadians in general? Reduction in the number of commuter trips and traffic congestion; Reduction in air pollution and less use of transportation fuels (energy conservation); Improved employment opportunities for persons with disabilities or those with restricted mobility; and Reduction in problems associated with elder care and "latch-key" children. What are some of the disadvantages of telework? For the employer: there may be an initial cost involved in establishing a telework situation. For the supervisor: the employer may lose some direct control over employees, and may have to adjust his or her style of supervision. For the employee: possible feelings of isolation; and possible fears about how absence from the office affects career advancement. For Canadians in general: the public may perceive a telework program negatively; downtown merchants may be adversely affected by fewer people working in the city; and possible loss of tax income for fuel, goods and services and provincial sales taxes. If telework is such a good idea, why hasn't the Public Service introduced a policy before now? Until recently, telework was not always feasible nor cost-effective. The popularity of the telework phenomenon has increased dramatically within the last 10 years, due to certain factors including: technological trends: developments in telecommunications have made it easier to transmit work and has increased the feasibility of remote or home-based offices; sociological trends: increasing numbers of single parent households and families with two wage earners have created growing pressure to find ways of reconciling the needs of employees, parents and families; reduced labour pool: changes in the birthrate have reduced the availability of skilled workers and have motivated employers to find more flexible ways to expand their labour pools; psychological trends: employees' growing concern and involvement with life issues other than work often lead them to seek flexible schedules and work conditions; and environmental trends: increased concern for health and the environment leads employees to place more value on work environments they can control themselves. They often seek to avoid commuting with its associated stress and environmental effects. Why do we need a pilot policy on telework? Telework, as a major new policy, is expected to have a significant impact on the way Public Service management conducts business. The main reason for introducing the policy on a pilot basis is that it is a new concept that warrants the exercise of reasonable caution. The pilot is fashioned to permit departments to fully utilize the concept where they see fit. The full evaluation scheduled for the third and final year, along with the shared experiences of those involved, will allow the employer to make any changes that may be required. What are some possible effects on the worker and on the workplace, when employees telework? Employees who leave the office to telework can experience a range of effects, from social isolation or insecurity about career objectives, to extreme satisfaction and fulfilment. Employees who telework do so voluntarily. Experience shows that while most telework employees require a period of adjustment, those employees who are self-motivated and wish to have the flexibility that telework provides tend to experience few difficulties. Most telework employees believe that any problems experienced are outweighed by an increase in personal freedom and convenience. Employees and supervisors should take advantage of all training and information available on dealing with problems caused by the decreased level of social interaction experienced by employees who are teleworking. Employees who remain at the office usually require assurance that their own workload will not be increased when their colleagues telework. They also wish to see that the telework employee continues to fulfil all of his or her responsibilities. Participation in a Telework Program Does an employee have a right to telework? No. Participation in the telework program is not a right, and departments will not be required to approve telework requests. Can a supervisor require an employee to telework? No. A supervisor cannot require an employee to telework due to the voluntary nature of teleworking. Can a supervisor telework? The telework policy is intended for all employees. Provided the basic principles of the policy are met, any employee may telework. Who is responsible for approving a telework request? The approval of individual telework situations rests with management, usually the supervisor. What is the purpose of the document setting out the telework arrangement (telework arrangement document)? It is designed to ensure that the terms of a telework arrangement are mutually understood, and spelled out, prior to the commencement of such an arrangement. The document should cover such items as the voluntary nature of the arrangement, the duration, official work site, hours of work, employee accessibility, monitoring, performance, liability, security, conflict of interest, and the results expected. Employees are to be encouraged to share the details of the arrangement with their bargaining agent. Management Responsibilities As a manager, must I introduce telework as a pilot project, or can I implement an operational program for my employees right away? The scope of a telework program is at the discretion of managers within the provisions of the Telework policy and departmental policies. How do I screen potential employees for consideration in a telework program? Managers should be looking for the work-related characteristics that successful telework employees generally have, including such qualities as: a history of reliable and responsible performance, with a proven track record; a full understanding of the operations of the organization and the required knowledge to perform the job at an alternative work site; self-motivation and a desire for the flexibility that telework provides; trustworthiness; and ability to establish priorities and manage his or her own time. As a manager, what operational factors do I need to consider before agreeing to a telework arrangement? The supervisor must examine the proposed telework arrangement to ensure that the mandatory principles outlined in the policy apply. These principles are designed to ensure that the work performed by the employee can feasibly and economically be performed from a remote location. The supervisor should consider what percentage of the employee's work can be successfully performed away from the office. The feasibility of a request will be determined by examining the requirements of the job. These may include: contact requirements: what percentage of the job is devoted to face-to-face contact with other employees or the public; reference materials requirements: what percentage of the job requires resources located in the official workplace; travel requirements: can trips begin or end at the teleworkplace rather than at the official workplace; and information security requirements: can tasks be completed at the teleworkplace without violating security requirements? How do I know employees are working if I can't see them? How do you supervise your employees now? Most Public Service employees are capable of working effectively and efficiently even when their supervisors cannot see them. Experience with telework programs in private industry and the public sector shows that productivity often increases when an individual works off-site, partly because of fewer interruptions and distractions, and partly because of an increase in personal motivation and work commitment. In addition, most telework employees report a reduction in stress, which often leads to increased efficiency. How will employees who telework be reviewed? The performance of employees who are teleworking, like that of their colleagues in the office, will be reviewed according to the principles in the Treasury Board's Performance Review policy. Should a specific schedule be set for the off-site work? Yes. A description of the employee's authorized days and hours of work away from the office must be clearly outlined in the telework arrangement document. Should I give up all of the vacant office space left by employees who are teleworking? Departments must plan their office space to accommodate those employees who occasionally return to the official workplace, or those who return at the end of a telework arrangement. What about the impact on office staff when some employees are teleworking? Possible impact on other employees must be considered during the approval process of a telework arrangement. One person's off-site work should not adversely affect the performance of other employees or place a burden on staff remaining in the office. Research demonstrates, however, that when fewer employees work at the office, the administrative workload decreases. Can telework be combined with part-time employment? Provided that the basic policy requirements are respected, telework can be combined with part-time or any other flexible working arrangement. If an employee teleworks, does the teleworkplace become the official workplace? No. The employee's official workplace is the place where the employee would work if there were no telework situation. What if a manager believes the arrangement with an employee is not working out? Either the employee or the supervisor may end a telework arrangement, with appropriate notice, at any time. Cost Considerations What are the cost factors for setting up a telework arrangement, and who will pay for what? Under a telework arrangement, departments will assume the costs of any required equipment or expenses such as: work-related telephone calls; computer or typewriter assigned to the employee's home; computer software; modem and possible additional computer usage charges; modifications to the central computer to allow employees to dial in; maintenance and repair charges for equipment belonging to the department; remote technical assistance; and replacement of damaged or lost equipment. The following types of expenses will be incurred by the employee: provision of premises, including cleaning, maintenance, heat, and light; and office furniture (e.g., desk and chair). Liability and Workers' Compensation What about liability for injuries sustained while teleworking? How can departments deal with an employee's claim for injury? Under the Government Employees Compensation Act, Public Service employees who are injured in the course of their duties are to be compensated for those injuries. This is the case whether the injury takes place at the employer's official workplace or at any other location (i.e. the employee's home). Child Care and Elder Care Is telework a substitute for child or elder care? No. Combining telework with the full-time care of young children or elders may jeopardise the success of both, and accordingly, these types of arrangements should be discouraged. Employees seeking to volunteer solely for part-time child or elder care purposes should be informed of the likely pitfalls. Experience in the private sector indicates that teleworkers with young children or elder care responsibilities should consider: a reduced hours schedule: working less than 30 hours per week is advisable; or flexible child or elder care: having other care available, such as a spouse, neighbour or relative who can provide additional care on a flexible basis, can reduce the difficulties of a full-time teleworker. Experience has shown that the majority of employees who choose to telework are young parents. While their telework does not replace child care, they find that the greater flexibility in their work allows them more freedom to coordinate family activities. For example, reduced evening commuting time allows parents to participate in more after-school events. Taxes Does an employee who uses a portion of his or her home as an office qualify for any federal income tax deductions? Revenue Canada advises that certain deductions may be possible, depending upon the situation. Employees should consult their tax advisors or a district taxation office for more information. Employees should also consult the "Employment Expenses Tax Guide" published by Revenue Canada. Computer Equipment What equipment will the employee need to telework? The equipment requirements will depend on the work to be done. Some employees may need only a pen and some paper. Other employees may require a computer. Still others may require a modem or dedicated terminal to communicate with colleagues and access the information needed to do their jobs. Any government-owned equipment used at home may only be used for official purposes. Who is responsible for transporting equipment (e.g., computer, modem, and printer) to and from the teleworkplace? Transporting equipment from the official workplace to the teleworkplace, or vice versa, is the responsibility of the departments. How do I arrange for equipment repair? Maintenance, repair, and replacement of government-owned equipment issued to employees is the responsibility of the department. The employee must notify his or her supervisor immediately following a malfunction to government-owned equipment. If repairs are extensive and replacement is impractical, the employee must be prepared, if asked, to report back to the official workplace until the equipment is usable. Safety and Security Issues How do I ensure that the teleworkplace is safe? Usually, employees' homes are the safest and most secure environment they know. Employees are responsible for ensuring that safety requirements are met in their homes to protect themselves and any equipment provided by the employer. Management may deny an employee the opportunity to participate or may rescind a telework arrangement based on a supervisor's concerns about safety problems or hazardous conditions in the home. Will information security be placed at risk by employees' teleworking? Employees who are teleworking must adhere to all rules, regulations, and procedures relating to the physical security of material that is designated or classified data and information, and any other information handled in the course of work. Pitfalls to Avoid What are some of the major problem areas of teleworking? How can they be dealt with? Other pilot programs have already identified many of the common pitfalls that new telework employees and their supervisors may encounter. Fortunately, ways to avoid these situations have also been developed. The following are examples of some of the common pitfalls and ways to avoid them. Scheduling problems: post a telework employee's schedule in the office and provide co- workers with his or her teleworkplace phone number; avoid scheduling meetings in the office involving telework employees when they are away from the official workplace. If rescheduling is not possible, try to set up a conference call; encourage office workers to continue to transact business with employees when they are teleworking; and encourage telework employees to adhere closely to the agreed time schedule, use an answering machine to take messages during absences and make follow up calls promptly. Performance Problems: avoid misunderstanding of work expectations by ensuring that work objectives are well known and in accordance with the Performance Review policy, and by ensuring that an understanding has been reached between the supervisor and employee. Perception Problems: remind telework employees that they are more open to public scrutiny when they telework and they must exercise care to avoid appearing irresponsible; and educate office co-workers of the responsibilities and benefits of telework. Technical Problems: establish procedures for call-in trouble shooting. Employee Adjustment Problems: supervisors should remain sensitive to telework employees' possible sense of isolation and loss of interaction with co-workers; and supervisors may wish to encourage active and frequent communication between teleworkers and office staff. REFERENCES Betts, Mitch. "Bush to Push Work-At-Home", Computerworld, Vol. 24, No. 48, November 26, 1990, pgs. 1 and 4. Christensen, Kathleen. The New Era of Home-Based Work: Decisions and Policies (Westview Press: Colorado), 1988. Commuter Transportation Services Inc. Telecommuting: Moving the Work to the Workers, 1991. Fleming, Lis. The One-Minute Commuter: How to Keep Your Job and Stay at Home Telecommuting (Acacia Books: California), 1989. Gordon, Gil and Associates. Telecommuting Review (Telespan Publishing: California), Vol. 7 and 8, 1991. (Especially Feb. 1992 issue featuring an article entitled "Canadian Public Service Moves Forward with Policy Guide") Gordon, Gil and Marcia Kelly. Telecommuting: How to Make It Work for You and Your Company (Prentice-Hall: New Jersey), 1986. Government of the United States. Guidelines for Pilot Flexible Workplace Arrangements, sponsored by the President's Council on Management Improvement, 1990. Government of the United States. The Federal Flexible Workplace Project: Flexiplace, sponsored by the President's Council on Management Improvement, 1990. Institute for Economic and Financial Research. International Flexiwork Forum, Vol. 1 (Tokyo), 1991. International Labour Organization. Conditions of Work Digest, Vol. 9 (Geneva), 1990. International Labour Organization. Meeting of Experts on the Social Protection of Homeworkers: Technical Background Paper (Geneva), October 1- 5, 1990. Kugelmass, Joel. Telecommuting and Flextime, sponsored by the UC Davis Administration, University of California, 1991. Olmsted, Barney and Suzanne Smith. Creating a Flexible Workplace (AMACON: New York), 1989. Qvortrup, Lars. Telework: Visions, Definitions, Realities and Barriers (Telematics Project, Odense University), OECD and Urba 2000 Handbook on Cities and New Technologies, 1991. VIDEOS 1. CTV. "Survivor's Guide to the 90's" (approx. 45 min., $275), September 5, 1991. 2. US West Communications. "Taking Work Home" (approx. 11 min., $29), February 19, 1987. 3. Southern New England Telephone. "Telecommuting in the 90's: Myth vs. Reality" (20 min., approx. $125), June 1992.