Telework Pilot Program in the Public Service (Guide)

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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.