Federal Employees: Human Resources Management Flexibilities in Emergency Situations

Federal Employees: Human Resources
Management Flexibilities in Emergency
Situations
Barbara L. Schwemle
Analyst in American National Government
Government and Finance Division
Summary
Federal executive branch departments and agencies have available to them various
human resources management flexibilities which can be utilized in emergency
situations, such as those which resulted from Hurricanes Katrina and Rita and which
could occur during a pandemic influenza outbreak. The Office of Personnel
Management has issued guidance on these flexibilities, which supplements the basic
policies governing staffing, compensation, leave sharing, and telework in Title 5 of the
United States Code. Legislation (S. 1000, H.R. 4106, and proposed amendments to S.

3268) to enhance telework in the federal government is pending in the 110^th Congress.

Over the last several years, federal departments and agencies have received guidance
from the Office of Personnel Management (OPM) on the various human resources (HR)
flexibilities available to them to facilitate management in emergency situations. Notably,
these issuances occurred following the September 11, 2001, terrorist attacks and in the
aftermath of the devastation wrought by Hurricanes Katrina and Rita which occurred
back-to-back in the Gulf Coast region of the United States in late Summer 2005.¹ Most

¹ U.S. Office of Personnel Management, Memorandum for Heads of Executive Departments and
Agencies, “Excused Absence and Assistance to Federal Employees Affected by the Attacks at
the World Trade Center and the Pentagon,” from Kay Coles James, Director, September 13,
2001, available at [http://www.opm.gov/oca/COMPMEMO/2001/2001-08.asp]. U.S. Office of
Personnel Management, Memorandum for Heads of Executive Departments and Agencies,
“Emergency Hiring Situation Resulting from Hurricane Katrina,” from Linda M. Springer,
Director, September 6, 2005, available at [http://www.chcoc.gov/Transmittals/
TransmittalDetails.aspx?TransmittalID=663]. (Hereafter referred to as OPM September 6, 2005,
Memorandum.) See also U.S. Office of Personnel Management, Memorandum for Heads of
Executive Departments and Agencies, “HR Flexibilities Available to Assist Federal Employees
Affected by Severe Weather Conditions or Other Emergency Situations,” from Linda M.
Springer, Director, June 17, 2008, available at [http://www.opm.gov/oca/compmemo/2008/2008-

09.asp].

recently, OPM reiterated the guidance² as part of fulfilling its responsibilities, under the
President’s national strategy on pandemic influenza, to provide direction on human capital
management and COOP planning criteria, and to update telework documents.³ The
agency also includes a Federal Hiring Flexibilities Resource Center, described as “a
toolkit,” on its website.⁴ In a December 18, 2006, memorandum, OPM encouraged
agencies located in the Gulf Coast region devastated by Hurricane Katrina to evaluate
using the various human resources flexibilities, and in particular, recruitment, relocation,
and retention incentives, to meet their human capital needs.⁵ The HR flexibilities relate
to staffing, compensation, leave transfer, and telework.
Table 1, below, provides information on selected flexibilities.
Table 1. HR Flexibilities for Emergency Situations
^Flex^ib^ilit^{y an}^d^A^u^t^h^orit^y^B^{rief D}^e^s^crip^t^ion
^intm^eⁿ^ts^{in Re}^m^o^te^o^r^I^s^o^l^ate^d^L^o^catio^ns^{[5 C.F}^.^R.^A^g^eⁿ^cie^s^{can appo}^{int indiv}ⁱ^dual^s^f^o^r^{up to}^oⁿ^e^y^e^ar^to^w^o^r^k^l^e^s^s^{than 1040 ho}^ur^s^pe^r^y^e^ar^.
ⁱ⁾⁽¹⁾^]^S^u^{ch appo}^intm^eⁿ^ts^{can be}^e^x^te^nde^{d inde}^fⁱ^nite^l^y^{in o}ⁿ^e^-^y^e^ar^incr^e^m^eⁿ^ts^{. A}^r^e^m^o^te^o^r
^iso^l^ate^d^l^o^catio^{n is “}^o^utside^the^l^o^cal^co^m^m^u^ting^ar^e^a^o^f^{a po}^pul^atio^{n ce}^nte^r^f^r^o^m^w^h^{ich an}
^e^m^pl^o^y^e^e^{can r}^e^as^oⁿ^abl^y^be^e^x^pe^cte^d^to^tr^av^e^l^oⁿ^s^h^o^r^{t no}^tice^unde^r^adv^e^r^s^e^w^e^athe^r^o^r^r^o^ad
^co^nditio^ns^w^h^{ich ar}^e^no^r^m^al^f^o^r^the^ar^e^a^.”
^p^t^e^d^Se^r^v^ice⁶^A^ppo^intm^eⁿ^{t —}^30-^D^a^y^Cr^itical^Hⁱ^rⁱ^ng^N^e^e^d^A^g^eⁿ^cie^s^{can appo}^{int indiv}ⁱ^dual^s^f^o^r^{30 day}^s^{and m}^a^y^e^x^te^{nd the}^appo^intm^eⁿ^{t f}^o^r^{up to}^an
^.^{R. §213.3102(}ⁱ⁾⁽²⁾^]^additio^nal^{30 day}^s^if^co^ntinue^{d e}^m^pl^o^y^m^e^{nt is}^e^s^s^e^ntial^to^the^ag^eⁿ^cy^’^s^o^p^e^r^atio^ns^{. T}^h^e
^s^a^m^e^indivⁱ^dual^m^a^y^no^{t be}^e^m^pl^o^y^e^d^f^o^r^m^o^r^e^{than 60 day}^s^{in a 12-}^m^o^{nth pe}^rⁱ^o^d^{. T}^h^e
^ag^eⁿ^cy^m^a^y^de^te^r^m^ine^the^qualⁱ^fⁱ^catio^{n r}^e^quir^e^m^e^nts^.⁽^F^o^r^bo^{th s}^e^nio^r^-^l^e^v^e^l^{and l}^o^w^e^r^-^l^e^v^e^l^po^s^itio^ns^.)
^p^t^ed^S^e^r^vⁱ^c^{e A}^p^p^oⁱⁿ^t^m^en^t^—^Tem^p^or^a^r^y^E^m^er^gen^c^y^N^eed^O^P^{M has}^autho^r^iz^e^d^ag^eⁿ^cie^s^to^appo^{int indiv}ⁱ^dual^s^f^o^r^{up to}^oⁿ^e^y^e^ar^to^fⁱ^l^l^po^s^itio^ns
^.^{R. §213.3102(}ⁱ⁾⁽³⁾^]^af^f^e^cte^d^by^o^r^ne^e^d^e^d^to^r^e^s^p^o^{nd to}^the^de^v^a^s^t^atio^{n o}^f^H^u^r^rⁱ^cane^K^a^tr^{ina. (}^F^o^r^bo^{th s}^e^nio^r^-^l^e^v^e^l^{and l}^o^w^e^r^l^e^v^e^l^po^s^itio^ns^.)⁷

² U.S. Office of Personnel Management, Human Capital Planning for Pandemic Influenza;
Information for Agencies and Departments, August 3, 2006 and updated September 12, 2006,
available at [http://www.opm.gov/pandemic/index.asp].
³ U.S., The White House, Homeland Security Council, National Strategy for Pandemic Influenza,
November 2005, available at [http://www.whitehouse.gov/homeland/pandemic-influenza.html].
⁴ The Federal Hiring Flexibilities Resource Center is available at [http://www.opm.gov/
Strategi c_Manage me nt_of_Huma n_Capital/fhfrc/default.asp].
⁵ U.S. Office of Personnel Management, Memorandum for Chief Human Capital Officers,
“Recruitment and Retention Flexibilities for Gulf Coast Employees,” from Linda M. Springer,
Director, December 18, 2006, available at [http://www.opm.gov/oca/compmemo/2006/2006-

21.asp].

⁶ Excepted Service positions are not covered by the procedures governing the competitive service.
Qualification standards and requirements for these positions are established by the individual
agencies. The Title 5 rules on appointment (except for veterans preference), pay, and
classification do not apply. Excepted service agencies include the Central Intelligence Agency,
the Defense Intelligence Agency, the Federal Bureau of Investigation, and the National Security
Agency.
⁷ OPM September 6, 2005, Memorandum.

^Flex^ib^ilit^{y an}^d^A^u^t^h^orit^y^B^{rief D}^e^s^crip^t^ion
^intm^eⁿ^{t o}^f^F^acul^t^y^Me^m^b^e^r^s^.^{R. §213.3102(}^o⁾^]^A^g^eⁿ^cie^s^{can appo}^{int f}^acul^t^y^m^e^m^b^e^r^s^to^s^c^ie^ntif^{ic, pr}^o^f^e^s^sⁱ^oⁿ^al^{, o}^r^anal^y^tical^po^s^itio^ns^.^A^ppo^inte^e^s^m^u^s^t^be^bo^{na f}ⁱ^de^f^acul^t^y^m^e^m^b^e^r^s^f^r^o^m^accr^e^d^ite^{d co}^l^l^e^g^e^s^{and univ}^e^r^s^itie^s^,
^hav^e^s^p^e^c^ial^qualⁱ^fⁱ^catio^ns^f^o^r^the^po^s^itio^{n, and no}^{t w}^o^r^k^m^o^r^e^{than 130 day}^s^pe^r^y^e^ar^.
^v^a^t^{e Sec}^t^{or T}^e^m^p^ora^r^y^Help^Servi^c^{e F}ⁱ^rm^s^.^{R. P}^a^r^t^{300, S}^ubpar^t^E^]^A^g^eⁿ^cie^s^{can co}^ntr^{act f}^o^r^{up to}^{120 w}^o^r^kday^s^w^{ith pr}^iv^ate^s^e^cto^r^te^m^p^o^r^ar^y^he^l^p^s^e^r^v^ice^fⁱ^r^m^s^to^quickl^y^pr^o^vⁱ^de^s^p^e^c^if^{ic s}^e^r^v^ice^s⁽^{but no}^{t f}^o^r^the^S^E^S^,^m^a^nag^e^rⁱ^al^{, o}^r^s^upe^r^v^is^o^r^y
^ns^f^o^r^us^ing^pr^iv^ate^s^e^cto^r^te^m^p^o^r^ar^ie^s^ar^e^{at 5 C.F}^.^R.^po^s^itio^ns⁾^.^A^co^ntr^{act m}^a^y^be^e^x^te^nde^{d f}^o^r^{an additio}^nal^{120 w}^o^r^kday^s^{. T}^h^e^fⁱ^r^m^is^the
^lega^lly^res^p^on^sⁱ^b^l^{e em}^p^l^oy^{er for a}^{ll a}^s^p^e^c^t^s^{of em}^p^l^oy^m^eⁿ^t^.
^pl^o^y^m^e^{nt P}^r^io^r^ity^Lⁱ^s^t⁽^R^P^L⁾⁸^A^g^eⁿ^cie^s^{can use}^the^RP^L^{as a so}^ur^ce^o^f^qualⁱ^fⁱ^e^d^indivⁱ^dual^s^w^h^o^ar^e^av^ail^a^bl^e^f^o^r
^.^{R. P}^a^r^t^{330, S}^ubpar^t^B]^te^m^p^o^r^ar^y^appo^intm^eⁿ^ts⁽^g^eⁿ^e^r^al^l^y^{, o}ⁿ^e^y^e^ar^w^{ith up to}^oⁿ^e^additio^nal^y^e^ar⁾^,^te^r^m
^appo^intm^eⁿ^ts⁽^m^o^r^e^{than o}ⁿ^e^y^e^ar^{but no}^{t m}^o^r^e^{than f}^o^ur^y^e^ar^s⁾^{, o}^r^pe^r^m^aneⁿ^{t appo}^intm^eⁿ^ts
^{in the}^co^m^p^e^titiv^e^s^e^r^v^ice^.^Aⁿ^e^x^ce^ptio^{n to}^cho^o^s^ing^s^o^m^e^oⁿ^e^f^r^o^m^the^RP^L^m^a^y^be
^g^r^ante^{d w}^h^eⁿ^{an indiv}ⁱ^dual^oⁿ^the^RP^L^o^r^w^{ith a hig}^h^e^r^r^a^nking^canno^{t as}^s^u^m^e^dutie^s
^w^itho^u^{t undue}^inte^r^r^uptio^{n to}^the^ag^eⁿ^cy^.
^p^e^titiv^e^S^e^r^v^ice⁹^A^ppo^intm^eⁿ^{t —}^120-^D^a^y^A^g^eⁿ^cie^s^{can m}^a^ke^appo^intm^eⁿ^ts^o^f^{120 day}^s^o^r^l^e^s^s^w^itho^u^{t f}ⁱ^r^s^{t s}^e^l^e^cting^{a s}^u^r^p^l^u^s^o^r
^.^{R. P}^a^r^t^{330, S}^ubpar^t^s^F^{and G}^]^dis^p^l^ace^{d e}^m^pl^o^y^e^e^w^h^o^is^e^l^ig^ibl^e^f^o^r^appo^intm^eⁿ^{t unde}^r^{an A}^g^eⁿ^cy^Car^e^e^r^T^r^ans^itioⁿ
^A^s^sⁱ^s^t^ance^P^l^{an (}^C^T^A^P⁾^o^r^{an I}ⁿ^te^r^a^g^e^ncy^Car^e^e^r^T^r^ans^itio^{n A}^s^sⁱ^s^t^ance^P^l^{an (}^I^CT^A^P⁾^.^F^o^r^appo^intm^eⁿ^ts^o^f^l^o^ng^e^r^dur^atio^{n, the}^CT^A^P^{and the}^I^C^T^A^P^m^a^y^be^us^e^d^to^ideⁿ^tif^y^w^e^l^l^-
^qualⁱ^fⁱ^e^d^f^e^de^r^a^l^e^m^pl^o^y^e^e^s^av^ail^a^bl^e^f^o^r^im^m^e^diate^e^m^pl^o^y^m^e^nt.
^ct-^H^ir^e^A^u^tho^r^ity^.^S^.^{C. §3304; 5 C.F}^.^{R. P}^a^r^t^{337, S}^ubpar^t^B]^OPM^m^a^y^a^u^t^h^ori^{ze a}^g^en^cⁱ^es^(govern^m^eⁿ^t^-wⁱ^d^{e or i}ⁿ^dⁱ^vi^d^u^a^lly^{) t}^o^a^p^p^oⁱⁿ^t^c^aⁿ^dⁱ^d^a^t^e^s^dir^e^ctl^y^to^po^s^itio^ns^w^itho^u^{t r}^e^g^a^r^d^to^{5 U}^.^S^.^{C. §§3309-}^{3318. I}ⁿ^appr^o^vⁱ^ng^the^dir^e^{ct hir}^e
^o^f^candidate^s^,^O^P^{M m}^u^s^t^de^te^r^m^ine^{that a s}^e^v^e^r^e^s^h^o^r^tag^e^o^f^candidate^s^o^r^{a cr}^itical^hirⁱ^ng
^ne^e^d^e^x^is^ts^{. O}^P^{M has}^appr^o^v^e^{d the}^dir^e^{ct hir}^e^o^f^m^e^dical^o^f^fⁱ^ce^r^s^{, nur}^s^e^s^,^diag^no^s^tic
^r^a^dio^l^o^gⁱ^{c te}^{chnicians, and phar}^m^{acists at al}^l^g^r^ade^l^e^v^e^l^s^{and in al}^l^l^o^catio^ns.
^or^E^x^ec^u^tⁱ^v^{e S}^e^r^vⁱ^c^{e (}^S^E^S⁾¹⁰^—^Lⁱ^m^ite^{d Em}^e^r^g^e^ncy^A^ppo^intm^eⁿ^ts^U^p^on^a^g^en^c^y^r^e^q^u^e^s^t^,^O^P^M^m^a^y^a^u^t^h^orⁱ^{ze a}^g^en^cⁱ^es^t^o^a^p^p^oⁱⁿ^t^c^a^r^eer^em^p^l^oy^ees^t^o^t^h^{e S}^E^S
^.^{R. P}^a^r^t^{317, S}^ubpar^t^F^]^f^o^r^{up to}^{18 m}^o^nths^to^m^e^e^t^{a bo}^na-^fⁱ^de^{, unanticipate}^d^{, ur}^g^e^{nt ne}^e^d^{. T}^h^e^appo^intm^eⁿ^t
^canno^{t be}^r^e^ne^w^e^d.
^pl^o^y^ing^A^nnuitants^{and W}^a^iv^ing^D^u^al^Co^m^p^eⁿ^s^a^tio^{n Re}^s^t^rⁱ^ctio^ns^U^p^on^a^g^en^c^y^r^e^q^u^e^s^t^,^O^P^M^m^a^y^a^u^t^h^orⁱ^{ze a}^g^en^cⁱ^es^t^o^r^eem^p^l^oy^r^e^tⁱ^r^ees^.^O^P^M^,^u^p^oⁿ
^.^S^.^{C. §5532(}^g⁾^{, §8344(}^I⁾^{, §8468}^(f)]^r^e^que^s^t^{, w}ⁱ^l^l^g^r^{ant ag}^eⁿ^cy^he^ads^the^autho^r^ity^to^w^a^iv^e^the^r^e^s^t^rⁱ^ctio^ns^{that pr}^o^h^{ibit f}^e^de^r^a^l
^r^e^tir^e^e^s^f^r^o^m^g^e^tting^the^f^u^l^l^co^m^b^ine^d^v^a^l^u^e^o^f^theⁱ^r^s^a^l^a^r^y^{and annuity}^upo^{n r}^e^e^m^pl^o^y^m^e^nt.
^pl^o^y^ing^Re^cipieⁿ^ts^o^f^V^o^l^untar^y^S^e^par^a^tio^{n I}ⁿ^ce^ntiv^e^s^U^p^on^a^g^en^c^y^r^e^q^u^e^s^t^,^O^P^M^m^a^y^a^u^t^h^orⁱ^{ze a}^g^en^cⁱ^es^t^o^r^e^hⁱ^r^e^f^e^d^e^r^a^{l em}^p^l^oy^ees^w^h^{o r}^e^tⁱ^r^ed
^l^y^re^fe^rre^d^t^o^a^s^b^u^y^ou^t^s⁾^o^r^s^e^par^a^te^{d w}^{ith buy}^o^u^ts^{. L}^a^w^s^autho^r^iz^ing^buy^o^u^ts^m^a^y^hav^e^incl^ude^{d a r}^e^quir^e^m^e^{nt that}
^io^us^s^t^atute^s^autho^r^iz^e^d^buy^o^u^ts^{. G}^e^ne^r^a^l^autho^r^ity^w^a^s^pr^o^vⁱ^de^d^t^h^{e b}^u^y^ou^t^b^e^rep^aⁱ^d^u^p^oⁿ^govern^m^eⁿ^t^reem^p^l^oy^m^eⁿ^t^.^A^g^en^cⁱ^es^m^a^y^req^u^e^s^t^t^h^a^t^OPM
^ug^{h D}^e^ce^m^b^e^r^{30, 1997, in P}^.^L^.^104-^{208, §663, S}^e^{pt. 30, 1996;}^t^{at. 3009-}^{383; 5 U}^.^S^.^{C. 5597 no}^te^{. T}^h^is^l^a^w^r^e^quir^e^{d f}^u^l^l^g^r^{ant a r}^e^pay^m^eⁿ^{t w}^a^iv^e^r^.
^m^eⁿ^{t if}^r^e^e^m^pl^o^y^m^e^{nt o}^ccur^r^e^{d w}^{ithin f}ⁱ^v^e^y^e^ar^s^af^te^r^l^e^av^ing^the
^m^eⁿ^t^.^]
ⁱ^u^m^P^a^y^f^o^r^E^m^er^gen^c^y^O^v^er^tⁱ^m^{e W}^o^r^k^A^g^eⁿ^cie^s^m^a^y^m^a^ke^e^x^ce^ptio^ns^to^the^biw^e^e^k^l^y^lⁱ^m^itatio^{n o}ⁿ^pr^e^m^ium^pay^.^W^h^eⁿ^an
^.^S^.^{C. §5547(}^b)^{; 5 C.F}^.^{R. §550.106]}^ag^eⁿ^cy^he^{ad de}^te^r^m^ine^s^{that an e}^m^e^r^g^e^ncy^po^sing^{a dir}^e^{ct thr}^e^{at to}^lⁱ^f^e^o^r^pr^o^p^e^r^ty^e^x^{ists, an}
^e^m^pl^o^y^e^e^pe^r^f^o^r^m^ing^o^v^e^r^tim^e^w^o^r^k^{in co}^nne^ctio^{n w}^{ith the}^e^m^e^r^g^e^ncy^wⁱ^l^l^g^e^ne^r^a^l^l^y^be
^co^v^e^r^e^{d by}^{an annual}^,^r^a^the^r^{than a biw}^e^e^k^l^y^{, pay}^lⁱ^m^itatio^{n. U}^nde^r^the^annual^lⁱ^m^itatio^n,
^the^to^tal^o^f^basⁱ^{c and pr}^e^m^ium^pay^{in a cal}^e^ndar^y^e^ar^m^a^y^no^{t e}^x^ce^e^d^the^g^r^e^a^te^r^o^f^the
^annual^r^a^te^o^f^pay^f^o^r^G^S^-^{15, s}^t^e^p^{10 (}ⁱ^ncl^uding^any^appl^icabl^e^s^p^e^c^ial^r^a^te^o^r^l^o^cal^ity^r^a^te⁾^,^or^L^e^{vel V}^of^t^h^{e E}^x^ec^u^tⁱ^v^{e S}^c^h^e^d^u^l^e.

⁸ The Reemployment Priority List (RPL) is the mechanism agencies use to give reemployment
consideration to their former competitive service employees separated by reduction in force (RIF)
or fully recovered from a compensable injury after more than one year.
⁹ Competitive Service positions require applicants to compete against one another in open
competition based on job-related criteria to obtain employment. The positions are subject to the
civil service laws codified at Title 5 of the United States Code and to oversight by the Office of
Personnel Management. Employees are to be selected from among the best-qualified and without
discrimination.
¹⁰ Senior Executive Service (SES) positions are classified above grade 15 of the General Schedule
or in level IV or V of the Executive Schedule, or an equivalent position, and are not filled by
presidential appointment by and with the advice and consent of the Senate. Members of the SES,
among other duties, direct the work of an organizational unit and exercise important policy-
making, policy-determining, or other executive functions. (5 U.S.C. §3132(a)(2))

^Flex^ib^ilit^{y an}^d^A^u^t^h^orit^y^B^{rief D}^e^s^crip^t^ion
^uitm^eⁿ^{t I}ⁿ^ce^ntiv^e^s^.^S^.^{C. §5753; 5 C.F}^.^{R. P}^a^r^t^{575, S}^ubpar^t^A^]^A^g^en^cⁱ^es^m^a^y^p^a^y^r^e^c^r^uⁱ^t^m^en^tⁱⁿ^c^eⁿ^tⁱ^v^es^t^oⁿ^e^w^l^y^a^p^p^oⁱⁿ^t^e^d^em^p^l^oy^ees⁽^o^r^em^p^l^oy^ees^r^e^appo^inte^{d af}^te^r^{a 90-}^day^br^e^a^k-^{in s}^e^r^v^ice⁾^af^te^r^de^te^r^m^ining^{that it is}^lⁱ^ke^l^y^to^be^dif^fⁱ^cul^t
^to^fⁱ^l^l^po^s^itio^ns^{in the}^abs^e^nce^o^f^s^u^{ch ince}^ntiv^e^s^{. A}^s^e^r^v^ice^ag^r^e^e^m^eⁿ^{t o}^f^{at l}^e^as^{t s}ⁱ^x¹¹
^m^o^nths^is^r^e^quir^e^d.
^catio^{n I}ⁿ^ce^ntiv^e^s^A^g^en^cⁱ^es^m^a^y^p^a^y^r^e^loc^a^tⁱ^oⁿⁱⁿ^c^eⁿ^tⁱ^v^es^t^o^c^u^r^r^eⁿ^t^em^p^l^oy^ees^w^h^{o m}^u^s^t^p^e^r^m^aⁿ^en^t^l^y^or
^.^S^.^{C. §5753; 5 C.F}^.^{R. P}^a^r^t^{575, S}^ubpar^t^B]^te^m^p^o^r^ar^il^y^r^e^l^o^cate^to^acce^{pt po}^s^itio^ns^{in dif}^f^e^r^e^{nt g}^e^o^g^r^{aphic ar}^e^a^s^af^te^r^de^te^r^m^ining^that
^{it is}^lⁱ^ke^l^y^to^be^dif^fⁱ^cul^t^to^fⁱ^l^l^po^s^itio^ns^{in the}^abs^e^nce^o^f^s^u^{ch ince}^ntiv^e^s^{. Es}^tabl^is^hm^eⁿ^{t o}^f
^re^si^d^eⁿ^c^y^aⁿ^d^a^se^rvi^c^e^a^g^re^e^m^eⁿ^t^{for a}^sp^e^cⁱ^fⁱ^e^d^p^e^ri^od^a^r^e^re^q^uⁱ^re^d^.^G^eⁿ^e^ra^lly^,^re^loc^a^tⁱ^oⁿ¹²
^ince^ntiv^e^s^ar^e^appr^o^v^e^{d o}ⁿ^{a case}^-^by^-^case^basis.
^ntio^{n I}ⁿ^ce^ntiv^e^s^A^g^eⁿ^cie^s^m^a^y^pay^r^e^te^ntio^{n ince}^ntiv^e^s^to^cur^r^e^{nt e}^m^pl^o^y^e^e^s^af^te^r^de^te^r^m^ining^{that the}
^.^S^.^{C. §5754; 5 C.F}^.^{R. P}^a^r^t^{575, S}^ubpar^t^C]^e^m^pl^o^y^e^e^s^unus^ual^l^y^hig^h^o^r^unique^qualⁱ^fⁱ^catio^ns^o^r^{a s}^p^e^c^ial^ne^e^d^f^o^r^the^e^m^pl^o^y^e^e^s
^s^e^r^v^ice^s^m^a^ke^s^{it e}^s^s^e^ntial^to^r^e^{tain the}^e^m^pl^o^y^e^e^s^w^h^o^lⁱ^ke^l^y^w^o^ul^{d l}^e^av^e^f^e^de^r^a^l^s^e^r^v^iceⁱⁿ
^t^h^{e a}^b^s^eⁿ^c^{e of}^s^u^c^hⁱⁿ^c^eⁿ^tⁱ^v^es^.^G^r^ou^p^s^or^c^a^t^egorⁱ^e^s^of^em^p^l^oy^ees^m^a^y^b^e^a^u^t^h^orⁱ^zed^t^o^r^e^ce^iv^e^r^e^te^ntio^{n ince}^ntiv^e^s^.¹³
^gen^c^y^L^e^a^v^{e Tr}^aⁿ^s^f^er^P^r^ogr^a^m¹⁴^O^P^{M, at the}^P^r^e^s^ideⁿ^t’^s^dir^e^ctio^{n, m}^a^y^e^s^tabl^is^{h an e}^m^e^r^g^e^ncy^l^e^av^e^tr^ans^f^e^r^pr^o^g^r^am^to
^.^S^.^{C. §6391; 5 C.F}^.^{R. P}^a^r^t^{630, S}^ubpar^t^K^]^as^sⁱ^s^t^e^m^pl^o^y^e^e^s^af^f^e^cte^d^by^{an e}^m^e^r^g^e^ncy^o^r^m^a^jo^r^dis^a^s^t^e^r⁽ⁱ^ncl^uding^f^l^o^o^d^s^,^e^a^r^t^hquake^s^,^to^rⁿ^ado^e^s^,^{and bo}^m^b^ing^s⁾^w^h^{ich s}^e^v^e^r^e^l^y^adv^e^r^s^e^l^y^af^f^e^cts^s^ubs^tantial^num^be^r^s^o^f
^e^m^pl^o^y^e^e^s^{. U}^nde^r^the^pr^o^g^r^am^{, e}^x^e^c^utiv^e^ag^eⁿ^cy^e^m^pl^o^y^e^e^s^co^ul^{d do}^nate^unus^e^d^annual
^lea^v^{e t}^o^a^f^f^e^c^t^ed^em^p^l^oy^eesⁱⁿ^t^h^ei^r^owⁿ^or^ot^h^e^r^a^g^en^cⁱ^es^.^Th^{e P}^r^esⁱ^d^en^t^h^a^s^a^u^t^h^orⁱ^zed
^O^P^M^t^o^es^t^a^b^lⁱ^s^h^s^u^c^h^aⁿ^em^er^gen^c^y^lea^v^{e t}^r^aⁿ^s^f^er^p^r^ogr^a^m^t^o^a^s^sⁱ^s^t^em^p^l^oy^ees^a^f^f^e^c^t^ed^b^y¹⁵
^H^u^r^rⁱ^cane^K^a^tr^{ina if}^s^u^{ch is}^ne^e^d^e^d^.^L^e^gⁱ^s^l^atio^{n autho}^r^iz^ing^e^m^e^r^g^e^ncy^l^e^av^e^tr^ans^f^e^r^f^o^r^the^judicial^br^{anch w}^a^s^eⁿ^acte^d^as^P^.^L^.^109-^{229 o}ⁿ^May^{31, 2006.}¹⁶

¹¹ U.S. Office of Personnel Management, Recruitment Incentives, available at
[http://www.opm.gov/oca/PAY/HTML/RECBONFS.asp]. By law, OPM must report to Congress
on agency use of recruitment, relocation, and retention incentives in each year, 2005-2009 (P.L.

108-411, October 30, 2004, 118 Stat. 2305, at 2309-2310).

¹² Ibid., Relocation Incentives, available at [http://www.opm.gov/oca/PAY/HTML/
RELBONFS.asp].
¹³ Ibid., Retention Incentives, available at [http://www.opm.gov/oca/PAY/HTML/
RETALLFS.asp].
¹⁴ For OPM’s guidance on the emergency leave transfer program , see U.S. Office of Personnel
Management, Emergency Leave Transfer Program, available at [http://www.opm.gov/
oca/leave/HTML/emerg.asp]. A sample agency plan on emergency leave transfer is available at
[http://www.opm.gov/oca/leave/HT ML/ELT P_sample.asp].
¹⁵ “Memorandum on Assistance to Federal Employees Affected by Hurricane Katrina,”
September 1, 2005, Weekly Compilation of Presidential Documents, vol. 41, September 2005,
p. 1338. U.S. Office of Personnel Management, Memorandum for Heads of Executive
Departments and Agencies, “Emergency Leave Transfer for Federal Employees Affected by
Hurricane Katrina,” from Linda M. Springer, Director, September 2, 2005, available at
[http://www.opm.gov/oca/compmemo/2005/2005-17.asp]. The memorandum authorizes agencies
with employees affected by the hurricane to (1) determine whether, and how much, donated
annual leave is needed by affected employees; (2) as appropriate, approve leave donors and leave
recipients in their agencies; (3) facilitate the distribution of donated annual leave from approved
leave donors to approved leave recipients within their agencies; and (4) determine the period of
time for which donated annual leave may be accepted for distribution to approved leave
recipients. OPM issued guidance on the leave transfer program on September 14, 2006. (U.S.
Office of Personnel Management, Memorandum for Human Resources Directors,
“Governmentwide Transfer of Donated Annual Leave for Employees Affected by Hurricane
Katrina,” from Nancy H. Kichak, Associate Director, September 14, 2006, available at
[http://www.opm.gov/oca/compme mo/2006/2006-08.asp].)
¹⁶ In the wake of President Bush’s authorization for emergency leave transfer in the executive
branch, the Judicial Conference of the United States requested legislative authority for the same
(continued...)

^Flex^ib^ilit^{y an}^d^A^u^t^h^orit^y^B^{rief D}^e^s^crip^t^ion
^e^rt^T^.^St^affo^rd^Di^sast^e^r^R^e^lⁱ^e^f^an^d^Eme^r^g^eⁿ^c^y^A^ssi^st^an^ce^A^c^t^{. 93-}^{288, T}^itl^e^III,^{§306, May}^{22, 1974, as}^am^e^nde^d;)^{88 S}^t^{at. 149-}^A^u^tho^r^iz^e^s^the^hirⁱ^ng^o^f^te^m^p^o^r^ar^y^s^t^af^f^,^e^x^pe^r^t^s^,^{and co}^ns^ul^tants^to^pr^o^vⁱ^de^dis^a^s^t^e^r^r^e^lⁱ^e^f^d^u^rⁱⁿ^{g em}^er^gen^cⁱ^e^s^d^e^c^l^a^r^ed^b^y^t^h^{e P}^r^esⁱ^d^en^t^.^A^u^t^h^orⁱ^zes^f^e^d^e^r^a^{l a}^g^en^cⁱ^es^t^o^a^p^p^oⁱⁿ^t^aⁿ^d
^.^S^.^{C. §5149]}^fⁱ^x^the^co^m^p^eⁿ^s^a^tio^{n o}^f^te^m^p^o^r^ar^y^pe^r^s^o^nne^l^w^itho^u^{t r}^e^g^a^r^d^to^T^itl^e^{5 o}^f^the^Uⁿ^{ited States}
^Code^pr^o^vⁱ^sⁱ^oⁿ^s^oⁿ^appo^intm^eⁿ^ts^{in the}^co^m^p^e^titiv^e^s^e^r^v^ice^{and to}^e^m^pl^o^y^e^x^pe^r^t^s^and
^co^ns^ul^tants^{in acco}^r^d^ance^w^{ith 5 U}^.^S^.^{C. §3109.}
^o^r^k^O^P^{M e}ⁿ^co^ur^ag^e^s^g^r^e^a^te^r^use^o^f^te^l^e^w^o^r^k^{— w}^o^r^k^ing^{at a l}^o^catio^{n o}^t^he^r^{than an e}^m^pl^o^y^e^e^’^s
^{. 106-}^{346, §359, O}^c^{t. 23, 2000; 114 S}^t^{at. 1356, at 1356A}^-^{36; 5}^“^o^f^fⁱ^cial^duty^s^t^atio^{n” —}^dur^ing^e^m^e^r^g^e^ncy^s^ituatio^ns^to^eⁿ^s^u^r^e^co^ntinuity^o^f^o^p^e^r^atio^ns^and¹⁷
^{C. §6120 no}^te^]^to^r^e^duce^f^u^e^l^co^ns^um^ptio^{n and tr}^af^fⁱ^{c co}^ng^e^s^tio^n.^A^te^l^e^w^o^r^k^ce^nte^r^is^oⁿ^e^ty^pe^o^f
^al^te^rⁿ^ativ^e^w^o^r^k^s^ite^ho^us^ing^w^o^r^k^s^t^atio^ns^{that can be}^r^e^nte^d^by^e^m^pl^o^y^e^r^s^.^T^h^e^G^e^ne^r^a^l
^Se^rvi^c^e^s^A^d^miⁿⁱ^st^ra^tⁱ^oⁿ^(G^SA^{) op}^e^r^a^t^e^s^t^e^le^w^o^rk^c^eⁿ^t^e^r^{s i}ⁿ^M^a^ry^laⁿ^d^,^Vi^rgiⁿⁱ^a^,^aⁿ^d^W^e^st^Vⁱ^r^g^inia.¹⁸
Pending Legislation on Telework
The Telework Enhancement Act of 2007 (S. 1000, as ordered to be reported) and the
Telework Improvements Act of 2008 (H.R. 4106, as passed by the House of
Representatives) are pending in the 110^th Congress.¹⁹ Two Senate amendments that

¹⁶ (...continued)
in the judicial branch. Senator Susan Collins introduced legislation (S. 1736) to provide such on
September 20, 2005. The bill passed the Senate, without amendment, by unanimous consent on
October 19, 2005. The next day the Senate committee’s report accompanying the legislation was
published. U.S. Congress, Senate Committee on Homeland Security and Governmental Affairs,
Providing for the Participation of Employees in the Judicial Branch in the Federal Leave^th^st
Transfer Program for Disasters and Emergencies, report to accompany S. 1736, 109 Cong. 1
sess., S.Rept. 109-158 (Washington: GPO, 2005). The bill was referred to the House Committee
on Government Reform on October 20, 2005, and it was marked-up and ordered to be reported
by voice vote on March 9, 2006. The committee reported the bill on May 2, 2006. U.S.
Congress, House Committee on Government Reform, Authority to Include Judicial Branch
Employees in Federal Leave Transfer Program for Disasters and Emergencies, report to^th^nd
accompany S. 1736, 109 Cong. 2 sess., H.Rept. 109-449 (Washington: GPO, 2006). S. 1736
passed the House of Representatives under suspension of the rules by voice vote on May 22,
2006. President George W. Bush signed the bill on May 31, 2006, and it became P.L. 109-229
(120 Stat. 390).
¹⁷ U.S. Office of Personnel Management, Memorandum for Heads of Departments and Agencies,
“Human Capital Flexibilities to Reduce Fuel Consumption,” from Linda M. Springer, Director,
September 2, 2005, available at [http://www.chcoc.gov/Transmittals/
T r ansmittalDetails.aspx?T r ansmittalID=662].
¹⁸ U.S. General Services Administration, Telework Centers, available at
[http://www.telework.gov]. For an analysis of the centers, see CRS Report RL33352, Telework
Centers and Federal Continuity of Operations Planning, by Lorraine H. Tong.
¹⁹ Senator Ted Stevens, for himself and Senator Mary Landrieu, introduced S. 1000 on March 27,
2007, and it was referred to the Senate Committee on Homeland Security and Governmental
Affairs. The Subcommittee on Oversight of Government Management, the Federal Workforce,
and the District of Columbia conducted a hearing on the bill on June 12, 2007. The full
committee marked up the bill and ordered it to be reported, by voice vote, on November 14, 2007.
Representative Danny Davis, for himself and Representatives John Sarbanes, Henry Waxman,
Tom Davis, Frank Wolf, and Elijah Cummings, and Delegate Eleanor Holmes Norton, introduced
H.R. 4106 on November 7, 2007, and it was referred to the House Committee on Oversight and
Government Reform. A day before the bill’s introduction, on November 6, 2007, the House
Subcommittee on Federal Workforce, Postal Service, and the District of Columbia conducted a
(continued...)

include provisions to enhance telework were offered to S. 3268, the Stop Excessive
Energy Speculation Act of 2008, and also are pending.²⁰ The legislation and amendments
would require executive branch agency heads to establish policies under which employees
(with some exceptions) could be eligible to participate in telework. S. 1000 also would
cover legislative branch employees. The policies would have to be developed within 180
days after the act’s enactment. Under the legislation, employee participation in telework
would be required to the maximum extent possible without diminishing either employee
performance or agency operations. In the executive branch, employees not eligible for
telework generally would include those whose duties involve the daily handling of secure
materials, contact with persons, the use of special equipment, or physical presence. The
bills could require Telework Managing Officers to be appointed; training to be provided
to managers, supervisors, and employees; and various reports to be prepared.
H.R. 4106 would require the Comptroller General (CG) to evaluate the telework
policies in the executive branch. The CG would be required to issue an annual report that
would provide, for each agency, information on the number of employees overall, and the
number and percentage of employees, (1) eligible to telework; (2) who teleworked an
average of at least once a week on a regular basis, determined based on time spent
actually teleworking; and (3) who teleworked an average of at least 20% of the hours that
they worked in every two administrative workweeks, determined based on time spent
teleworking. In addition, the report would include information on the number and
percentage of employees who teleworked at least once a month on a regular basis,
determined based on time spent teleworking; the number and percentage of employees
who were not authorized to telework and the reasons why not; the number and percentage
of employees who were authorized to telework and then later stopped teleworking,
including the reasons why they stopped and whether stopping was voluntary or due to
other factors, such as office coverage needs or productivity; and the extent to which
barriers to telework have been identified and eliminated. Information on telework’s
impact (if any) on an agency’s recruitment and retention of employees and on the
performance of an agency’s employees, and the level of employee satisfaction with an
agency’s telework policies, based on feedback, would be included in the report. H.R.
4106 also would require the CG to determine the compliance of agencies with the act and
identify best practices in telework programs.

¹⁹ (...continued)
hearing on telework. The subcommittee marked up H.R. 4106 and forwarded it to the full
committee, as amended, by voice vote on February 28, 2008. The House Committee on
Oversight and Government Reform marked up the bill on March 13, 2008, and ordered it to be
reported as amended. The committee reported the bill on May 21, 2008 (U.S. Congress, House
Committee on Oversight and Government Reform, Telework Improvements Act of 2008, report^th^nd
to accompany H.R. 4106, 110 Cong., 2 sess., H.Rept. 110-663 (Washington: GPO, 2008)).
The House passed H.R. 4106 by voice vote under suspension of the rules on June 3, 2008.
²⁰ Senator Ted Stevens and Senator Jeff Bingaman offered similar amendments to S. 3268
(S.Amdt. 5160 and S.Amdt. 5135) on July 24, 2008. In addition, the Bingaman amendment
includes provisions that would require federal agencies to actively promote incentive programs
that encourage federal employees and contractors to reduce petroleum usage through practices
such as telecommuting, public transit, carpooling, and bicycling. The Administrator of GSA, the
Director of OPM, and the Secretary of Energy would monitor and provide support to the agency
programs. Such sums as are necessary would be authorized to implement the provisions for^th
FY2009 through FY2015. (See CRS Report RL34516, Telework Legislation Pending in the 110
Congress: A Side-by-Side Comparison of Provisions, by Barbara L. Schwemle.)