Memorandum for the Head of Executive Departments and Agencies
The White House
April 11, 1997
SUBJECT: Expanded Family and Medical Leave Policies
I have strongly supported meeting Federal employees' family and medical leave needs through enactment of the Family and Medical Leave Act of 1993 (FMLA) and the Federal Employees Family Friendly Leave Act of 1994 (FEFFLA). However, Federal employees often have important family and medical needs that do not qualify for unpaid leave under the FMLA or sick leave under the FEFFLA. I ask you to take immediate action to assist Federal workers further in balancing the demands of work and family.
Last year I proposed to expand the Family and Medical Leave Act of 1993. My legislation would allow Federal and eligible private sector workers 24 hours of unpaid leave during any 12-month period to fulfill certain family obligations. Under the legislation, employees could use unpaid leave to participate in school activities directly related to the educational advancement of a child, including early childhood education activities; accompany children to routine medical and dental examinations; and tend to the needs of older relatives.
In furtherance of my proposed policy, I ask that you take immediate action within existing statutory authorities to ensure that Federal employees may schedule and be granted up to 24 hours of leave without pay each year for the following activities:
- School and Early Childhood Educational Activities – to allow employees to participate in school activities directly related to the educational advancement of a child. This would include parent-teacher conferences or meetings with child-care providers, interviewing for a new school or child-care facility, or participating in volunteer activities supporting the child's educational advancement. In this memorandum, "school" refers to an elementary school, secondary school, Head Start program, or a child-care facility.
- Routine Family Medical Purposes – to allow parents to accompany children to routine medical or dental appointments, such as annual checkups or vaccinations. Although these activities are not currently covered by the FMLA, the FEFFLA does permit employees to use up to 13 days of sick leave each year for such purposes. Agencies should assure that employees are able to use up to 24 hours of leave without pay each year for these purposes in cases when no additional sick leave is available to employees.
- Elderly Relatives' Health or Care Needs – to allow employees to accompany an elderly relative to routine medical or dental appointments or other professional services related to the care of the elderly relative, such as making arrangements for housing, meals, phones, banking services, and other similar activities. Although Federal employees can use unpaid leave or sick leave for certain of these activities under the FMLA or FEFFLA, such as caring for a parent with a serious health condition, agencies should ensure employees can use up to 24 hours of unpaid time off each year for this broader range of activities related to elderly relatives' health or care needs.
This new policy will assure that Federal employees can schedule and receive up to 24 hours away from the job each year for these family and medical circumstances. I also urge you to accommodate these employee needs as mission requirements permit, even when it is not possible for employees to anticipate or schedule leave in advance for these purposes. In addition, I ask that you support employees' requests to schedule paid time off--such as annual leave, compensatory time off, and credit hours under flexible work schedules--for these family activities when such leave is available to these employee. The Office of Personnel Management shall provide guidance to you on the implementation of this memorandum.
I encourage you to use a partnership approach with your employees and their representatives in developing an effective program that balances the employees' needs to succeed both at work and at home. I ask agencies, unions, and management associations to continue to work together to assess and improve the use of family-friendly programs and to make certain that employees are aware of the expanded family and medical leave policy.
William J. Clinton
Questions and Answers on the President's Memorandum on Expanded Family and Medical Leave Policies
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The President is asking Federal agencies to assist employees further in meeting their work and family demands. While the President is asking Congress to enact his legislative proposal to expand the Family and Medical Leave Act of 1993, he is also asking agencies to use their currently available administrative authorities to ensure that employees may schedule and be granted up to 24 hours of leave without pay for three purposes:
- To participate in school activities directly related to the educational advancement of a child;
- To accompany their children to routine medical or dental appointments, such as annual checkups and vaccinations; and
- To accompany their elderly relatives to routine medical or dental appointments or other professional services related to the care of the elderly relative, such as making arrangements for housing, meals, telephones, banking services, and other similar activities.
In addition, the President asks agencies to support employees' requests to schedule paid time off, such as annual leave, sick leave, compensatory time off, and credit hours under flexible work schedules for these family activities when these options are available to the employee.
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Supervisors have discretion to grant employees time off for the purposes mentioned in the President's memorandum. The new memorandum is important because it makes clear that the President wants agencies to grant employees up to 24 hours of unpaid leave to help employees meet their family demands. The memorandum will remind agencies - and their front line supervisors- to establish and maintain a family friendly work environment, and it adds to the momentum already in place.
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The President's memorandum sends a strong signal to agencies and supervisors to support and encourage family friendly leave policies. The memorandum is expected to ensure that time off is granted for these purposes. It will serve to make supervisors more sensitive to employees' needs and enhance the ability of employees to take time off to participate in children's education, elderly relatives' health needs, and routine family medical appointments.
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Under the Family and Medical Leave Act of 1993, covered Federal employees are entitled to a total of 12 administrative workweeks of unpaid leave during any 12-month period for (a) the birth of a son or daughter and care of the newborn; (b) the placement of a son or daughter with the employee for adoption or foster care; (c) the care of a spouse, son, daughter, or parent with a serious health condition; and (d) a serious health condition of the employee that makes the employee unable to perform the duties of his or her position. (See Federal Employees Entitlements Under the Family and Medical Leave Act.)
Federal employees may use a portion of their accrued sick leave each leave year to care for a family member. (See Sick Leave for Family Care and Bereavement and Sick Leave to Care for a Family Member with a Serious Health Condition.)
Employees may request advance annual or sick leave or leave without pay from their agencies for these purposes.
Federal employees are entitled to use 7 days of paid leave each calendar year (in addition to annual or sick leave) to serve as a bone-marrow donor and up to 30 days each calendar year to serve as an organ donor. (See Bone Marrow and Organ Donation Leave.)
The Federal leave transfer program allows Federal employees to donate annual leave to other Federal employees who have medical emergencies and who have exhausted their own leave. Federal leave banks allow employees to contribute a specified amount of annual leave yearly to their agency leave bank. Leave bank members with medical emergencies can withdraw leave from the bank if they exhaust their own leave. (See Leave Transfer Program and Leave Bank Program.)
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There is no certain order for using the various family friendly leave policies discussed in the President's memorandum. The employee must consider his or her current leave balances and determine (1) whether the situation meets the requirements and obligations of a specific leave program and (2) which leave policy or program best fits his or her needs.
Employees may now choose from an array of family friendly leave policies to meet their family and medical needs. For example, if an employee needs time off from work to accompany his or her child to a doctor's appointment, he or she may use sick leave. If the use of sick leave is not an available option, an employee may request leave without pay or, as available, annual leave, compensatory time off, or credit hours under flexible work schedules for purposes of the expanded family friendly leave policies discussed in the President's memorandum. In addition, an employee may request advance annual or sick leave from his or her agency. If the child's condition develops into a serious health condition, the employee may invoke his or her entitlement to unpaid leave under the Family and Medical Leave Act of 1993 and, if appropriate, may choose to substitute annual leave or sick leave for the unpaid leave. If the employee is experiencing a personal or family medical emergency and has exhausted all of his or her available annual and sick leave, he or she may apply to become a leave recipient under the agency's leave transfer and/or leave bank programs.
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No. A supervisor or manager may not require an employee to use leave without pay for these purposes.
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The purpose of the expanded family friendly leave policies is to provide employees with flexibility to use an additional 24 hours of leave without pay for the purposes outlined in the President's memorandum. However, an employee does not have an entitlement to leave without pay.
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Yes. An employee may use the 24 hours of leave without pay in the same increments as all other leave is granted by his or her agency.
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We encourage agencies to permit employees to use leave to care for an elderly relative who is related by blood or marriage to the employee who may require daily care or assistance in making arrangements for housing, meals, telephones, banking services, and other similar activities.
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Employees who do not have children may benefit from the expanded family friendly leave policies by choosing to participate in school activities directly related to the educational advancement of a child. These activities may include attending school board meetings; tutoring students; and participating in school-sponsored activities, such as sports and recreation programs, field trips, class plays, "career day," etc. These activities are important to the educational advancement of a child.
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Yes to both questions. Agencies have discretionary authority to require evidence that is administratively acceptable, including medical certification, as appropriate, from an employee who requests leave without pay under the new expanded family friendly leave policies.
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We encourage agencies to permit employees to use up to 24 hours of leave without pay to participate in school activities, accompany their children to medical or dental appointments, or to accompany elderly relatives to medical appointments or other professional services relating to the care of the elderly relative. Currently, employees may request time off from work for family responsibilities. A supervisor may approve an employee's request to use additional leave without pay or annual leave, compensatory time off, or credit hours under flexible work schedules for purposes not specified in the President's memorandum, such as organizing or holding an estate or yard sale to sell the belongings of an elderly relative or to care for his or her child or elderly relative when the normal child care or elder care provider is sick or otherwise unavailable.
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Yes. An agency may follow its normal policies for advancing annual leave for the purposes outlined in the President's memorandum.
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No. Under the Federal leave sharing program, an employee may donate annual leave to other Federal employees who have a personal or family medical emergency and who have exhausted their own available annual and sick leave. A leave recipient may use donated annual leave only for the purpose of the medical emergency for which the leave recipient was approved. We do not believe the purposes outlined in the President's memorandum - i.e., routine medical or dental appointments - are consistent with the purposes for which donated annual leave may be used - i.e., medical emergencies.
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No. The President's memorandum encourages agencies to provide up to 24 hours of leave without pay each year for these purposes. However, this does not limit or prohibit an employee from requesting and receiving additional leave or other time off for school activities, routine family medical purposes, and elderly relatives' health needs. These needs can be met through the use of annual leave, compensatory time off, credit hours under flexible work schedules, or additional leave without pay.
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Compensatory time off is available for almost all employees who perform irregular or occasional overtime work. Credit hours are only available to employees on flexible work schedules that provide for this feature. Unlike compensatory time off, credit hours cannot be converted into overtime pay, and the employee is limited to carrying over no more than 24 credit hours from one pay period to the next.
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The President's memorandum does not require agencies to keep records on the amount of leave without pay or other time off used for school activities, routine family medical purposes, and elderly relatives' health needs. However, an agency may decide to maintain records of leave used by employees for these purposes.
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Managers and supervisors have discretionary authority to approve leave. When granting leave, supervisors must consider the circumstances of each situation, consistent with current law, Office of Personnel Management regulations, and agency policies.
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