Reference Checking in Federal Hiring: Making the Call

Reference Checking in

Federal Hiring:

MAKING THE CALL

A Report to the President and the Congress of the United States

by the U.S. Merit Systems Protection Board

THE CHAIRMAN

U.S. MERIT SYSTEMS PROTECTION BOARD

1615 M Street, NW

Washington, DC 20419-0001

September 2005

The President

esident of the Senate

Speaker of the House of Representatives

Dear Sirs:

In accordance with the requirements of 5 U.S.C. 1204(a)(3), it is my honor to submit this Merit Systems

otection Board report, “Reference Checking in Federal Hiring: Making the Call.”

The Federal Government’s human capital is its most vital asset. It is crucially important that our

employment selection pr

ocedures identify the best applicants to strengthen the Federal workforce with well-

qualified and highly committed employees. Properly conducted reference checks are a key component of a

hiring process that will select the best employees from each pool of applicants. In particular, reference

checking is a necessary supplement to evaluation of resumes and other descriptions of training and

experience. By using reference checks effectively, selecting officials are able to hire applicants with a strong

history of performance, rather than those who may have creatively exaggerated less impressive achievements.

Reference checking also helps Federal employers identify and exclude applicants with a history of

inappropriate workplace behavior.

This report reviews the use of reference checking in public and private sectors, and identifies best practices

which, when follow

ed, increase the contribution reference checking makes to hiring decisions. There is

currently little standardization of Federal reference checking, and little training offered in how to conduct

this process effectively. Agencies can certainly improve in this regard. We also note that there are strong

legal protections for Federal employers who make reference checking inquiries and for former employers who

provide job-related information about applicants. MSPB recommends that agencies improve the quality of

their reference checking practices and check applicant references before making each hiring decision.

I believe you will find this report useful as you consider issues affecting the Federal Government’s ability to

select and maintain a highly qualified workfor

ce.

Respectfully,

Neil A. G. McPhie

Reference Checking in

Federal Hiring:

Making the Call

A REPORT TO THE PRESIDENT AND THE

CONGRESS OF THE UNITED STATES BY THE

U.S. MERIT SYSTEMS PROTECTION BOARD

U.S. Merit Systems Pr

otection Board

Neil A. G. McPhie, Chairman

Barbara J. Sapin, M

ember

Office of Policy and Evaluation

Director

Steve Nelson

Deputy Director

John Crum, Ph.D.

Project Manager

John M. Ford, Ph.D.

Project Analyst

James J. Tsugawa

able of Contents

Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .i

Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1

Reference Checking as an Employment Practice . . . . . . . . . . . . . . . . . . .5

Costs and Risks of Reference Checking . . . . . . . . . . . . . . . . . . . . . . . . . .13

Why Employers Do Not Check References . . . . . . . . . . . . . . . . . . . . . . . . . .13

Legal Issues Associated With Checking References . . . . . . . . . . . . . . . . . . . . .16

Benefits of Reference Checking . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21

Direct Benefits . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21

Long-Term Benefits . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .23

Best Practices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .25

Reference Checking Strategy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .25

Information From Applicants . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .29

Selecting Reference Providers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .31

Checking the References . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .33

Evaluating the Results . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .36

The Hiring Decision . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .37

Answering the Call: Providing References . . . . . . . . . . . . . . . . . . . . . . .39

Legal Issues for Reference Providers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .40

The Role of the Reference Provider . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .44

The Other Side of the Table: Advice for Applicants . . . . . . . . . . . . . . .47

Future Developments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .49

Some Possible Changes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .49

Sources of Information . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .51

Recommendations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .53

Executive Summar

eference checking is a common and familiar hiring practice. Minimally, a

reference check involves a conversation—usually a phone conversation—

between a potential employer and someone who knows the job applicant.

A properly conducted reference check is not an informal, gossipy exchange of

unsubstantiated opinions about a job applicant. Seven characteristics set reference

checking apart from casual conversation and make it a valid and useful component

of the hiring process.

Properly conducted reference checks are:

1. Job-related. The focus of a reference checking discussion is on an applicant’s

ability to perform the job.

2. Based on observation of work. The information provided by a reference

must be based on experience observing or working with a job applicant.

3. Focused on specifics. The discussion must be focused on particular job-

related information common to all job applicants to ensure fairness. Skillful

probing and comparing of information ensures that the process produces more

than a superficial evaluation.

4. Feasible and efficient. Because reference checking is focused, it can be

conducted quickly. It provides a reasonable return for the small amount of time

needed to do it well.

5. Assessments of the applicant. The information obtained from reference

checking may be used to determine whether an applicant will be offered a job.

Reference checking procedures therefore are assessments subject to employment

regulations, such as the Uniform Guidelines on Employee Selection Procedures,

and they must conform to accepted professional measurement practice.

6. Legally defensible. It is necessary for reference checks to meet high

professional standards, and reference checkers can meet these standards within

the constraints of the law.

7. Part of the hiring process. The purpose of the reference check is to

inform a decision about hiring. The results need to complement other

assessments used in that process.

A Report by the U.S. Merit Systems Protection Board

Executive Summary

A r

eview of best practices in hiring reveals that reference checking is widely

practiced in both public and private sectors. It is used both to verify information

obtained from job applicants, such as facts about previous employment, and to

assess skills and abilities relevant to the job to be filled. There is marked variation

in the degree to which employers structure and standardize reference checking.

Training in effective reference checking is often not available to those who must

conduct it. Increasing attention to structuring reference checking according to

best practices and shifting responsibility from human resources (HR) personnel to

hiring supervisors has the potential to raise the perceived and actual value of

reference checking.

Employers who do not check references give a variety of reasons. Checking

references may seem too time intensive when long-term benefits are ignored.

Employers may trust the referrals from friends or current employees, while ignoring

risks of perceived favoritism. Some employers want to avoid redundant

assessments, and mistakenly believe that reference checks are always duplicative of

other assessments. And some employers just do not want to risk uncovering

disconfirming evidence about a job applicant to whom they have become

emotionally committed.

Reference checking raises legal concerns as well. It is legal to request information

about an applicant’

s past job performance. Reference checkers in general have a

qualified immunity against charges of invasion of privacy so long as they restrict

their inquiries to job-related issues. Many organizations require applicants to sign a

formal waiver that gives reference checkers permission to discuss on-the-job

behavior with former employers. The Declaration for Federal Employment (OF-

306) form serves this purpose in Federal hiring. Reference checking is occasionally

made less reliable in Federal hiring when an employee is granted a “clean record” as

part of a settlement agreement with the former employer.

Conducting reference checks has a number of advantages. Direct benefits include

making better and more informed hiring decisions, impr

oving job-person match,

improving on self-report assessments of training and experience, demonstrating

fairness and equal treatment of all job applicants, and sending a message about the

high expectations of the employer. Longer term benefits include avoiding the costs

of a bad hire, maintaining employee morale by making quality hires, and gaining

the public’s trust that civil servants take hiring seriously.

Although reference providers are generally willing to disclose factual information

about an applicant’

s employment history, they may need to be persuaded through

skillful questioning to discuss sensitive topics or make evaluative judgments. Many

reference providers have misconceptions about potential liability associated with

providing information about former employees. However, providing reference

information need not be avoided—it can be done within the bounds of legality.

Reference providers should play their role carefully, but need not fear legal

consequences if they follow a fe

w guidelines. They should verify that a reference

Reference Checking in Federal Hiring:

Making the Call

Executive Summary

checker is legitimate.

They should avoid providing letters of reference because these

are less useful in reference checking. Reference providers can avoid the appearance

or actuality of maliciousness by keeping their comments focused on the applicant’s

job-related behavior. By providing examples and detailed descriptions, reference

providers ensure that their evaluative judgements are firmly grounded in reality.

Job applicants should support reference checking and play an active role in making

connections between reference checkers and reference providers. They should select

reference providers who have observed their work and who are available to

communicate their observations clearly and accurately. Applicants should be candid

about their strengths and weaknesses in the hiring process. Any less-than-flattering

information about the applicant is best communicated to the employer by the

applicant, rather than discovered during reference checking.

Reference checking will likely change in the future. Some anticipated sources of

change are shifts in patterns of business communication and the use of technology

innovations in assessment practice, and differences caused by the average length of

employment and probationary employment periods.

Given the state-of-the-art practice and potential of reference

checking as an assessment in Federal hiring, the following

is recommended:

1. Hiring officials should conduct reference checks for each hiring decision.

2. Hiring officials should develop and follow a thoughtful reference checking

strateg

y that is an integral part of the hiring process.

3. Hiring officials should use a consistent reference checking process that

treats all applicants fairly

, obtains valid and useful information, and

follows legal guidelines.

4. Agencies should require applicants to provide appropriate professional

refer

ences and make applicants responsible for ensuring that they can

be contacted.

5. Agencies should review and possibly revise their formal systems of records

so that supervisors may r

eview past performance information when

providing references.

6. Agency human resources personnel should require job applicants to

complete the Declar

ation for Federal Employment (OF-306) form early in

the application process.

7. Agencies should increase standardization of and training in effective

refer

ence checking techniques.

A Report by the U.S. Merit Systems Protection Board

iii

Executive Summary

The U.S. Office of Personnel Management (OPM) should develop

guidelines to help agency personnel follow appropriate procedures for

checking and providing references.

9. Supervisors and other employees should provide candid and appropriate

reference information.

Reference checking has an important role to play in the Federal hiring process. It

should be more than a formality conducted b

y administrative staff. It should be

more than a casual, unstructured phone conversation between supervisors. It

should certainly not be an illegal and inappropriate exchange of gossip about

unsuspecting applicants. Reference checking can improve the quality of the Federal

workforce by reducing the number of unqualified, unscrupulous, and otherwise

unsuitable applicants whose liabilities escaped detection during the earlier phases of

the hiring process. If reference checking is to reach this potential, it will require

cooperation among Federal hiring officials, applicants for Federal employment, and

reference providers. The U.S. Merit Systems Protection Board (MSPB)

recommends that agency policy makers, human resources professionals, hiring

officials, job applicants, and former supervisors of these applicants appropriately

utilize their roles to make reference checking work.

Reference Checking in Federal Hiring:

Making the Call

Background

any aspects of the Federal hiring process seem strange and unfamiliar to

job applicants from the private sector. Most have never encountered

rating schedules, veterans’ preference, multiple posting of job openings

under different hiring authorities, and other oddities of Federal hiring practice.

Some aspects of Federal hiring are more familiar, such as employment tests,

structured interviews, and reference checking. In both public and private sector

hiring, it is common for the employer to contact former supervisors and other

coworkers of job applicants to verify their employment histories and ask questions

that help determine their potential as new hires. This practice can make an

important contribution to the hiring decision.

This report highlights best practices that increase the value of reference checking to

the hiring process. It is argued that the benefits of conducting reference checks

outweigh the risks and potentially negative consequences. To improve the hiring

process, cooperation among job applicants, hiring officials, and reference providers

is recommended.

Reference checking is a common and familiar hiring practice. Minimally, a

refer

ence check involves a conversation—usually a phone conversation—between a

potential employer and someone who knows the job applicant. Reference checking

experts further refine the definition to describe a reference checking process that is

both useful and legal.

In doing so, they make it clear that a properly conducted

reference check is not an informal, gossipy exchange of unsubstantiated opinions

about a job applicant.

Rather, seven characteristics set reference checking apart

from casual conversation and make it a valid and useful component of the

hiring process.

Properly conducted reference checks are:

1. Job-related. As with a structured interview, the focus of a reference checking

discussion is on an applicant’s ability to perform the job. Legitimate job-related

See Edward C. Andler and Darla Herbst, The Complete Reference Checking Handbook (2nd Ed.),

Washington, DC: American Management Association, 2003; and Paul W. Barada and J. Michael

McLaughlin, Reference Checking for Everyone, New York: McGraw-Hill, 2004.

Barada offers the following definition: “A reference check is an objective evaluation of a candidate’s past

job performance, based on conversations with people who have actually worked with the candidate within

the last five to seven years.” (Barada, op. cit., p. 2) Similarly, Andler describes the reference check in these

terms: “The reference check is usually carried out by the hiring manager or employment staff and

determines actual competency on the job. This type of check involves an in-depth conversation with

someone who knows or has worked with the candidate.” (p. 156).

A R

eport by the U.S. Merit Systems Protection Board

Backgr

ound

topics include performance in past jobs, work habits, job-related competencies,

and appropriateness of past on-the-job behavior. Departures from this focus are

unprofessional at best—and may be counterproductive or even illegal.

2. Based on observation of work. The information provided by a reference

must be based on experience observing or working with a job applicant.

Personal references from outside the work context may be biased by the

provider’s relationship with the applicant. Even when personal references

provide candid and well-intentioned information, a characterization from this

perspective may not accurately reflect an applicant’s job performance. Reference

checking is crucially important as a way of obtaining information about a

candidate’s training and experience from a source other than the candidate.

Information from those who have observed the applicant does not suffer from

the biases of self-report and self-evaluation that are present in much of the

training and experience assessments used in Federal hiring.

3. Focused on specifics. A reference checking discussion in which the hiring

official passively hopes that useful information will be volunteered by the

reference provider or emerge by chance will rarely be a good use of anyone’s

time. The discussion must be focused on particular job-related information

common to all job applicants to ensure fairness. Skillful probing and comparing

of information is needed to ensure that the process produces more than a

superficial evaluation of each applicant.

4. Feasible and efficient. Because reference checking is focused, it can be

conducted quickly. Given a reasonable job analysis, developing reference

checking questions should not take a great deal of time. Reference checking is

most efficient when it is the final step in a multiple-hurdle assessment process.

It can be used to evaluate three finalist applicants, each of whom provides three

references, in a few hours of total time. Reference checks can provide a great

return for the small amount of time needed to do them well.

5. Assessments of the applicant. The information obtained from reference

checking has high-stakes implications—applicants may or may not be offered a

job as a result. As assessments, reference checking procedures are subject to

employment regulations, such as the Uniform Guidelines on Employee Selection

Procedures,

and must conform to accepted professional measurement practice.

As an assessment, reference checking must be thoughtfully combined with other

assessments used to hire. It should supplement or complement, not merely

duplicate, other assessments of job qualifications.

According to Title 5, U. S. Code, §2302 (b)(10), it is a prohibited personnel practice to discriminate

based on the personal conduct of an employee or applicant, unless such conduct adversely affects the on-the-

job performance of the employee/applicant or others. Criminal convictions are exempted from this

prohibition, and may be considered in employment decisions.

Section 60-3, “Uniform Guidelines on Employee Selection Procedures,” 43 FR 38295 (29 C.F.R Part

1607), August 1978.

Principles for the Validation and Use of Personnel Selection Procedures (4th Ed.), Bowling Green OH:

Society for Industrial and Organizational Psychology, 2003; and Standards for Educational and Psychological

Testing, Washington, DC: American Educational Research Association, 1999.

Reference Checking in Federal Hiring:

Making the Call

Backgr

ound

6. Legally defensible. It is not only necessary for reference checks to meet

high professional standards—it is possible for reference checkers to meet these

standards within the constraints of the law. By following the guidelines in this

report, hiring officials checking references can request and obtain information

about job applicants without fear of legal consequences. Reference providers can

share job-related information with the same level of protection.

7. Part of the hiring process. The guiding purpose of the reference check is

to inform a decision about hiring. This cannot happen if it is performed too

late in the hiring process to affect the outcome. Nor can it happen if there is no

formal way to integrate the results of the reference check into the hiring process.

It is important to distinguish reference checks from two similar hiring activities that

are bey

ond the scope of this report.

Records checks may also be job-related and play a r

ole in employment decisions,

but they involve straightforward fact gathering from official document sources that

may be far removed from the applicant’s former work environment. They do not

necessarily include probing of the information obtained and may not yield

sufficient information to substantially influence an employment decision. Records

checks can often be safely delegated to administrative or HR personnel who need

not have experience with the job being filled.

Useful records-checking procedures include verifying the dates of employment, job

titles, salary histor

y, and other information from an applicant’s resume. Some of

this information can be sought during a reference check, but this should not be the

primary focus. Depending on the particular position being filled, employers may

be required to conduct criminal records checks (sometimes called “court checks”),

verify citizenship status or otherwise determine eligibility for employment, or verify

that applicants hold necessary licenses or credentials. Some records checks create

obligations for employers who conduct them. For example, if an employer obtains

credit information from credit reporting organizations, the Fair Credit Reporting

Act requires that this information be shared with applicants and that they be given

an opportunity to correct or respond to any negative findings. In addition,

employers are obligated to keep such information confidential and not share it with

third parties.

The importance of verifying educational credentials has recently been highlighted in

the Federal sector by public exposure of several agency officials who lack the

educational qualifications claimed on their resumes. Verification of college degrees,

transcripts, and other pertinent records is necessary given the negative impact on

agency performance and credibility when applicants falsify their way into positions

of public trust. This verification can be accomplished in a straightforward manner

by contacting the records office in each degree-granting institution. It is also

The Fair Credit Reporting Act (FCRA) is found in Title 15 of the U.S. Code, §1681. See

www.ftc.gov/os/statutes/fcra.htm.

A Report by the U.S. Merit Systems Protection Board

Backgr

ound

prudent to verify the legitimacy of the granting educational institution as well as the

individual claims of an applicant.

Background investigations are more comprehensive than reference checks, and

involve scrutiny not only of applicants’ work history, but also details about their

friends, family, professional associations, financial transactions, and personal habits.

These investigations play an important role in selecting employees for positions of

high trust. The focus is on the trustworthiness and integrity of applicants, as

evidenced by their behavior and relationships with others over a long period of

time. The investigations are performed by specialists trained to probe and analyze a

great deal of information about each applicant.

In contrast, reference checks are

conducted with a sample of former coworkers by hiring officials. Reference checks

focus on job-related skills and behavior rather than larger issues of character

or suitability.

One additional perspective on reference checking is in order. Like rating schedules,

evaluation of r

esumes, and numerous other assessments, reference checking focuses

primarily on applicants’ past behavior and accomplishments. It relies on the

behavioral consistency principle—that the most reliable predictor of future

behavior, such as job performance, is past behavior. This principle has a long and

productive history in employee selection. It can be a strong basis for hiring

decisions when an applicant’s past work settings and responsibilities are similar to

those expected in the future.

Reference checking verifies an applicant’s description

of past experience and allows the reference checker to evaluate how closely this

experience matches the requirements of the job.

See, for example, “Purchases of Degrees from Diploma Mills,” U.S. General Accounting Office, GAO-

03-269R, Washington, DC, November 2002; and “Diploma Mills: Federal Employees Have Obtained

Degrees from Diploma Mills and Other Unaccredited Schools, Some at Government Expense,” U.S.

General Accounting Office, GAO-04-771T, Washington, DC, May 2004. See also the resources for

checking the accreditation of educational institutions on the Department of Education Web site

(www.ed.gov/admins/finaid/accred/).

The specific requirements for Federal background investigations are contained in 5 C.F.R. Part 731.

See Frank L. Schmidt, J. R. Caplan, Stephen Bemis, R. Decuir, L. Dunn, and L. Antone, “The

Behavioral Consistency Method of Unassembled Examining,” U.S. Office of Personnel Management,

Personnel Research and Development Center, Washington, DC, 1979. When the past and anticipated

future jobs are less similar, or when a candidate has experienced significant personal development or other

change, the behavioral consistency perspective has less value. In these circumstances, assessments that

measure candidate ability directly, or future-oriented assessments, such as situational judgment tests, should

be given greater weight in a hiring decision.

Reference Checking in Federal Hiring:

Making the Call

Reference Checking as an

Employment Practice

n examination of current employment practice reveals that reference

checking is widely accepted. However, there is considerable variation in

what information is requested from reference providers, the quality of

information they actually provide, and how employers use this information.

Reference checking among Federal employers, as will be shown later in this section,

may become more standardized in the future due to greater emphasis by the Office

of Personnel Management (OPM). An overview of reference checking in both

public and private sectors follows.

Widely Practiced. Checking references is a widespread, but by no means

universal, hiring practice. Professional reference checking firms indicate that

roughly half of employers perform some form of reference checking as a routine

part of the hiring process.

Interviews conducted by the Corporate Leadership

Council (CLC) revealed that five of the six private sector companies they studied

conduct reference checks as a regular step in hiring.

A recent regional staffing

survey found that reference checking was the most commonly used (85 percent)

pre-employment screening procedure.

Surveys of human resources professionals

by the Society for Human Resource Management (SHRM) indicate that just over

half (52 percent) of employers have a formal policy that governs the reference

checking process, and fewer than half (38 percent) have a clear, written policy.

might be expected, most reference checking (85 percent) is done by phone.

Employers tend to check references more often when hiring managerial or

professional-level employees and less often when hiring administrative or technical

employees.

There is considerably less reference checking for part-time or

Andler, op. cit.; Barada, op. cit.

“Trends in Reference Checks for Professional-Level Employees,” Washington, DC: Corporate Leadership

Council, 2004.

“16th Annual Thomas Staffing Survey Results,” Irvine, CA: Venturi Staffing Partners, 2001.

Downloaded from www.thomas-staffing.com on July 5, 2004.

SHRM has conducted two recent surveys of human resource professionals about reference checking

policies and practices in their organizations. The first report (SHRM Reference Checking Survey, Alexandria,

VA: Society for Human Resource Management, 1998) is based on 854 responses (32 percent) to surveys faxed

to 2,640 randomly selected SHRM members in July 1998. The second report (Mary Elizabeth Burke,

2004 Reference and Background Checking Survey Report, Alexandria, VA: Society for Human Resource

Management, 2004) is based on 345 responses (18 percent) to surveys emailed to 1,926 SHRM members.

While participants reported on reference checking in a variety of organizations across the United States, only

a small percentage of the participants (5 percent in 1998, 6 percent in 2004) worked in local, State, or

Federal agencies. These were primarily private sector surveys.

SHRM 1998, op. cit.

Barada, op. cit.; SHRM 2004, op. cit.

A R

eport by the U.S. Merit Systems Protection Board

Reference Checking as an Employment Practice

temporary hires than for full-time positions. This pattern may be due to the greater

perceived cost of making a “bad hire” when hiring permanent, higher salaried

employees. It may also be due to the, presumably, more highly developed

professional and social networks among professional employees, which provide a

greater number of potential contacts from whom to obtain information. There is

also some indication that organizations check references less often when qualified

applicants are scarce and positions are harder to fill. Clearly, there is a great deal of

variation among organizations in specific reference checking policies and practices.

Assess Applicant Integrity. Many organizations use reference checks to assess

applicant integrity. Nevertheless, organizations often differ in the kind of

information they expect from reference checks. A scan of the popular business and

HR literature reveals that reference checks are frequently used to identify deliberate

exaggerations and outright misrepresentations of experience and work history. The

readers of this literature will find case studies of individuals hired into positions of

great responsibility and trust who misuse resources, make bad decisions, and

generally wreak havoc within their employing organizations —unfortunate

consequences that might have been avoided had the employer “done its

homework.” While research has shown that measures of honesty and integrity can

be useful for pre-employment screening purposes, reference checks can provide a

less resource-intensive proxy for these formal integrity tests.

Employers implement this “integrity test by proxy” by collecting information from

applicants about former employers, length of employment, job titles,

responsibilities, salary, and other verifiable details. The employers then contact

reference providers and ask them to verify this information. This allows employers

to identify applicants who have been dishonest in their application. Many

employers believe that such deception is an indication of the applicant’s likelihood

of being dishonest as a future employee. Consequently, they will remove an

applicant from consideration for lying on a job application or resume.

Some will

also remove an employee if this behavior comes to light after hiring.

While this strategy clearly identifies some dishonest applicants, less is known about

those who slip through. C

rafty applicants who exaggerate or embellish their work

histories, or who provide carefully coached “personal” references, may still be

successful in their deceptions when reference checking is not done carefully.

Assess Other Competencies. Reference checks are also used to assess job-

related competencies not adequately assessed in other ways. The competencies

assessed through reference checks can range from highly technical competencies

specific to an applicant’s former job responsibilities to more general competencies

common to all work environments. Reference providers are often requested to

For a recent review, see Iain Coyne and Dave Bartram, “Assessing the Effectiveness of Integrity Tests: A

Review,” International Journal of Testing, vol 2, no 1, pp. 15–34.

SHRM 1998 research cited previously found that 90 percent of employers who check employment

history have found falsification by applicants. The most frequently falsified information is length of

employment, salary, and job title. As a result, most (96 percent) of the organizations SHRM surveyed state

on job applications that any falsification is grounds for removal from consideration. The 2004 survey found

a similar pattern.

Reference Checking in Federal Hiring:

Making the Call

Reference Checking as an Employment Practice

evaluate applicants’ abilities to communicate, work on a team, and get along with

others in the workplace.

Most employers use this information as a check or

additional perspective on their impressions of these abilities from applicant

interviews and application materials.

Often, when there is little formalization of the information obtained from reference

pro

viders about an applicant’s proficiency level, information obtained in this

manner is treated as confirming or disconfirming information from other parts of

the assessment process in an informal “pass or fail” manner. Some employers

acknowledge this informality by describing reference checking as part of a “sniff

test” intended to turn up anything missed by formal assessment.

Perceived Value Varies. Although as discussed earlier, reference checking is

very common in the private sector, there is some variation in how much the

information obtained from reference checking is valued. For example, CLC reports

that some organizations that check references are satisfied with the information they

obtain, but give it little weight in the hiring decision.

Some differences of opinion about the value of reference checking are related to the

type of information that different employers try to obtain. In a 1998 survey,

SHRM found that employers are highly satisfied (91 percent) with results when

they inquire about factual matters such as work history. They are less satisfied (45

percent) with information that involves some judgment or opinion, such as whether

a previous employee would be rehired. Employers also report low satisfaction with

information obtained about more complex characteristics such as job qualifications

(30 percent), interpersonal skills (19 percent), and personality characteristics (17

percent). Finally, employers report quite low satisfaction (30 percent) with

information obtained when asking about an applicant’s violent or bizarre behavior

in the former work setting.

Reference checking, then, as it is often practiced, is considered effective to verify

facts, less so to obtain judgments and sensitive information or as an alternativ

e to

direct assessment for job-related competencies. A comparison of the 1998 and

2004 SHRM survey findings reveals a greater tendency in recent years for reference

checkers to focus on verifying facts than to address more complex issues. But is this

an inherent limitation of reference checking or just the perception of these reference

checkers? Before concluding the former, two additional issues should be

considered.

First, there seems to be variation in the quality of reference checking procedure.

SHRM’s 2004 sur

vey found that 81 percent of organizations that do reference

checking employ standardized questions. While this level of standardization is

commendable, it does mean that one-fifth of the organizations surveyed do not

have a structured questioning process. Without standardization of core reference

checking questions, it becomes a more difficult and more subjective task to compare

information obtained from different reference providers. Of greater concern is the

SHRM 1998, op. cit.; SHRM 2004, op. cit.

“Trends in Reference Checks for Professional-Level Employees,” op. cit.

A Report by the U.S. Merit Systems Protection Board

Reference Checking as an Employment Practice

fact that only half of reference checking organizations offer their reference checkers

some kind of training in the process.

Under conditions of low standardization and

training, reference checkers might well be more successful in eliciting simple facts

from reference providers than in obtaining more complex or sensitive information.

The second issue concerns who conducts the reference checks. SHRM has

consistently found that many organizations delegate refer

ence checking to HR

personnel.

Survey research conducted with human resources specialists who check

references has found that many of these individuals do not believe references

provide credible information.

This perception of limited usefulness may result in

reference checking being given a low priority. When reference checking is a low

priority, it may not be done, or may be done in a perfunctory and ineffective

manner. Unstructured, inconsistent, and unreflective reference checks may not

produce useful information. To practitioners who are unfamiliar with best

practices, this poor return may seem intrinsic to reference checking as a method.

Agency Reference Checking Also Varies. In the Federal employment

arena, as in the workplace generally, there is also considerable variation among

agencies in reference checking practice. OPM, the Federal Government’s central

human resources authority, provides little direct guidance on the topic of reference

checking. The Delegated Examining Operations Handbook

advises agencies to

verify information provided on the job application or resume, but does not specify

how this should be done. OPM’s Strategic Human Resources Policy group

reinforces the status of reference checking as an assessment and emphasizes agency

responsibility to use valid assessments, but currently provides no detailed guidance

for best practices in checking references.

MSPB gathered information about reference checking by Federal employers in a

recent governmentwide survey.

Results indicated that most (76.5 percent)

supervisors who had hired a professional or administrative employee included

reference checking as a component of the hiring process. Reference checks were

SHRM 2004, op. cit., found that 52 percent of organizations surveyed offer reference checkers training

in “detecting red flags” and only 44 percent offered general training in conducting effective reference checks.

SHRM 1998, op. cit., reports that 67 percent of surveyed organizations delegate reference checking to

HR personnel. SHRM found that 15 percent of employers contracted reference checking to outside

contractors and only 14 percent had reference checks conducted by the individual who would manage the

candidate in the new job. This trend persisted in 2004 (SHRM 2004, op. cit), with 61 percent of reference

checks conducted by HR personnel, 17 percent by managers, and 17 percent by outside contractors.

“Trends in Reference Checks for Professional-Level Employees,” op. cit.; Lawrence S. Kleiman and

Charles S. White. “Opinions of Human Resource Professionals on Candor of Reference-Givers,”

Psychological Reports, vol 74, no 1, pp. 345–346.

Delegated Examining Operations Handbook, Washington, DC: U.S. Office of Personnel Management

(OPM), 2003.

Some agency personnel misunderstand the distinction between reference checking and background

investigation and as a result contact OPM’s investigations unit, which does not provide official guidance to

agencies looking to improve their reference checking practice.

For a description of this governmentwide survey, see The Federal Workforce for the 21st Century: Results of

the Merit Principles Survey 2000, Washington, DC: U.S. Merit Systems Protection Board, September 2003.

The results reported here are from a subset of 311 Federal managers with recent Federal hiring experience.

Reference Checking in Federal Hiring:

Making the Call

Reference Checking as an Employment Practice

used along with other assessment methods, most often with evaluation of

application materials, personal recommendations, level of education, and

unspecified “other” assessments. The majority of supervisors (77.6 percent) believe

that reference checking predicts job performance to either a very great or moderate

extent. A greater number of managers find credibility in the predictive utility of

prior work experience (95.7 percent) and employment interviews (92.6 percent).

Reference checks are viewed as valuable predictors of job performance more often

than personal recommendations, college grade point average, college major, or

written tests. Federal managers see reference checking as having about the same

predictive value as level of education.

To better understand how agencies use reference checking, MSPB researchers

discussed its role in hiring with managers and human resources specialists from six

Federal agencies.

Discussions revealed variation in practice among the agencies

comparable to that reported in the private sector. Some agencies expect human

resources specialists to check references, while others leave reference checking to the

discretion of hiring officials. Some agencies provide reference checking training if it

is requested, but no agency personnel reported any standardized procedure followed

in their agency. One agency devotes a small section of its supervisor training

manual to reference checking, but the official who drew attention to this section

lamented that this topic received much less attention than other supervisory

responsibilities.

This was not a formally constructed sample. The goal was to examine the range of reference checking

practices in Federal agencies by talking with practitioners in several very different work contexts.

A Report by the U.S. Merit Systems Protection Board

Work

Experience

Interviews

Resume

Other

Education Level

Reference Checks

College

Major

Personal Recomm.

College GPA

College Reputation

Written

Tests

Supervisor

View

of Selection Tools

•

Rely

on When Making

Hiring Decisions

Believe is a Good Prediction

Job Performance

20% 30% 40% 50% 60% 70% 80% 90% 100%

Reference Checking as an Employment Practice

The content of reference checking inquiries varied across agencies as well as within

agencies. Whereas some personnel follow a strict practice of only verifying

information provided in the job application, others address job performance and

qualifications more broadly, asking reference providers to evaluate applicants’

communication or interpersonal skills. Several reported that their agency had

recently “caught” applicants who provided false information on job applications.

They reported greater attention to reference checking as a result of these incidents.

Most saw reference checking as useful, but none thought it provided better

information than interviews, formal testing, or other formal assessments used in

their agencies. Reference checking was universally regarded as a last step in hiring

that had some chance of identifying an unqualified or dishonest applicant.

All agency personnel contacted were well aware that reference checking inquiries

must be job-related to remain within legal bounds. Several provided detailed

explanations of general employment interviewing techniques, including the

inappropriateness of discussing applicant gender, ethnicity, religion, or other private

matters. Although most reported some concern about legal risks of reference

checking, few had personally encountered problems or knew of any problems

within their respective agencies. Several pointed to the HR literature as the source

of their concerns. This recurring concern for legal consequences, despite little

evidence of any such consequences, matches what is reported from the private

sector.

This concern will be discussed further when the risks and benefits of

checking references are reviewed.

Growing Emphasis in Federal Hiring. Reference checking practice in the

Federal sector may be changing. OPM has issued a “45-Day Hiring Model”

designed to accelerate the hiring practice and allow agencies to meet staffing needs

quickly.

Agencies are expected to use this model effectively in order to receive an

acceptable (“green”) score for their performance on the President’s Management

Agenda.

OPM has included reference checking as one of the eight recommended

hiring actions in this model.

It remains to be seen what long-term effects this guidance will have. Is the 3-to-5-

day time frame recommended b

y OPM for checking references sufficient? Will

agencies follow OPM’s recommendation to check references, or will they accelerate

the hiring process further by skipping this step? Will agencies conduct reference

checks with appropriate care and use the resulting information responsibly? While

the effects on future practice are yet unclear, OPM’s emphasis on reference checking

is likely to encourage its use, as well as increase the discussion of best reference

checking practices in Federal hiring.

SHRM 1998, op. cit.; SHRM 2004, op. cit.

Kay Coles James, “The 45-Day Hiring Model,” Memorandum for Heads of Departments and Agencies,

Washington, DC: U.S. Office of Personnel Management, May 6, 2004.

“The President’s Management Agenda,” Washington, DC: Executive Office of the President, Office of

Management and Budget, 2002, www.whitehouse.gov/omb/budget/fy2002/mgmt.pdf.

Reference Checking in Federal Hiring:

Making the Call

Reference Checking as an Employment Practice

Realizing the Potential. Clearly the quality of reference checking varies in

both private and public sectors. It is difficult to determine the potential of

reference checking as a hiring practice when little distinction is made between

standardized, well-designed reference checks conducted by trained supervisors who

are familiar with the position being filled and informal, unstructured reference

checks conducted reluctantly by untrained and disinterested HR personnel.

Employment interviews once suffered from an uncertain reputation as assessments.

It was not until practitioners and researchers distinguished between unstructured

interviews and interviews structured according to best practices that the strengths of

structured interviews became apparent.

Similarly, the strengths of properly

conducted reference checks will become more apparent when they are distinguished

from less formal efforts.

The Federal Selection Interview: Unrealized Potential, Washington, DC: U.S. Merit Systems Protection

Board, February 2003.

A Report by the U.S. Merit Systems Protection Board

Costs and Risks of

Reference Checking

hecking references is a straightforward process that requires minimal time

from hiring officials and much less training, organizational support, and

applicant cooperation than many other hiring practices. Many employers,

applicants, and reference providers endorse it. Some hiring officials do not perform

reference checks, however. Reluctance to check references stems primarily from

resource constraints in the operational environment of the hiring organization.

Legal concerns also emerge from regulations and agency policy governing applicant

privacy and appropriate dissemination of workplace information.

Why Employers Do Not Check References

Lack of Time. Checking references may seem like an unnecessary step in the

hiring process. Hiring officials and their employees are busy and have other

demands on their time. By the time references are checked, it is typically late in the

hiring process. An employer has narrowed the original pool of applicants to a small

number of seemingly superior finalists. It may seem redundant to check references

when other assessments have already been used.

This is a valid concern, but managers must consider not just costs but the cost-

benefit tradeoff of conducting reference checks. A few phone discussions for a

small, final set of job candidates require very little time. The potential benefit of

uncovering useful information is high relative to this small cost.

Trusted Referral. Reference checking may seem unnecessary if a job applicant

has been referred or endorsed by a trusted colleague of the hiring official. This

conclusion can be particularly tempting when the recommending source is a high-

performing current employee. Experience has shown that this can increase the

chances that the applicant will be another high-performing employee.

However, reference checking may still be useful in this situation for a number of

reasons. The hiring official needs to confirm any such judgment. In order to avoid

a situation that might appear to involve some sort of favoritism, the selecting

official should make an extra effort to confirm that the information received from

trusted sources is accurate. It is important to avoid even the appearance of

See, for example, Emilio J. Castilla, “Social Networks and Employee Performance in a Call Center,”

American Journal of Sociology, vol. 110, no. 5, pp. 1243–1283.

A R

eport by the U.S. Merit Systems Protection Board

Costs and Risks of Reference Checking

favoritism or unfair preference. This is a central concern in public sector

employment, where prohibited personnel practices formally forbid favoritism.

Reliance on a personal connection may create additional awkwardness when new

hires do not work out and must be removed during the probationary period—and

charges of favoritism are more likely.

Not for Certain Types of Employee. Some employers may avoid checking

references for professional or managerial employees because they believe it is

insulting or that people at this level should not be subjected to this kind of scrutiny.

However, experience has shown that people hired at all levels commit dishonest acts

or may lack key competencies needed to perform in a specific job. The cost of a

bad hire is multiplied at levels of greater responsibility not only due to higher salary

costs, but also to the greater potential damage of poor or marginal performance.

Conversely, some employers believe that applicants for lower paid positions should

not be subjected to refer

ence checks. They reason that it is “not worth it” for this

level of employee. This is the same rationale behind the low incidence of reference

checking for temporary employees. This is shortsighted. In highly interconnected

and team-oriented environments, all employees have important roles to play. Less-

than-satisfactory performance as well as dishonesty in any employee has a high cost,

not only in wasted time and resources, but also to the reputation of the employer.

Redundant Assessment. Some particular reference checking questions may

indeed be unnecessary if the important job-related qualifications have been assessed

by other means. Two questions should be asked before dispensing with reference

checks, however. First, do the other methods have high validity to assess these

competencies? Many assessment methods have demonstrated generally greater

validity than reference checks.

Even so, the validity of any assessment method in

practice can be greatly reduced by poor implementation or mismatch with the

competencies being assessed. Reference checks may provide much better

information than other assessments as they are actually implemented. They may

also serve as a way to improve on these assessments by helping hiring officials to

decide between similarly rated applicants.

Second, are the assessments credible? Hiring officials should carefully consider how

other assessments depend on “self-r

eports,” or information supplied about the job

applicant by the job applicant. Resumes, rating schedules, and other self-reports of

training and experience may be subjected to rigorous expert scrutiny and formal

evaluation processes. It can still be difficult to distinguish between well-

Title 5, U. S. Code, §2301, states that hiring officials should not solicit or consider employment

recommendations based on factors other than personal knowledge or records of job-related abilities or

characteristics.

For a discussion of some validity issues associated with checking references, see Michael G. Aamodt,

Mark S. Nagy, and Naceema Thompson, “Employment references: Who are we talking about?” paper

presented at the annual meeting of the International Personnel Management Association Assessment

Council, June 1998. For a discussion of the comparative validity of different assessment methods, see Frank

L. Schmidt and John. E. Hunter, “The validity and utility of selection methods in personnel psychology:

Practical and theor

etical implications of 85 years of research findings,” Psychological Bulletin, vol. 124, no. 2,

pp. 262–274.

Reference Checking in Federal Hiring:

Making the Call

Costs and Risks of Reference Checking

documented stellar per

formance and a “good story” cribbed from the

accomplishments of others. Rather than solving this problem, automated staffing

systems can make it worse by creating a false sense of security about the

“objectivity” of self-report data once they reside in a database.

The problem of unreliability in self-report assessments has a straightforward

solution: verification using sources other than the applicant. Reference checking is

one approach to such verification. Records checks and a second “hurdle” of direct

assessments with applicants are variations of the same strategy. Nevertheless,

reference checks are less expensive than most direct assessments and, unlike records

checks, allow probing as additional information is uncovered. They are important

components of any hiring process that relies on self-reported training and

experience data.

Fear of Bad News. Although it is not usually advanced as a deliberate rationale

for omitting a reference check, sometimes hiring officials just may not want to risk

hearing bad news. A hiring official may become convinced during the decision

process that a future star employee is within reach. (“It has taken so long to find a

good prospect. Why raise any issues that could delay or derail this hire?”) This fear

can lead to delaying or avoiding reference checking, while emphasizing positive

information already identified about the applicant. Even when references are

checked, reference checkers may avoid pursuing any lines of questioning that call

their impression of applicants into question.

The inadvisability of avoiding

potentially bad news is plain—this is not a good reason to leave references

unchecked. Further, hiring officials should trust their intuition if they realize that

they “fear” bad news about a particular applicant. This impression may come from

information about the applicant that does not “add up.” Reference checking is the

appropriate method to resolve this type of uncertainty.

Fear of Legal Consequences. Some private sector employers, and some

agency hiring officials as well, worry about legal repercussions when they inquire

into a prospective employee’s background. Some incorrectly believe that it is illegal

to discuss employee performance with an employee of another organization. As a

result, some hiring officials may neglect reference checking, or perform it in a

perfunctory manner, asking only “softball” questions about inconsequential aspects

of the applicant’s former employment.

Although there are some legal issues, much of this fear is unwarranted. So long as

refer

ence checkers focus their inquiries on job-related issues and treat all applicants

equitably, reference checking is a legally defensible activity. The next section

reviews the key legal considerations associated with reference checking.

Identifying Talent through Technology: Automated Hiring Systems in Federal Agencies, Washington, DC:

U.S. Merit Systems Protection Board, August 2004.

This so-called verification bias has been identified and formally studied in several different types of

decision processes. The general recommendation to counteract it is to actively seek information that is

potentially disconfirming. For an overview of the verification bias, see P. C. Wason and P. N. Johnson-Laird,

Psychology of Reasoning: Structure and Content, Cambridge, MA: Harvard University Press, 1972.

A Report by the U.S. Merit Systems Protection Board

Costs and Risks of Reference Checking

Legal Issues Associated With Checking References

There are four primary legal concerns associated with reference checks. The first

involves misconception about the legal risks of checking references. Organizations

that check references must also be concerned about invasion of an applicant’s

privacy in the information they request. An additional concern is the possibility of

negligent hiring accusations when employers do not take sufficient care to check an

applicant’s background. Finally, “clean record” settlement agreements increase the

possibility that reference checks of former Federal employees may be ineffective in

determining the true abilities of that employee.

Misconceptions. Reference checkers may be hampered by incorrect beliefs held

by agency officials, potential reference providers, and others. A recurring

misconception among those asked about reference checking is that discussing

performance or job-related behavior of an employee is not legal. It is certainly

possible to conduct reference checking in an irresponsible manner that exposes an

employer, or agent thereof, to claims of discrimination or allegations that the

reference checking resulted in damage to an applicant’s privacy or reputation. As a

general rule, actionable legal claims result from poor practice—they are not

inherent in reference checking any more than libel is inherent in newspaper

publishing. The key is responsible practice.

More detailed recommendations for productive and defensible reference checking

practice will be revie

wed in a following section. It suffices here to outline the

general guidelines for reference checking. First, all questions asked about applicants

should relate to the requirements of the job and to employee performance and

conduct in their previous job. Second, reference checkers should avoid asking

about employee behavior outside the workplace, particularly about religious

practices or other private matters.

Invasion of Applicant Privacy. Concerns about privacy stem from a long

history of legal interpretation of the U.S. Constitution’s Bill of Rights.

It is now

clear that American citizens enjoy a constitutionally grounded “right to privacy.”

The right to privacy has been enhanced further by the passage of statutes such as

the Privacy Act of 1974. Violation of this right can provoke litigation and result in

civil penalties.

However, the right to privacy is not absolute. Employment laws recognize that

employ

ers have special needs to access work history information.

Past and

potential employers have generally been granted a “qualified immunity” to discuss

the employment-related performance and behavior of employees with each other.

This immunity means that employment-related questions about an applicant’s

See, for example, Griswold v. State of Connecticut, 381 U.S. 479 (1965).

Title 5 U.S. Code §1302, 3301.

Harlow v. Fitzgerald, 457 U.S. 800 (1982). For a recent review, see Markita D. Cooper, “Job Reference

Immunity Statutes: Prevalent But Irrelevant,” Cornell Journal of Law and Public Policy, vol. 11, no. 1, pp.

1–68, 2001.

Reference Checking in Federal Hiring:

Making the Call

Costs and Risks of Reference Checking

behavior may, as a general rule, be asked and answered with minimal risk of legal

liability so long as an applicant’s rights are not knowingly violated.

Applicant Waivers. Some private sector employers introduce an additional

level of protection against invasion of privacy claims. They require job applicants to

sign a waiver that does the following:

1. Specifically authorizes the potential employer to contact references to discuss

an employ

ee’s competence, performance, and suitability;

2. Affirms that all information in application materials is accurate; and

3. Releases the employer and reference providers from liability resulting from

appropriate r

eference checking discussions.

Many waivers provide protection for applicants as well by outlining the reference

checking procedur

e and the general type of questions that will be asked.

A waiver requirement may seem to unnecessarily duplicate protection already

present in the law

. Applicants grant an implied waiver by applying for a job when

reference checking is an announced part of the hiring process. However, not only is

the express written waiver stronger legal protection, it has additional advantages.

First, it may convince some applicants not to risk misrepresenting themselves.

Second, it may reduce the costs an employer could incur from defending its right to

check references. A poorly informed applicant might challenge a reference checking

procedure unsuccessfully, but still require the employer to expend resources in

defense. This is less likely to occur when the applicant has formally acknowledged

the employer’s right to check references.

The Declaration for Federal Employment (OF-306) contains a waiver that is signed

by applicants for F

ederal employment. The waiver states, “I consent to the release

of information about my ability and fitness for Federal employment by employers,

schools, law enforcement agencies, and other individuals and organizations to

investigators, personnel specialists, and other authorized employees of the Federal

Government.”

The Federal Circuit has stated that “OPM has the authority to

require all individuals to complete all appointment forms, including the OF-306

and SF-86 forms, even after the date on which the appointment takes place.”

Unfortunately, it has become common practice for applicants not to receive this

form until the hiring process has concluded. In such cases the OF-306 does not

extend protection to reference checking activities and does not set applicant

expectations that information may be obtained from former employers.

Harlow and its progeny; The Privacy Act of 1974 (Privacy Act).

Barada, op. cit., p. 42, recommends that this waiver explicitly state that “the person seeking employment

gives away his or her right to privacy in exchange for the opportunity to gain employment.” SHRM 1998,

op. cit., found that 86 percent of the organizations they surveyed require job applicants to sign such formal

waivers allowing former employers to be contacted and references to be checked. SHRM 2004, op. cit.,

found only a slight decrease (to 72 percent) in the waiver requirement.

Available from OPM’s Web site at www.opm.gov/forms/pdf_fill/of0306.pdf.

McFalls v. Office of Personnel Management, 49 Fed. Appx, 312 (Fed. Cir. Oct. 10, 2002).

A Report by the U.S. Merit Systems Protection Board

Costs and Risks of Reference Checking

Several agency HR personnel raised the applicant waiver issue. They highlighted

advantages of the structured SF-171 job application formerly required of all Federal

job applicants. They acknowledged that accepting resumes introduces greater

flexibility and reduces applicant burden. However, the SF-171 sets applicant

expectations appropriately by making the issue of contacting previous supervisors

explicit much earlier in the hiring process. They affirmed that the OF-306 is often

deployed too late. The advantages of accepting resumes for agencies and applicants

alike argue against the return of the SF-171. However, it would be a simple change

to require applicants to sign an OF-306 in time to check the references of a final set

of candidates for each job vacancy.

Negligent Hiring. In a typical negligent hiring claim, an injured party alleges

that an employer knew or reasonably should have known that another employee

was unfit for the job for which he or she was employed. The harmed employee’s

case hinges on a showing that the employer’s act of hiring created an unreasonable

risk of harm. In the private sector, the legal risk for negligently hiring an employee

is real and significant. In the Federal Government, however, the legal risk for

negligent hiring is minimized by the sovereign immunity of the United States from

suit. Sovereign immunity is a legal concept applicable to the Federal Government

that serves to immunize the government from lawsuits except to the extent that the

immunity is waived by a Federal statute. The Federal Tort Claims Act (FTCA) is a

statute that provides a limited waiver of sovereign immunity. The FTCA is the

exclusive remedy for common law torts committed by Federal employees acting

within the scope of their employment. The FTCA exempts certain acts and

omissions by Federal employees, including the exercise of discretionary functions

such as the hiring, supervision and training of employees. The courts have rejected

FTCA claims involving negligent hiring, supervision and training of employees,

finding that they fall within the “discretionary function exception.”

Nonetheless,

a prudent course may be to assume that such immunity is never certain.

An employer’s best protection against a negligent hiring claim is to conduct a

reasonable inquiry into an applicant’s work history—a reference check—and, of

course, an employer must do this effectively and impartially with each applicant

under serious consideration for employment.

Hiring officials also need to

maintain perspective on this risk by remembering that it rarely becomes an issue.

SHRM found that few of the (mostly private sector) organizations it surveyed about

reference checking practices had ever been accused of negligent hiring. The

majority of survey participants (97 percent) were sure that no claim had been made

against their organization in the previous three years.

Less formal discussions with

See, e.g. Tonelli v. U.S., 60 F.3d 492 (8th Cir. 1995); KW Thompson Tool Co. v. U.S., 836 F.2d 721

(1st Cir. 1988); Cuoco v. Bureau of Prisons, 2003 WL 22203727 (SDNY 2003).

Based on this team’s research, all but one Federal Circuit that has addressed the issue has rejected, on

sovereign immunity grounds, negligent hiring claims brought by victims of assault or battery. See, for

example, Cuoco v. U.S. Bureau of Prisons, 2003 (SDNY 2003); Tonelli v. United States, 60 F.3d 492 (8th Cir.

1995); K.W. Thompson Tool Co. v. U.S., 836 F.2d 721 (1st Cir. 1988).

Andler, op. cit., p. 51; Barada, op. cit., p. 135.

SHRM 2004, op. cit. In 1998, SHRM reported that 90 percent of participating organizations had not

had a negligent hiring claim in the previous 3 years.

Reference Checking in Federal Hiring:

Making the Call

Costs and Risks of Reference Checking

Federal agencies found similar results—little direct experience with this legal issue,

but definite concern about the possibility.

Clean Records. The final legal issue, the impact of “clean records” upon the

reference checking process, does not constitute an immediate risk for reference

checkers, but can affect the accuracy of information obtained from Federal

Government employers. A “clean record” generally refers to an employee’s official

employment record that has been altered in a manner favorable to the employee as

a result of a settlement agreement between the employee and an employer. A

typical “clean record” settlement agreement contains a promise by the employer to

treat the employee “as if the employee had a clean record,” or words to that effect.

The agreement may also contain the employer’s agreement to remove adverse

information from the employee’s official employment record. In some cases, as the

result of a “clean record” settlement agreement, a former supervisor or human

resources specialist may know of inappropriate behavior or poor performance by a

job applicant, but may not be free to release or discuss this information. In these

cases, agency personnel cannot discuss the employee’s record candidly without

violating the settlement agreement.

While there is no empirical data addressing the percentage of applicants that possess

“clean r

ecords,” the number is likely relatively small. First, common sense suggests

that the number of employees who have entered into settlement agreements is

comparatively small in relation to the large number of Federal employees. Second,

“clean record” settlement agreements have come under increased criticism in recent

years, especially within the public sector. For instance, the U.S. Court of Appeals

for the Federal Circuit (Federal Circuit) observed that “such agreements invite

trouble.” The Federal Circuit explained that a “clean record” is problematic because

“[t]he employee expects, perhaps unrealistically, that with a ‘clean record’ potential

employers will be unable to find out about adverse actions taken by the former

employer. The former employer, when asked, must either outright lie, or attempt

some artful evasion which, because other employers now recognize what these

agencies do, in fact fools no one.”

Another constraining factor is the difficulty

that agencies face in fully implementing “clean record” agreements and the ease

with which they can be inadvertently breached.

Notwithstanding the difficulties resulting from “clean records,” the fact remains that

such agreements continue to occur

. As a result, there is a risk that an applicant who

has engaged in past misconduct or was a poor performer, but who has an artificially

“cleaned” record, will be hired by a misinformed employer. As of the date of this

report, there does not appear to be a published legal decision that addresses a claim

of negligent hiring related to a clean record settlement agreement. Hiring officials

should, nevertheless, consider the possibility of a clean record when they encounter

references who offer only basic facts about an applicant’s previous employment

without a convincing reason for withholding further information. This is a

particular concern when an applicant provides references from the former

employer’s human resources staff rather than from the previous work team.

Pagan v. Department of Veterans Affairs, 170 F.3d 1368 (Fed. Cir. 1999).

A Report by the U.S. Merit Systems Protection Board

Costs and Risks of Reference Checking

While r

eference checking is not accomplished without some risks, prudent practice

allows the reference checker to avoid them. The risks of engaging in appropriate

reference checking are minimal. And, as the next section demonstrates, reference

checking has benefits beyond protecting an employer from charges of negligent

hiring practices.

Reference Checking in Federal Hiring:

Making the Call

Benefits of Reference Checking

Direct Benefits

his section summarizes the benefits of conducting thorough and disciplined

reference checks. Some benefits are near-term and straightforward. Others

are better characterized as risks or problems avoided by reference checking

and may be less appreciated.

Make Better Hiring Decisions. Reference checking is part of a larger effort to

identify the best available applicant for each open position. While other forms of

competency assessment such as structured interviews, assessment centers, traditional

tests, and even some training and experience measures have greater measurement

validity than has yet been demonstrated for reference checking, it can still play an

important role when combined with other assessments. Because it draws upon the

judgment of those who have observed applicants over time on the job, reference

checking is less influenced by applicant “faking,” and other distortions of short-

term, direct assessments. It, therefore, can contribute to the hiring decision by

supplementing rather than duplicating other assessments.

Improve the Job-Person Match. Reference checking is often seen as

benefiting only the employer, while working against the interests of dishonest or

underqualified applicants and inconveniencing everyone else. However,

information obtained from reference checking can help both employers and

applicants better understand an applicant’s profile of strengths and weaknesses. A

discussion with the previous supervisor can yield insights about what developmental

stage an applicant has reached in his or her career path. It is true that such

information can be used to screen out an applicant. However, it can also be used to

identify initial training experiences and provide appropriate opportunities for

development of a new hire. Proactive employers take the opportunity to gather

developmental information to ease transition of new hires into an organization.

Improve Assessment of Training and Experience. Reference checking

makes its strongest contribution as a check on the facts reported in job applications

and resumes, and the experience claimed on training and experience measures such

as rating schedules or accomplishment records. This is particularly important in

As a single measure, reference checking has a validity of .26. It is generally better than unstructured

interviews or personal recommendations in predicting job performance and not as effective as cognitive

abilities tests or structured interviews. For the definitive discussion of the merits of combining different

types of assessments to better predict job performance, see Frank L. Schmidt and John E. Hunter, op. cit.

A R

eport by the U.S. Merit Systems Protection Board

Benefits of Reference Checking

Federal hiring, where the majority of hiring officials (95.6 percent) assess prior work

experience and weigh it heavily in the hiring decision.

When applicants describe their prior experience straightforwardly and accurately, it

can be evaluated with reasonable reliability by HR staff or by senior experts familiar

with the advertised job. When applicants plausibly exaggerate their work

experience, however, their applications can receive inflated ratings from even an

experienced reviewer. When reference checking includes probing discussion of an

applicant’s prior work experience, particularly the experience highlighted in job

application materials, this distortion can often be detected. Reference checking can

produce a more accurate picture of an applicant’s accomplishments that is not

distorted by self-serving bias, either deliberate or unintentional, from the applicant.

Assess Applicant Honesty. Reference checking allows hiring officials to not

only correct resume inaccuracies, but take special notice of blatant or pervasive

distortions that signify conscious deception by the applicant. Unsurprisingly, OPM

governmentwide job analysis studies have identified integrity and honesty as a key

competency in a large number of occupations.

Although important, or even

“critical” to success in these occupations, this competency is rarely assessed because

of the difficulty of measuring it directly.

Reference checking is not a foolproof

assessment of this competency either, but can be used in conjunction with responses

to structured interview questions to identify applicants who misrepresent their

work-related experience. Removing such applicants from consideration is an

important goal of the assessment process.

Demonstrate Fairness and Equal Treatment. Because reference checks are

a familiar aspect of hiring, almost everyone recognizes them as part of the hiring

process. As references are checked, more people become aware of the employer’s use

of this method. They know that an employer would be unlikely to check references

if the hiring decision were predetermined in favor of a given applicant or driven by

a single formal test. The open-ended nature of reference checking demonstrates

that an employer is willing to look for information about applicants from more

than one source. Conducting reference checks thoroughly demonstrates not only

that the employer is trying to hire the best, but that each applicant under final

consideration is being given due consideration.

Send a Message About Organizational Values. By using reference

checks to verify information provided on resumes and job applications, employers

send a message that honesty is expected of applicants during and after the hiring

process. They also likely cause a certain amount of self-screening by applicants who

might otherwise exaggerate their skills and work experience. This same strategy is

The Federal Workforce for the 21st Century, op. cit.

Human Resources Manager, Washington, DC: U.S. Office of Personnel Management, 2003.

A recurring concern with assessments of integrity and honesty is their “fakeability”—the degree to which

a dishonest but clever applicant can deduce the strategy behind many of the questions and respond as an

honest person would. Reference checks can provide a source of information other than the applicant that

can help distinguish accurate information from plausible falsehoods (and seeming falsehoods from

implausible correct information).

Reference Checking in Federal Hiring:

Making the Call

Benefits of Reference Checking

used by homeowners who display signs warning potential burglars about their alarm

system—do not try to rob me, because here you will be caught.

Long-Term Benefits

Avoid Costs of a Bad Hire. A “bad hire” can damage an organization’s

effectiveness directly through dishonesty or poor performance. There are additional

long-term costs. First, there is the cost of recruiting and hiring a replacement once

the employee is removed or moves on. There are also staff, resource, and other

costs associated with fixing whatever problems the employee may have caused or

allowed to happen.

By reducing the number of bad hires made by your

organization, reference checking can help keep the costs of turnover down.

Maintain Employee Morale. The consequences of a bad hire include indirect

costs as well. If an employee is not competent to perform his or her job, the work

still needs to be done. Usually it will be done by other employees who must do it

in addition to their own full-time responsibilities. This reduces employee

motivation to perform—in either role. Nor is this the only effect. Honest

employees become angry and less committed to the organization when they

perceive that one of their colleagues has been hired or promoted because of false

claims about training and experience. Failure to detect this practice or the apparent

indifference of management can cause honest employees to question either their

own policy of honesty, or whether that policy might be better appreciated by

another employer. It can also undermine employee confidence in a hiring official’s

judgment and commitment to the workplace.

Gain Public Trust. Reference checking has benefits beyond the immediate

hiring process for each applicant. Increasing the degree to which reference checking

is done reduces the chances that unqualified or dishonest employees move from

agency to agency while remaining in the Federal workforce. This is a particular

concern in Federal agencies, where employees are routinely entrusted with sensitive

data, public resources, and citizen welfare. Hiring officials eager to staff quickly by

transferring an employee from another Federal agency are particularly vulnerable to

having a problem employee passed to them. Once such employees have passed

through their 1-year probationary periods, they are more difficult to remove.

Checking references discourages shortsighted managers from allowing this type of

employee to remain employed. It may even help some marginal employees improve

by closing off one strategy they use to avoid improvement.

Barada, op. cit., p. 114, cites one private sector survey that reported the total cost of hiring the wrong

person as three times the annual salary of the position. For similar discussion of the cost of hiring decisions,

see Lyle M. Spencer, “The economic value of competency-based human resource applications: Measuring

the ROI of selection, training and performance management,” 1998.

Andler, op. cit., p. 220, describes a 2-year study in which a private sector company instituted reference

checking and reduced new employee turnover from 16 out of 29 new hires (55 percent) to 2 out of 22 new

hires (9 percent). This difference was attributed primarily to the improved quality of hires resulting from

reference checking.

The Probationary Period: A Critical Assessment Opportunity, Washington, DC: U.S. Merit Systems

Protection Board, September 2005.

A Report by the U.S. Merit Systems Protection Board

Best Practices

eference checking is done most effectively when it has been thoughtfully

integrated into the hiring process. While there is some chance a hiring

official will stumble across useful information during an unstructured

conversation with someone who knows the job applicant, a well-prepared reference

checking strategy can greatly increase the probability that such information will be

uncovered. A well-planned process will not only yield useful information, but will

increase the hiring official’s confidence in the results when the process fails to

uncover negative information.

Best practices recommended in the professional literature and by agency HR

personnel can be usefully organized into six steps. The six steps listed below can be

followed as a formal process to conduct reference checks effectively.

1. Create a reference checking strategy.

2. Obtain information from applicants.

3. Select the reference providers.

4. Conduct reference checking discussions.

5. Evaluate results of reference checking.

6. Make a hiring decision.

The following sections outline strategies for each of these steps. These practices

need to be adapted to the needs of each hiring decision, and not all

ecommendations will apply to each hiring pr

ocess. Accordingly, agency hiring

officials are encouraged to thoughtfully adapt these practices to their needs and

unique circumstances.

Reference Checking Strategy

Some decisions about reference checking need to be made long before a hiring

official reaches for the phone to call the first reference provider. If reference

checking is attempted before clear decisions have been made about these issues, the

results will be of limited value and may even be misleading. To create a strategy for

their next hiring decision, agency officials should have solid answers to the

following questions.

What Information Is Needed? Employers should carefully consider what the

job requires, what will already be known about applicants at the point in time when

references are checked, and what kinds of information can best be obtained through

A Report by the U.S. Merit Systems Protection Board

Best Practices

reference checking. Some questions may be suggested by the results of prior

assessments, such as responses to structured interview questions or gaps in an

applicant’s work history.

Questions about a particular issue should be included in reference checking if the

issue is job-related, information is still needed about it at this point in the hiring

process, and information can be obtained from people who have worked with the

applicant. If an issue is not job-related, potential employers should not be

inquiring about it as part of the hiring process. If it has been addressed sufficiently

with previous assessments and no verification is needed, there may be little need to

duplicate the assessment. Finally, if it is not an issue about which former

supervisors and coworkers can provide good information, other assessment strategies

should be used.

After filtering potential reference checking topics through this decision procedure,

hiring officials may find that their refer

ence checking strategy includes a subset of

the following topics and corresponding reasons:

1. Checking the validity of information obtained from job applications or

intervie

ws to determine if the applicant has been dishonest.

2. Checking whether an applicant has fabricated or exaggerated self-report

information to determine whether conclusions drawn from this information

e accurate.

3. Clarifying developmental needs of applicants to determine what post-hire

training or development oppor

tunities to provide.

4. Discovering inappropriate behavior patterns of applicants to maintain a safe

and efficient workplace, and to pr

otect the employer from charges of

negligent hiring.

5. Assessing competencies that have not been otherwise adequately assessed

earlier in the hiring process.

The first two strategies can be pursued b

y checking a subset of information

pro

vided by applicants. It is important to check the same kind of information with

all the reference providers for each applicant. The same specific items of

information should be checked across applicants to ensure equal treatment. When

following the third strategy, the reference checker should still begin with a standard

set of questions. The fourth strategy must be pursued with greater subtlety.

Certainly the reference checker should ask directly about problem behaviors. It is

also necessary to listen closely to the reference provider’s responses and probe when

he or she seems reluctant to talk. Assessing new competencies is possible with

reference checks, but should be reserved for competencies that help distinguish

between well-qualified candidates. “Must-have” competencies call for direct

assessments early in the hiring process when individuals who do not possess them

can be eliminated from a larger applicant pool.

Which Applicants Should Be Checked? Check all who are under active

consideration at the point in the process when reference checking is performed. An

employer may not target a subset of applicants for reference checking based on their

age, gender, ethnicity, or membership in any protected class. It is a dubious

Reference Checking in Federal Hiring:

Making the Call

Best Practices

practice to target a subset of applicants based on factors in their backgrounds that

may be more prevalent in one demographic subgroup, as doing so may create the

appearance of intentional discrimination or even the actuality of adverse impact.

Reference checkers need to be fair by checking the references of all active applicants.

When During the Hiring Process? If reference checking is done too early, it

may seem more fair to applicants, but can become prohibitive in terms of resources.

If it is done too late, the results may not actually inform a hiring decision. Of

course, when reference checking is done to confirm information from other parts of

the hiring process, such as work history information from the applicant’s resume,

self-ratings from training and experience measures, or structured interview results, it

needs to occur after this information has been obtained from applicants. As a

practical matter, reference checking is usually done after the field has been narrowed

to a handful of candidates. This usually means that it is the final prehire

assessment.

How Much of the Process Should Be Standardized? Adopting a rigidly

standardized set of questions is not recommended. Such a standard question set

would quickly be captured by reference providers, shared with applicants, and

probably would become an appendix in the next “how-to” guide that coaches

applicants in the Federal hiring process. This would reduce the value of reference

checking by making it easier for applicants to coach reference providers with

canned responses.

Instead, there should be a standard set of questions for each vacancy

announcement. O

nce a strategy has been designed that matches both the abilities

needed for effective job performance and the type of information available from

applicants, this will drive development of the specific reference checking questions.

Asking the same core set of questions of each will achieve two goals. The first is to

produce comparable information from each reference provider for an applicant.

The second is to allow some degree of comparison among applicants. Of course,

reference providers will vary in how they answer these questions. Resulting

“probes” and follow-up strategies will produce different conversations. Effective

reference checkers will likely customize some questions based on an applicant’s

resume and will certainly formulate follow-up questions based on the emerging

needs of the reference checking discussion. But the same purpose—and therefore

the same set of initial core questions—should be at the heart of each reference

checking discussion.

What Specific Questions Should Be Asked? Even the most cooperative

reference provider will shy away from a lengthy phone discussion, so there are

practical limits to the number of reference checking questions that can be asked.

Hiring officials will have to select from all possible questions according to their

usefulness in filling each position. To help with this task, this section outlines

Probationary periods, typically lasting 1 year, are the last “assessment” in the hiring process for

employees new to Federal employment because their appointments are not final until this period is

complete. See Title 5 U.S. Code §3321.

A Report by the U.S. Merit Systems Protection Board

Best Practices

desirable characteristics of questions and suggests how to decide which questions

to use.

Each question should address a specific need identified as part of the reference

checking strategy. Reference checkers should have clearly in mind the reason for

asking each question and the type of information it is intended to elicit.

Such

questions are linked to important competencies, and responses can be compared

directly with information obtained from applicants. When the questions are

developed, it may be helpful to include one or two examples of both useful

responses that “answer” the question and inadequate responses that require further

questioning. Such examples can help reference checkers decide when to probe for

more information.

The general form of the questions should be open-ended, prompting reference

pro

viders for information and encouraging them to engage in description.

Questions and probes for further information should encourage reference providers

to give specific examples of the applicant’s behavior. (“Can you describe one

specific occasion when Paula took a “long lunch” and did not finish her work on

time?”) It is fine to ask reference providers to use their judgment, but each

evaluative statement should be supported by at least one example. (“Leslie really

understands the way his supervisor thinks. In our staff meeting last week, he was

able to finish most of her sentences for her.”) This prevents misunderstanding and

encourages reference providers to be fair and accurate.

Reference checking specialists suggest a sequencing strategy for questions based on

the rapport that dev

elops between reference checker and reference provider as the

discussion proceeds.

An interview should begin with fact-oriented questions that

verify resume material or training and experience claims. Then the interview can

progress to more evaluative discussion of the applicant’s past performance and

competencies. Finally, the discussion should address the applicant’s developmental

needs. Discussion of more sensitive information, such as potentially inappropriate

workplace behavior, should occur late in the interview as well. This general

ordering strategy is consistent with similar recommendations for ordering questions

on survey questionnaires and in other types of interviews.

Who Will Contact the References? Reference checking specialists strongly

recommend that the person who will be supervising the new employee contact

references.

It is important that the reference checker know the requirements of the

job. It is also an advantage when the reference checker is the same person who has

interviewed the applicant. Due to the skill needed in questioning, reference

checking should not be delegated to an administrative assistant or less experienced

employee. Nor should it be delegated to human resources personnel unless they are

familiar with the job and working environment. There is, however, some

justification for HR specialists to do reference checking if the job requires repeated

One effective strategy for creating targeted reference checking questions is to begin with the rating

schedule or structured interview questions that will be used in the same hiring process.

Andler, op. cit.

Andler, op. cit.; Barada, op. cit.

Reference Checking in Federal Hiring:

Making the Call

Best Practices

hiring, since human resources personnel can be trained and become proficient in

reference checking for particular occupations.

References should not be checked by anyone who has a personal stake in hiring a

particular applicant. One obvious example of a personal stake is if the applicant is a

relative or close friend. Agencies should also consider that such stakes may be

emergent. By the time references are checked, the hiring official may have become

emotionally invested in a particular applicant. It is important to raise the issue so

agency personnel can recognize it and use their judgment about how to best solve it.

One agency contacted for this study assembles hiring teams made up of senior

employ

ees in the target occupation. This makes the requirements for

standardization of the reference checking process explicit and involves senior

employees who both know the job and are able to perform some of the duties of

the hiring official.

Information From Applicants

The precise information obtained from applicants will depend on the specifics of

the hiring official’s reference checking strategy. The following general guidelines

will help keep reference checking on target and produce information that is both

relevant and comparable across applicants.

Permission. Applicants grant implied permission to check references when they

apply for a job. The legal status of this permission is strengthened when it is

formalized in a document signed by the applicant. Using a standard form for this

document establishes reference checking as a standard business practice of the

employer. Applicants for Federal jobs complete and sign form OF-306 at some

point during the selection and appointment process. By signing this form, they

acknowledge an agency’s right to contact previous employers and verify information

about employment history. Unfortunately, many applicants are not required to sign

this form until the selection process has concluded. Agencies should recognize the

value of the OF-306 to reference checking and introduce it when the pool has been

reduced to a small number of well-qualified candidates.

Work History. Employment history information provided on an applicant’s

resume and other application materials is useful in three ways. First, it is a source

of verifiable facts about the employee’s background that can be checked to identify

dishonest applicants. For this strategy to succeed, the employer must specify the

kind of information needed about each former job. Job announcements should

specify what information is needed about applicants’ skills and how they are to

demonstrate their proficiency. Second, these materials also contain evidence about

the applicants’ capabilities in various aspects of their former jobs. This evidence can

be verified during reference checking, but only if it has been provided.

The third type of information is indirect and often overlooked. Work histories also

contain information that identifies refer

ence providers. Some contacts, most

commonly former supervisors, are listed by name. Others, such as project managers

A Report by the U.S. Merit Systems Protection Board

Best Practices

or customers, are implied by the applicant’s descriptions of duties and work activities.

It is good practice to request that applicants provide additional information about

key players in their work histories so they can be treated as reference providers.

Contact Information—and Assistance. Employers usually require applicants

to provide phone numbers of reference providers. Reference checking specialists

suggest that the entire process can be made more effective and efficient when the

applicant becomes even more involved. Honest, well-qualified applicants who have

provided solid references are often motivated to facilitate contact between reference

checkers and reference providers by double-checking phone numbers, providing

both parties with copies of resumes, job announcements, and other relevant

documents, and helping them make contact. This approach can accelerate the

reference checking phase of hiring and has the additional effect of assuring the

reference provider that the reference checking discussion has the applicant’s

support.

Self-Evaluations. Some assessments of training and experience require

applicants to both describe their work-related competencies and evaluate their

proficiency level for each ability. If your reference checking strategy includes asking

reference providers to verify these evaluations, this information must be obtained

from applicants prior to reference checking.

To ensure comparability of their evaluations, reference providers must have access to

the same rating scales, examples, and other information used by applicants to self-

aluate. Any significant discrepancies between the applicant’s and the reference

provider’s evaluation of applicant skill should reflect differences in their judgment

about the applicant’s experience, rather than different frames of reference.

Reference checkers should recognize that reference providers and applicants will

have small differences of opinion and must use their judgment in deciding what

constitutes a significant discrepancy.

Interview Information. Reference checking is often used to verify information

obtained from applicants through structured interviewing. When this is done, the

record of the interview must be sufficient so that the information obtained can be

communicated accurately to reference providers. When interview results are not

verified through reference checking, it is sufficient for interviewers to take notes

that will help them complete a rating form shortly following the interview. Notes

from interviews that will be reused in reference checking discussions must be

detailed and descriptive, particularly if references are to be checked by someone

other than the interviewer.

What Will They Say? It is useful to remind applicants during employment

interviews that key information will be verified with others. Interviewers can

remind applicants to be candid when answering questions by asking them how

former supervisors or coworkers would answer the same question. This supports a

basic goal of reference checking—to authenticate assertions made by applicants

using evidence supplied by reference providers.

Andler, op. cit.

Reference Checking in Federal Hiring:

Making the Call

Best Practices

Selecting Reference Providers

Reference providers should be carefully selected to play their role in effective

reference checking. Several factors should be considered to select reference

providers with the most useful perspectives on applicants and their potential to

perform appropriately and well.

Let the Applicant Choose—With Guidance. It is a common practice to

request “three references” from job applicants and accept these three names as the

only references that will be checked. It makes sense to obtain information from

applicants, and their wishes about contacting current supervisors should certainly be

respected so as not to jeopardize their current employment situation. However, this

does not mean that applicants should be in complete control over the selection of

reference providers. Employers should make it clear that reference providers must

meet their expectations for high-quality reference providers. Information in the

following sections can be shared with applicants to clarify the standard expected.

Emphasize Shared Job Experience. Acceptable reference providers must

have experience observing the applicant on the job. Two factors are important—

how long reference providers worked with the applicant, and how long ago they

worked together. A common rule of thumb suggests that applicants and reference

providers should have worked together for at least 6 months within the last 5 years.

Note that this requirement acknowledges that predictions based on behavioral

consistency have their limits. Because people develop and change, information

about behavior from the distant past is much less useful in predicting future

behavior.

If the job in question requires particular skills, it is legitimate to require

that reference providers have observed the applicant performing these skills. (“We

need to talk to someone who has edited one of your technical reports.”)

Some modification of this requirement is advisable when an applicant has not been

in the workfor

ce recently or at all. College professors or high school teachers may

be acceptable reference providers for recent graduates entering the job market.

They can provide some perspective on an applicant’s work habits and general

abilities. Applicants who have been out of work for long periods will have difficulty

finding acceptable substitutes from among associates in professional associations

and social circles. The hiring official should be flexible when such circumstances

arise, but be cautious about accepting substitutes for coworkers when the applicant

does have a history of employment.

Note that some former employers will refer reference checking inquiries to human

resour

ces personnel. However, HR personnel can likely verify only basic

employment information and should therefore not be relied on as sources of

reference information.

The principle of time decay in the value of information about work history and personal behavior is

more important than any strictly observed number of months or years. Not only do applicants change, but

reference providers have all of the normal human weaknesses in remembering the past accurately.

A Report by the U.S. Merit Systems Protection Board

Best Practices

Focus on Supervisors. Supervisors have not only observed the applicant on the

job, most will have evaluated the applicant’s performance in a formal appraisal

process and offered individualized feedback for improvement. Their perceptions are

valuable for an additional reason—they have had training and experience in

evaluating employee performance. In most cases they have kept records of their

performance evaluations and have had the opportunity to observe the applicant

perform in a number of different circumstances and develop over time. Supervisors

are the “gold standard” of reference providers. It is good practice to talk to at least

one supervisor at each place the applicant has worked recently.

Some caution is appropriate in interpreting information from performance

appraisals. Their greatest value is as a memory aid to a former supervisor who is

describing an applicant’s behavior as observed on the job. The reference checker

should probe for specific examples of this behavior rather than relying on summary

evaluations such as “outstanding” or “excellent.” Performance appraisals are, or

should be, based on performance standards that can be very specific to the

applicant’s former job. An applicant who was an “excellent” writer of office memos

may not meet the reference checker’s expectations of excellence in a technical

writing job. It is often necessary to probe for the basis of these evaluations so this

behavior can be matched to the standards or expectations of a different job.

Include Other Perspectives. Other perspectives are valuable as supplements

and, if unavoidable, as substitutes for the supervisory perspective. Many reference

checkers look for a mix of immediate supervisors, second-level supervisors, peers,

and, if applicable, employees who have reported to the applicant. Former

coworkers who have retired or moved on to other jobs can be valuable sources.

They are familiar with their former workplace, but can offer a perspective that is

less embedded in its pressures and politics. Even close friends who have worked

with the applicant can provide useful information if the questioning is thorough

and the reference checker probes for details.

Check Three Times. It is traditional for applicants to supply three references. It

is not clear how this “magic number” originated, but reference checking professionals

support it.

SHRM’s 1998 survey results indicate that practitioners check an

average of 2.7 references for each job applicant, possibly reflecting their attempts to

contact three reference providers. A more thoughtful standard is to check with

three reference providers, then consider whether the pattern of results is consistent.

If it is not, checking additional references to resolve incongruities is prudent.

Involve the Applicant. An effective strategy advocated by one reference

checking specialist is to involve the applicant directly in securing the cooperation of

reference providers.

This makes it plain to reference providers that applicants are

willing participants in the reference checking process. As a result, reference

providers are more likely to feel personally committed to the process. They

are less likely to hide behind a real or invented “official” policy to provide

minimal information.

Barada, op. cit., p. 45.

Barada, op. cit.

Reference Checking in Federal Hiring:

Making the Call

Best Practices

Find More Reference Providers. Sometimes reference checkers will need to

talk with additional reference providers beyond those supplied by the applicant.

This may occur for a number of reasons. One or more of the applicant’s original

sources may be unavailable. The applicant may have changed jobs a number of

times in the recent past, requiring additional sources to provide an adequate

perspective on performance in each work setting. The reference checking process

may have uncovered a discrepancy among reference providers or between their

account and that of the applicant. In any of these cases, additional reference

checking may be needed to achieve a clear picture of the applicant.

It is a reasonable strategy to find additional reference providers with useful

information by simply asking each provider for more contacts. This strategy,

though uncommon,

has much to recommend it. Like the applicant, reference

providers are familiar with the applicant’s former work setting and can identify

others who have worked with the applicant sufficiently to evaluate their workplace

behavior. Unlike the applicant, they are not directly motivated to cast the applicant

in a positive light—and may identify reference providers the applicant would not

mention.

Reference providers can be asked to make such referrals at the end of

the reference checking discussion. They will have the reference checking questions

in mind and will be in a good position to consider who can answer them well. Of

course, the applicant should give permission to contact any newly identified

reference provider before such contact is attempted.

Checking the References

The reference checking discussion is really a specialized type of interview. This

being the case, reference checkers should follow general guidelines for business

interviews with regard to etiquette, respect, and time management, although those

general issues will not be discussed in this report. Instead, several issues specific to

reference checking discussions are presented.

Dealing With Refusals. Reference checkers will encounter potential reference

providers who are reluctant to play their requested role. If the applicant has

completed a formal authorization of the reference checking process, such as the OF-

306, it may help to inform the potential reference provider of this fact. Reference

checkers can also outline the general benefits of providing reference information.

They can clarify their determination to focus on documented facts and honestly

SHRM 1998, op. cit., p. 8, survey results indicate that only 22 percent of HR specialists surveyed use

this method to expand the pool of reference providers. In 2004, SHRM did not inquire about the use of

this technique.

Some caution is appropriate when the potential reference providers are coworkers in the applicant’s

current job setting—particularly when he or she has requested that the current supervisor not be contacted.

Informing the applicant’s coworkers that he or she is looking for another job is inconsiderate and not a good

way to build trust with a future employee. The applicant should be encouraged to provide appropriate

references from another work setting. If this is not possible, the applicant may need to make a specific

choice between allowing reference checking to proceed with current coworkers or not proceeding through

the hiring process.

A Report by the U.S. Merit Systems Protection Board

Best Practices

held opinions about the applicant. Reference providers should also be reminded

that they will not be stating an official position of their organization.

Some additional techniques may persuade reluctant reference providers. Reference

checkers can offer to contact them at home or away from their office or at a more

convenient time. This informal approach may put them at ease and make them

more comfortable discussing their work setting. A more official approach will tend

to remind them of their organization’s official policy and therefore may yield

minimal information. Reference checking specialists report that the vast majority of

people will talk to reference checkers, even if they are initially reluctant.

If this approach is not successful, some hiring officials do not mind becoming more

assertive. They are willing to emphasize that references must be checked prior to

employment and the nonprovider might become responsible for the applicant not

getting a job offer. Or they ask if the refusal should be interpreted as meaning that

the reference provider would not be saying positive things about the applicant.

This situation may benefit from additional involvement by the applicant to remind

the reluctant reference provider that the reference checking process has his or her

full support. The availability of alternate reference providers, the time pressure to

make a hiring decision, and the personal style of the reference checker will

determine how many of these techniques a reference checker is willing to use.

Ask Standard Questions. Developing a consistent set of reference checking

questions that elicit the information needed from reference providers is important;

so is actually asking these same questions of each reference provider. The reference

providers for different applicants must be treated consistently. It is important to

treat all applicants equally and to obtain comparable information about

each applicant.

Provide Exhibits. When possible, reference checkers should provide copies of

the job announcement and other information about the job sought by the

applicant. Reference checkers should encourage applicants to share their resumes

with reference providers, but are best advised not to provide such copies themselves

because of privacy concerns. Reference checkers can also supply an “interview

agenda” containing an outline of the anticipated discussion and a sample of

questions to be asked. Such an agenda encourages reference providers to take

reference discussions seriously and to answer all questions.

Encourage Description. An effective reference checking strategy is to simply

encourage reference providers to talk. Some will need very little encouragement.

This begins with open-ended questions that encourage reference providers to

describe their experiences working with the applicant. Reference providers should

also be asked to provide specific examples that show how the applicant has

demonstrated each relevant skill. Any question that can be easily answered with a

single word does not encourage them to do this.

Andler, op. cit.

Reference Checking in Federal Hiring:

Making the Call

Best Practices

Listen. As reference providers talk, reference checkers should listen carefully to

what they say. The telephone format of reference checking interviews means that

extensive note-taking will not be observed by the reference provider and will not

seem inattentive or rude. Taking notes allows the reference checker to listen closely

and record key information.

Reference checkers should be particularly vigilant for the following:

1. Any indication that any of the applicant’s claimed work history comes as a

surprise to the refer

ence provider;

2. Hesitations or changes in the reference provider’s speaking pattern that

indicate uncertainty or discomfor

3. Slowness or seeming reluctance to respond to particular questions or confirm

particular information;

4. V

oice tremors or “canned” responses that may indicate fabrications.

It is also important to consider that each person has his or her own speech patterns.

Some people speak mor

e slowly or with a greater number of hesitations than the

norm. It is important not to hastily conclude that they are being evasive if their

speech seems unusual compared to others.

Instead, reference checkers should

form an impression of the normal patterns of a reference provider’s speech during

the early part of the discussion. Then the reference checker can be more

appropriately attuned to speech that is unusual for that reference provider during

later discussion of more sensitive topics.

Ask Probing Questions. Any ambiguities or inconsistencies that are related to

the job should be clarified. Often a general probing question, such as “Can you tell

me more about that?” will produce the additional information. Sometimes it may

be necessary to ask more specific questions. When asking follow-up questions, it is

important not to lead the reference provider by suggesting a possible answer, then

asking if the reference provider agrees with it. (“When Eric drew those symbols on

the wall, it probably made the other employees very uncomfortable. Isn’t that right,

Donna?”) The reference provider’s role is to supply details; the reference checker

guides discussion into areas of interest and captures the reference provider’s

descriptions. Occasionally it may be necessary to call one reference provider back

to clarify inconsistent information from another reference provider.

When a reference provider responds to questions with generalizations or

evaluations, the r

eference checker should determine whether they are supported by

evidence. This evidence should be detailed and verifiable. In this situation, the

best strategy is to use probing questions that ask for specific details. The most

effective response to a reference provider’s generalization is: “Can you give me an

example?”

Record. Reference checkers need to keep track of what each reference provider

says so this information can be compared to what has been supplied by the

Paul Ekman, Telling Lies: Clues to Deceit in the Marketplace, Politics and Marriage, New York: W.W.

Norton & Co., 2001.

A Report by the U.S. Merit Systems Protection Board

Best Practices

applicant. Memory alone is not reliable—particularly when references are checked

for many applicants with many more reference providers. Reference checkers

should use a form with questions and spaces for answers. These records should also

include time and date of each discussion, who conducted it, and other information

that links the information to the applicant hiring process. Agency HR personnel

could encourage standardization and effective practice by designing a template

reference checking form to be used by hiring officials in their organization.

Avoid Inappropriate Topics. While there is no need to be artificially rigid, it

is best for reference checkers not to stray from a businesslike focus on the task of

reference checking. Experienced employment interviewers are unlikely to ask about

inappropriate or forbidden topics. Forbidden topics include gender, race, color,

religion, national origin, age, and sexual orientation.

Casual conversation can be

dangerous as well because it can so easily stray into questionable territory. This can

create the impression of an undisciplined process or that hiring will be based on

issues that are not job-related.

When reference providers venture into inappropriate territory, it is important to

change the focus of the discussion. R

eference providers will need various levels of

encouragement to return to an appropriate focus on job-related issues. Have

available a range of responses that adapt to how persistent the reference provider is

in returning to inappropriate topics. The first time such a topic is introduced, the

reference checker should tactfully discourage the topic by ignoring it. If this is not

effective, the next step is to refocus the discussion by asking a question about

another (job-related) issue. If these indirect efforts are not successful, the closing

strategy is to directly state that the topic does not have a place in an employment-

related discussion.

Evaluating the Results

It is necessary to evaluate the results obtained from reference checking. This

includes deciding whether individual reference providers seem to have given honest

and accurate information, resolving any discrepancies among reference providers or

between reference providers and applicants, and dealing with missing information

due to reference providers who cannot be contacted.

References Who Cannot Be Contacted. It is important not to have the

reference checking strategy invalidated by unreachable reference providers. When

one or more references cannot be contacted, time pressures may tempt hiring

officials to settle for information from fewer reference providers or even dispense

with reference checking entirely. This is a risky practice that allows dishonest

applicants to get away with falsifying names or contact information. Better practice

is to persist until the specified number and type of reference providers have been

contacted. Remember to enlist the applicant in this effort—it is in his or her best

interest not to be eliminated from consideration for the job.

These topics are inappropriate as a basis for hiring decisions according to the Civil Rights Act of 1964,

as amended by the Equal Employment Opportunity Act of 1972.

Reference Checking in Federal Hiring:

Making the Call

Best Practices

Conflicting Information.

Reference checkers should not be surprised or

troubled by minor inconsistencies between information supplied by applicants and

what reference providers report. Individual differences in memory, focus of

attention, and perceived importance of duties often produce different accounts. In

fact, if accounts are entirely free of minor discrepancies, this may be evidence that

the applicant has coached the reference providers.

Reference checkers must use their judgment to accept minor inconsistencies, resolve

larger inconsistencies through follow-up discussions with reference providers, and

make a judgment about the accuracy of information obtained from the applicant.

Trusting the Source. It is useful to devote a question or two early in the

reference checking interview to assess the credibility of the reference provider as a

source of job-related information about the applicant. Questions about the nature

of the relationship between the reference provider and the applicant should match

resume information and should indicate a work relationship. The reference checker

should obtain routine confirmation by asking for the reference provider’s job title

and employer. Finally, the reference checker should ask the reference provider to

describe the applicant’s responsibilities in the former job. A friend or fake reference

will not be able to do this in detail. A dishonest reference provider is likely to

provide inconsistent information, give a description that remains suspiciously

general, or may simply “freeze up” and become unresponsive.

Look for the Pattern. Reference checkers are looking for a pattern of positive

performance and behavior over time. This does not mean that applicants “fail” the

reference checking process when there are one or two negative evaluations or

discrepancies. Small deviations from an overall pattern of positive contribution

should not disqualify a good applicant. Larger discrepancies, or a larger number of

small differences, should lead to a follow-up discussion with the applicant to pin

down the reasons for disagreement. When most or all reference providers paint a

different picture than the applicant, there is reason to doubt the applicant’s honesty

or judgment. It is important for reference checkers to decide in advance what kind

of discovery should disqualify an applicant, and what evidence is necessary to make

this decision. The same standards should be applied to each applicant.

The Hiring Decision

Finally, the reference checker must decide if an applicant “passes” this hurdle in the

hiring process—do the reference providers support a picture of the applicant as a

well-qualified and honest prospective employee? And how will the answer to this

question affect the hiring decision?

Reference checking in Federal agencies tends to be an informal activity. As noted

earlier in this repor

t, OPM and agencies provide limited guidance on reference

checking. Ratings, rankings, and referral lists generally do not reflect the results of

reference checks. The “official record” of a staffing action may contain little, if any,

information about reference checks and their results. This is not an entirely bad

thing. (After all, the Federal Government does not lack for paperwork and

A Report by the U.S. Merit Systems Protection Board

Best Practices

documentation requirements.) However, this lack of official standing also means

that it is often not clear exactly how to use the results of reference checking.

Without offering any definitive advice on this matter, some guiding principles on

agency use of reference checks can be useful.

Reference Checks Should Matter. If they are worth doing, they are worth

using. The fact that a reference check is not part of the formal rating and ranking

process should not preclude a reference check from ever materially affecting the

selection process.

Reference Checks Must Be a Potential Basis for Nonselection. This

seems obvious. Yet it is all too easy to imagine a Catch-22 situation where an

organization castigates one manager for failing to conduct reference checks (“You

would have known that Mr. Abagnale was not qualified for this job if you had done

your homework.”), yet discourages the manager who conducts reference checks and

wants to act on them (“It’s not fair to eliminate Mr. Goddard from consideration

just because his previous three supervisors saw no evidence of his claimed expertise

in rocket science.”). If the results of reference checking cannot have an impact on

hiring, there is little reason to perform this activity before a hiring action is

completed.

Reference Checks May Need to Be a Basis for More Than

Nonselection.

In most cases, it may suffice to simply not select an applicant

when reference checks produce troubling information. However, agencies should

carefully consider whether there are situations where information obtained from

reference checks should be specified in the “official record” of the hiring decision—

for two reasons.

First, ratings and rankings usually determine who selecting officials may consider

for hire. A pr

ocess that does not allow reference checks to affect ratings and

referrals may effectively allow unscrupulous applicants to push other, more

deserving applicants “out of the ring.”

Second, the agency’s official judgments about which applicants are the most

meritorious are based on ratings, rankings, and r

eferrals. If these official judgments

are not consistent with the agency’s actual judgments (if, for example, an agency

allows applicants to remain “best qualified” in the face of considerable information

that indicates otherwise), then employees and other stakeholders may question the

merit basis and integrity of the hiring process itself.

Reference Checking in Federal Hiring:

Making the Call

Answering the Call:

Providing References

t is also worth looking at reference checking from another perspective—that of

the reference provider. In one sense the reference provider role is the mirror of

the reference checking role. A good reference provider should recognize and

cooperate with an effective strategy for checking references for several reasons.

Prospective and past employers share common goals—to focus on job-related

aspects of applicant behavior and avoid discussing inappropriate issues. However,

several particular aspects of the reference provider role merit further discussion.

Most organizations are willing to provide some information about former

employees. The 1998 SHRM survey found widespread organizational support for

providing references. This information is summarized in the table below. More

than three-quarters (76 percent) of organizations participating in the 1998 survey

provided reference information about current and former employees. It is likely

that many references are given even when there is an organizational policy against

doing so. SHRM reports that almost all “reference friendly” organizations (98

percent) will verify dates of employment and other factual information. Fewer than

half will discuss an applicant’s eligibility for rehire (42 percent) or salary history (41

percent). Very few will provide sensitive or judgment-based information about

reasons for leaving (19 percent), job qualifications (18 percent), work habits (13

percent), or inappropriate workplace behavior (8 percent). The 2004 SHRM

survey found a similar pattern.

A Report by the U.S. Merit Systems Protection Board

Information Disclosed By Reference Providers

Work History

Fads

Eligibility for Rehire

Salary History

Reasons for Leaving

Job

Qualifications

Work Habits

Inappropriate

Behavior

20% 30% 40% 50%

60%

70%

80%

90%

00%

Answering the Call: Pr

oviding References

These findings mirror some employers’ dissatisfaction when they try to obtain the

same information during reference checking. Reluctance to discuss more sensitive

and judgment-based issues can limit the value of reference checking discussions to

“objective” facts less useful for making hiring decisions. As discussed previously,

more structured and skillful interviewing on the part of reference checkers is one

answer to raising the quality of information about sensitive or complex issues.

Training is also needed when reference checking is used to directly assess

competencies via the structured interviewing approach. This approach goes beyond

verifying “facts” about job qualifications to assessing competencies needed on the job.

It is also likely that many employers and former coworkers are reluctant to become

better refer

ence providers because they fear negative repercussions. This fear is

understandable but unnecessary. It is possible for reference providers to both honor

their responsibilities to applicants and provide reference checkers with the

information they need to make good hiring decisions. To do so, reference providers

need to be aware of the legal constraints on reference checking and focus on playing

their roles within these constraints.

Legal Issues for Reference Providers

Many reference providers have misconceptions about the potential liability

associated with providing information about current and former employees.

However, providing reference information need not be avoided—it can be done

within the bounds of legality. There are three main legal issues that must be

considered by reference providers. They are liabilities arising from: (1) defamation

claims; (2) claims for injuries caused by employees who were hired on the basis of

negligent referrals; and (3) claims that non-selection of an applicant was based on

misuse of performance records. Reference providers must act appropriately to avoid

charges of defaming applicants or giving “negligent referrals” to prospective

employers. Federal employees also must exercise care when they consult official

performance records during reference checking discussions.

Misconceptions. A common misconception among those asked to provide

reference information is that discussing performance or job-related behavior of an

employee is not legal.

This misconception has caused many reference providers to

follow a minimalist policy of providing only basic facts, such as dates of

employment and job titles. This practice is intuitively appealing because it seems to

protect both the applicant and former employer. It is also consistent with everyday

sensibilities about avoiding discussion of sensitive topics with strangers who call on

the phone. Sharing only “name, rank, and serial number” information is also less

expensive—it can be provided quickly by anyone with access to company records.

Contrary to popular myth, former employers can, in fact, provide detailed

information about applicants without substantial risk of incurring legal liability.

ederal employees who serve as reference providers, as well as those in the role of

reference checkers, enjoy qualified immunity from suit as long as they are acting

Barada, op. cit., p. 108.

Reference Checking in Federal Hiring:

Making the Call

Answering the Call: Pr

oviding References

within reason and not violating any clearly established rights of the applicant. A

reference provider may discuss an applicant’s performance and workplace behavior

with prospective employers because doing so satisfies a legitimate business need and

is presumably within the scope of the reference provider’s official duties.

In addition, Federal reference providers and reference checkers enjoy certain

protections under the F

ederal Tort Claims Act (FTCA). As noted earlier, the

Federal Government is often protected against legal actions because it has sovereign

immunity against such legal attacks. Although Congress waived some of the

Government’s sovereign immunity protections when it passed the FTCA, it did not

waive sovereign immunity entirely. Several types of claims against the United States

are exempt from the FTCA’s waiver of sovereign immunity including claims “arising

out of … libel, slander, misrepresentation ….”

This provision has been expanded

to include claims of defamation against the Government. This does not mean that

reference providers should deliberately engage in these practices. But the FTCA

does provide some legal protection for Federal agencies and their representatives

when an applicant accuses a former employer of intentionally harming the

applicant’s employment chances by providing a prospective employer with an

unfavorable description of past behavior and performance.

Some employers require departing employees to make an explicit choice about how

future r

eference inquiries will be handled. The employee signs an agreement that

states either that no reference information will be provided beyond basic facts or

that the former employer is authorized to candidly discuss performance and other

work-related issues. This practice gives the employee a clear choice, while

protecting the reference providers and allowing them to provide appropriate

information without undue constraint.

These protections do not, however, give former employers free rein to talk about

former employ

ees in any way they please. Qualified immunity can be lost if the

reference provider behaves inappropriately.

Defamation of Applicants. Defamation is “the act of harming the reputation

of another by making a false statement to a third person.”

This can happen in

reference checking if reference providers discuss aspects of an applicant’s personal

life that are not job-related, if they maliciously and knowingly provide false

information, or if they share employment information with someone who does not

have a legitimate business need to know. Any of these activities can lead to a

defamation claim by an applicant.

The U.S. Supreme Court and several U.S. Courts of Appeals and District Courts

have specifically held that the U.S. G

overnment is immune from defamation suits.

Nevertheless, the mere fact of sovereign immunity may not deter an aggrieved

See 28 USC 1346, 1371–80 and 28 USC 2680 (h).

Bryan A. Garner, ed., Black’s Law Dictionary (7th Ed.), St. Paul, MN: West Publishing Co., 1999,

p. 429.

See, e.g., Siegert v. Gilley, 500 U.S. 226 (1991); Operation Rescue National v. United States, 147 F.3d

68 (1st Cir. 1998).

A Report by the U.S. Merit Systems Protection Board

Answering the Call: Providing References

emplo

yee from filing a lawsuit against a reference provider. A motivated applicant

may even creatively reframe the issue as an equal employment opportunity (EEO)

complaint. By exercising due care in providing a reference, a former employer will

likely increase the chances of withstanding a creative legal attack brought by an

angry applicant. In addition, responsible conduct in providing a reference minimizes

the chances that the applicant will be provoked to bring a civil action against a

former employer as a result of careless remarks made by a reference provider.

Reference providers act responsibly by ensuring that they provide accurate

information. It is acceptable to give opinions about an employee’s performance and

competence, so long as they are honestly held opinions. It is best to keep opinions

“close to the facts” by offering an example from personal experience to support

evaluative statements. (“Brian had poor organizational skills. His desk was an

unstructured and unsightly mound of reports, memos, borrowed reference books

and miscellaneous paperwork. He often lost important documents.”) All

descriptions of performance and conduct should be based on work behavior.

Reference providers should never make snide observations or malicious comments,

even if it seems that such description will impr

ove a potential employer’s

understanding of the applicant. Specialists recommend that reference providers

confine their comments very closely to the questions they are asked. Extensive

volunteering of negative information can be misinterpreted as maliciousness.

Such precautions seem to be effective. SHRM’s research found that fewer than 2

percent of organizations they surveyed about reference checking practices have ever

been targeted by applicant defamation claims.

Nonetheless, the threat of

defamation looms large in the imaginations of reference providers. SHRM also

reports that about half of reference providers have refused to provide information

about an applicant because they feared legal consequences.

Negligent Referral. Negligent referral, sometimes called “negligent

misrepresentation” or “negligent reference,” is similar to negligent hiring, but

applies to reference providers. Under the theory of negligent misrepresentation,

injured parties may hold a former employer liable for damages when, despite the

reasonable efforts of a hiring official to investigate an applicant’s prior work

behavior, the “former employer [fails] to disclose information about a former

employee…[and this failure] leads to the injury of an innocent third party.”

Because agency officials providing a reference enjoy enhanced legal protection over

their private sector counterparts as a result of sovereign immunity, former employers

should feel reasonably comfortable in providing thorough and responsive

references.

As a brief note of caution, however, immunity is continually being

Andler, op. cit., p. 66.

SHRM 1998 reported 1 percent, with an increase to 2 percent reported by SHRM 2004.

SHRM 1998 reported 45 percent, increasing to 53 percent in SHRM 2004.

Barada, op. cit., p. 136.

In the public sector, the seminal case addressing negligent misrepresentation is United States v. Neustadt,

366 U.S. 696 (1961). In Neustadt, the Supreme Court held that the retention of sovereign immunity under

the FTCA covers both claims of negligent misrepresentation and claims of fraudulent misrepresentation.

Reference Checking in Federal Hiring:

Making the Call

Answering the Call: Pr

oviding References

challenged in the courts; therefore, it should not be cavalierly presumed that

immunity will be found under every conceivable fact pattern. In any event, a

feeling of immunity from legal attack should not be an excuse for acting

irresponsibly. Indeed, former employers need to be responsive to appropriate

reference checking inquiries to protect themselves, in addition to “doing the right

thing” to maintain general workplace safety and quality standards.

Misuse of Performance Records. Reference checking specialists advise

reference providers to check their files for past performance appraisals and other

documentation associated with an applicant. A review of these records can help the

reference provider offer accurate judgments and specific, documented examples of

workplace behavior.

However, such records must be used with care. Supervisors in Federal agencies

must ensure that any use of official wor

k-related documents is permitted by statute.

Once completed, work-related forms and other documents often become part of an

agency’s formal system of records. The Privacy Act

constrains how these records

may be used. As a general rule, the Privacy Act precludes the disclosure of readily

identifiable information that is maintained in a system of records and is typically

retrievable by the name of the individual concerned. As an exception to the Privacy

Act, an agency may release such information if doing so is a “routine use” of such

information by the agency. Each agency is responsible for establishing its own “routine

use” policy that specifies the permissible uses of the information in the records. This

“routine use” policy must be published for comment in the Federal Register.

Before using work-related documents to support the reference checking process,

supervisors should r

esearch their agency’s routine use policy concerning the types of

documents in question. If feasible, the reference provider should seek advice from

an agency official knowledgeable in Privacy Act law. If the agency’s routine use

policy does not specifically permit the release of such records as part of discussions

with potential employers, supervisors are best advised to rely on their own personal

records to support reference checking.

Special attention should also be given to documents that are obtained from an

employee’s Official Personnel Folder (OPF). OPFs are the property of OPM even

though they are customarily maintained by, and physically located at, the agency

where an employee works. Because these folders are the property of OPM, the

release of information contained in an OPF is governed by OPM’s, not the agency’s,

routine use policy. The current version of OPM’s routine use policy appears to

permit the release of information contained in an OPF for the purpose of assisting

another agency in making a hiring determination.

SHRM 1998 found that 88 percent of organizations surveyed had never been targeted by a negligent

referral claim. This increased to 99 percent in SHRM 2004.

Privacy Act (Title 5 U.S. Code §552(a)).

See OMB Guidelines, 40 Fed. Reg. at 28,952, which states, “Uncirculated personal notes, papers and

records which are retained or discarded at the author’s discretion and over which the agency exercises no

control or dominion (e.g., personal telephone lists) are not considered to be agency records within the

meaning of the Privacy Act.”

See www.opm.gov/feddata/Federalr.pdf.

A Report by the U.S. Merit Systems Protection Board

Answering the Call: Pr

oviding References

The Role of the Reference Provider

The reference provider should cooperate with reference checking inquiries while

remaining carefully inside the legal boundaries outlined in this report. There are a

few additional considerations for reference providers.

Identify the Caller. Even with the information provided by caller ID, people

often wonder if an incoming telephone call is legitimate. For reference providers,

this question may be worth asking. A brief Web search using the phrase “job

reference services” yields a short list of organizations that will charge nervous

applicants a fee to contact their reference providers and put them through a

“simulated” reference checking interview. Many of these services produce a formal

report to the applicant summarizing the performance of each reference they have

“checked.” This procedure is designed to discover and document anything negative

reference providers say about the applicant.

Reference providers are less likely to be fooled by decoys if they follow the best

practice guidelines outlined herein. I

f they provide only appropriate, job-related

information, they are operating within the limited privilege afforded to reference

providers. The most they risk in this scenario is not being reused as a reference or

offending the job applicant. Such false reference checking is unlikely to occur when

applicants work closely with their reference providers during a job search. When

applicants follow a pattern of informing reference providers about each job for

which they are finalists, there is no opportunity for a simulated reference check to

intrude. Reference providers can insist that applicants follow this strategy,

highlighting its benefits for the applicants as well.

Avoid Letters of Reference. Reference letters are a tempting shortcut for

reference providers—they seem more convenient than agreeing to a reference

checking discussion. But reference providers who genuinely want to help an

applicant will not take this easy way out. Hiring officials correctly regard letters of

reference as much less credible than reference checking discussions.

They are often

prepared by the applicant and then read and signed by the reference provider. Such

letters contain only information the reference provider (or applicant) wishes to

provide. They offer no exploration of any doubts the prospective employer may

have about the applicant’s work history and no opportunity to probe for job-related

information about specific competencies. Such letters are of little value unless the

letter writer is contacted for a thorough reference checking discussion.

Focus on the Job. Reference checkers are encouraged to keep the reference

checking discussion focused on job-relevant topics. This advice also applies to

reference providers. It is important to the reference checker in order to make

If a reference provider is suspicious of a particular call, it is a simple matter to state that it is not a good

time to talk, and obtain the checker’s name and organization as callback information. The provider should

then call the main number for the organization and ask, by name, for the person who just called. This

process verifies that a legitimate employer is calling for a reference.

MSPB’s Merit Principles Survey in 2000 asked hiring managers to judge the usefulness of several types

of assessments in making quality hires.

Reference Checking in Federal Hiring:

Making the Call

Answering the Call: Pr

oviding References

reference checking valid and defensible as an assessment process. It is also

important to the reference provider to help high-quality applicants and to defend

against possible claims of negligent reference. Appropriate topics include

performance, achievements, general work habits, abilities, and on-the-job conduct.

Avoid inappropriate topics, even—or perhaps, especially—if introduced by the

reference checker.

Support With Details. Be specific and provide details. A good reference

checker should ask open-ended questions and probe the reference provider for

details. However, not all reference checkers will take this approach. It is still

important for reference providers to anchor each evaluation in specifics of applicant

behavior. The most important specifics are the things an applicant has done in the

workplace or produced as part of his or her job responsibilities.

Reference providers need to play their role to support the accurate exchange of

information in refer

ence checking discussions. They should support hiring officials’

legitimate need for information while protecting themselves from legal difficulties.

They also need to be fair to well-qualified applicants, who will find it more difficult

to be hired if reference providers hold back their praise and just offer “name, rank,

and serial number.”

A Report by the U.S. Merit Systems Protection Board

The Other Side of the Table:

Advice for Applicants

hile the primary audience for this report is Federal agency personnel

who will either check references or provide reference information, it is

appropriate to offer some advice to applicants as well. Dishonest or

unqualified applicants will feel intimidated or deterred by the process of reference

checking. This is appropriate, but there is no reason for the majority of honest and

well-qualified applicants to feel this way. Reference checking is one more

opportunity for applicants to demonstrate their value to hiring officials. Here are

some ways that applicants can make the reference checking process work well for

potential employers, reference providers, and themselves.

Choose Good Reference Providers. The reference checking practices

recommended in this report require an effective reference provider to meet several

criteria. Good reference providers are:

1. Familiar with the applicant’s recent job performance

2. Willing to be reference providers

3. Easy to contact

4. Experienced in describing and evaluating employee performance

5. Effective communicators

6. Careful to offer only accurate information and honestly held opinions

Reference providers who meet these criteria will represent applicants well in the

efer

ence checking process outlined here. However, deficiencies in any of these

areas may reduce the potential reference provider’s impact, ultimately decreasing the

chance that a deserving applicant is offered a job. A “good friend” who promises to

say “nice things” about an applicant may not produce the intended result when

questioned about specifics of job performance by a determined reference checker.

Treat Them Well. Treating reference providers well goes beyond simple

politeness—applicants should support them in the reference provider role. At a

minimum, this includes obtaining their agreement to provide reference information

and permission to share their contact information with prospective employers. It

should also include providing them with copies of resumes and job announcements

and informing them when specific employers are planning to call. It may include

educating them about the reference checking process so they understand how to

play their role effectively. Applicants should be prepared for active involvement if a

prospective employer asks for help in scheduling reference checking discussions.

A R

eport by the U.S. Merit Systems Protection Board

The Other Side of the Table: Advice for Applicants

Be Cooperative—and Cautious.

Applicants can demonstrate many of the

qualities of a good employee by helping the reference checking process run

smoothly. They should be responsive to requests to provide contact information

and information about employment history. They should sign appropriate waivers

authorizing reference checking, recognizing when it is in their interests to allow this

modest invasion of privacy. Applicants should not sign such an agreement unless

they clearly understand the terms of the waiver. Such a waiver should outline the

potential employer’s general procedures for reference checking, including assurances

that questions will be job-related. Applicants should not sign away all rights to

privacy as part of this waiver.

Be Candid. Nothing in this report will dissuade all dishonest applicants from

attempting to deceive prospective employers. This advice is for applicants who may

be tempted to exaggerate elements of their work history, or conceal an unflattering

episode in their workplace behavior. Of course, a deceptive strategy might be

successful despite employers’ measures to expose it. On the other hand, being

caught in a deception may cost the applicant a job that might otherwise be offered.

Even worse, the applicant may be hired for a job where failure is likely because he

or she lacks the necessary competencies for success.

Consider the alternative—applicants can be candid with potential employers about

an unflattering issue. I

f it is a skill deficiency, then it is best to acknowledge it and

outline a plan for developing it into a strength. If it is an incident of inappropriate

behavior, applicants can stress steps taken to change behavior and learn new

interpersonal skills. A less-than-friendly relationship with a former supervisor can

also be problematic. This, too, can be acknowledged and firmly described as an

issue of the past. Employers may still decide not to hire an applicant who makes

this kind of disclosure. However, the applicant’s chances are better than they would

be if an attempt to deceive a potential employer is discovered through checking

references.

And that less-than-perfect applicant may still be the best choice for the job. Even

though hiring officials understand the value of

behavioral consistency in predicting

future performance from the past, they also spend much of their time developing

their employees. They recognize and appreciate self-development and know that

people can and do change.

Reference Checking in Federal Hiring: Making the Call

Future Developments

hanges do occur, not only in individual employees, but in the larger

employment arena. The advice in this report is based on current

employment practice. Although change is likely, it is not possible to

predict with certainty what specific changes will occur. Reference providers,

prospective employers, and job applicants are well advised to watch for such

changes.

This section suggests some general trends that may influence reference checking

practice and several sour

ces of information readers can monitor for information

about changes in employment practice.

Some Possible Changes

Changes in Business Communication. Use of e-mail is increasingly

replacing paper letters and telephone conversations, especially for communications

that are considered routine. SHRM has found an increased role of fax and e-mail

exchanges in reference checking.

When these approaches are relied on exclusively,

they are noninteractive and have the same weaknesses as letters of recommendation.

Increased reliance on noninteractive fax and e-mail will likely reduce the value of

information obtained through reference checking.

There will likely be pressure from reference providers to allow the reference

checking “conv

ersation” to migrate to e-mail. (They will likely consider such

discussions more routine than reference checkers will.) Reference checkers should

resist this trend. They would lose the interactive benefits of probing and much of

the opportunity to “read” the response of the reference provider.

Skilled questioning and probing are not as easily accomplished in interactions using

fax and e-mail. G

reater promise is found in the potential use of videoconferencing

because reference checkers can observe nonverbal cues as they conduct reference

checks. But there is no evidence that videoconferencing is playing a significant role

in reference checking.

Changes in Average Length of Employment. If terms of employment

decrease and contracting and project-by-project employment increase, it will likely

become more difficult to obtain a clear picture of an applicant from a small number

of reference providers. Each reference provider will have observed a smaller

segment of an applicant’s work history and will be less able to provide a long-term

perspective. Under such circumstances reference providers may be more mobile

SHRM 2004 found that reference checkers “always” use fax (53 percent) and the Internet (36 percent)

as part of reference checking. It is not possible to determine the degree to which these responses represent

use of these technologies as supplements to interactive discussion, or as substitutes.

A R

eport by the U.S. Merit Systems Protection Board

Future Developments

as w

ell, making it more difficult to identify and locate good reference providers.

This situation may require changes in strategies for selecting and contacting

reference providers.

Changes in the Length of Probationary Periods. Most entry-level Federal

employees go through a 1-year probationary period. During this time they can be

easily separated from service if they do not meet the agency’s expectations. Recent

personnel changes have lengthened probationary periods for some employees.

This change gives agencies such as the Department of Homeland Security the

opportunity to observe employee development over a longer period before

finalizing their commitment to long-term employment. Such changes can reduce

the consequences of making a poor hiring decision and may reduce the urgency

hiring officials feel to use all available hiring tools before making a job offer.

Some reference checking may be replaced by the promise of direct post-hire

observation of on-the-job performance. This will only be effective, however, if

employers use the probationary period as it was designed—as the last hurdle in

the hiring process.

Changes in Assessment Practice. It is becoming more common for

employers to invite initial applicants to take unsupervised Web-based tests from

their homes or offices, then confirm these preliminary results later in the hiring

process with securely administered assessments given to a smaller applicant pool.

Some employers are beginning to use enhanced training and experience assessments

that ask applicants to describe some of their accomplishments in greater depth.

These and other assessment innovations require different kinds of verification from

applicants and from reference providers. Changes in the assessment strategies used

by employers are likely to create changes in the information expected from reference

providers and in the techniques that reference checkers should use to obtain it.

Changes in Information Access. There is an increased availability of

employment history information in online databases that can be quickly accessed by

reference checkers. Some trend-watchers believe this is a positive trend that will

increase the frequency of reference checks and the reliability of information

obtained.

MSPB is more cautious. It is true that availability of online databases

will make fact checking more efficient. This is no guarantee, however, of the

accuracy or quality of the information that such databases contain. There is no

reason to assume that information supplied via technology is somehow

automatically of higher quality. Nor is the ease of fact checking a replacement for

more disciplined, interactive reference checking that, although it takes longer, can

yield more complex and valuable information. Reference checks should not be

allowed to become mere records checks just because this is the easier path.

See 5 C.F.R Part 315 for regulations governing Federal probationary periods. For an extended treatment

of the role of the probationary period in Federal hiring, see The Probationary Period, op. cit.

Jennifer Schramm, “A Look Ahead: A Future View of Reference and Background Checking,”

Alexandria, VA: Society for Human Resource Management, 2004. This article is included as an appendix in

SHRM 2004, op. cit.

Reference Checking in Federal Hiring:

Making the Call

Future Developments

Sources of Information

OPM is the primary source of information about changes in Federal employment

practices. Not only does OPM disseminate information about changes, it initiates

and guides implementation of many changes in hiring procedures. OPM may issue

further guidance about reference checking as a component of the OPM 45-Day

Hiring Model in the future.

Professional associations are a second source of valuable information. They

frequently issue bulletins and offer training to help their membership understand

the implications of changes in employment regulations, technology, and practice.

Four organizations are particularly important sources of information:

1. The International Public Management Association for Human Resources

(IPMA-HR, www

.ipma-hr.org) plays a key role for Federal employers. Two of

its component organizations, the IPMA Assessment Council (IPMAAC) and

the IPMA Federal section, focus on personnel selection and Federal HR.

2. The Society for Industrial and Organizational Psychology (SIOP,

www.siop.org

) is the primary membership organization for psychologists who

specialize in personnel selection. SIOP is a good source of information about

the most recent research on the validity of measurement techniques.

3. The Society for Human Resource Management (SHRM, www.shrm.org) is the

membership organization for private sector human r

esources specialists.

SHRM is a key source of information about trends in hiring practices outside

the public sector.

4. The National Association of Professional Background Screeners (NAPBS,

www.napbs.org

) is a membership organization for companies offering

reference checking and related services. It is a source of information about

standards, training, and best practices related to reference checking.

Change comes from many directions. Local professional groups and commercial

vendors of human r

esources services can also provide useful information that is

adapted to the needs of the current employment arena.

Reference checkers and reference providers should periodically observe general

trends in hiring practices b

y employers and job searching by applicants and consider

how reference checking may need to change as a result. Doing so will allow them

to use a continually updated version of the reference checking best practices

outlined in this report to improve the Federal hiring process.

A Report by the U.S. Merit Systems Protection Board

Recommendations

elow are important legal issues and best practices that should be followed by

both reference checkers and reference providers. The discussion closes with

specific recommendations for several key stakeholders in Federal hiring.

1. Hiring officials should conduct reference checks for each hiring decision.

This recommendation echoes OPM’s recommendation in the 45-Day Hiring

Model. R

esearch has shown that reference checking can be done

appropriately, effectively, and with protection for all parties. It remains for

agencies to implement and strengthen this practice in their hiring processes.

While resource constraints, number of applicants, or other factors may make

reference checking impractical for some hiring decisions, any decisions not to

check references should be made carefully and infrequently.

2. Hiring officials should develop and follow a thoughtful reference checking

strateg

y that is an integral part of the hiring process.

There is no one template for checking references. The reference checking

process in each hiring decision should be guided b

y the information needed.

This begins with an understanding of which competencies are needed for the

job, and how information about the applicant’s abilities will be gathered

using different assessments. Reference checking can play a role in verifying

information from other assessments and gathering information about

competencies not otherwise assessed, or some combination of the two. The

questions asked of reference providers will differ depending on the role

reference checking plays in the overall hiring process.

3. Hiring officials should use a consistent reference checking process that

treats all applicants fairly

, obtains valid and useful information, and

follows legal guidelines.

Agency practice in the use of reference checking varies considerably. Agencies

should ensure that ther

e is standardization within each hiring decision.

Standardization across hiring actions and across occupations is less important.

This report identifies recommended practices to help agencies check

references legally and productively.

A Report by the U.S. Merit Systems Protection Board

Recommendations

4. Agencies should require applicants to provide appropriate professional

references and make applicants responsible for ensuring that they can be

contacted.

There are a number of benefits when job applicants participate actively in

facilitating discussions between r

eference checkers and reference providers.

These benefits include discouraging misrepresentation of experience by

applicants, reducing legal challenges, and reducing the time and resources

required for reference checking. Agencies should improve the hiring process

by requiring applicants to take an active role in reference checking.

Agencies should state in their job announcements and other communications

with applicants that refer

ences will be checked as part of the assessment

process. Agencies should clearly communicate their expectations about

“minimum qualifications” of acceptable reference providers—they should

have experience observing the applicant’s performance on the job. Applicants

should provide current contact information that allows reference checking to

proceed efficiently without introducing delays into an already time-

challenged Federal hiring process.

5. Agencies should review and possibly revise their formal systems of records

so that supervisors may r

eview past performance information when

providing references.

Performance appraisals are valuable products of the expertise and experience

that supervisors bring to bear in the ev

aluation of employee performance.

The quality of information supplied in the reference checking process can be

enhanced when supervisors review their records to help them accurately

remember the performance of former employees. Each agency’s policy for

routine use of performance evaluation information should permit this.

6. Agency human resources personnel should require job applicants to

complete the Declar

ation for Federal Employment (OF-306) form early in

the application process.

When applicants sign this form, they provide the public sector equivalent of a

waiver that confirms the right of hiring officials to contact r

eferences and

discuss prior work behavior. This encourages hiring officials, reference

providers, and job applicants to take reference checking and the entire hiring

process more seriously. This single change that uses existing procedures has

perhaps the greatest potential to increase the use of reference checking in

Federal hiring.

7. Agencies should increase standardization of and training in effective

refer

ence checking techniques.

This report has reviewed evidence of a shortfall in standardization and

training in effective r

eference checking that exists in both private and public

sectors. This shortfall is partially responsible for variation in reference

checking practice and for variation in employer satisfaction with the

information obtained from reference checking. Standardization and training

in the public sector will have two important effects. First, the overall quality

Reference Checking in Federal Hiring: Making the Call

Recommendations

of information obtained fr

om reference checking will increase. Second,

hiring professionals will become more attuned to the distinction between

well-designed reference checks and casual, informally conducted reference

checks. This will foster more useful discussion of the strengths and

limitations of reference checking as an assessment. Weaknesses due to poorly

conducted reference checks will be less often assumed to be inherent

limitations of reference checking in general.

8. OPM should develop guidelines to help agency personnel follow

appropriate procedures for checking and providing references.

OPM has made a good beginning by emphasizing reference checking in the

45-Day H

iring Model. OPM should provide agencies with more detailed

guidance through the Delegated Examining Operations Manual and in other

communications with agencies. By doing so, OPM can assist agencies in

increasing standardization and training in reference checking.

9. Supervisors and other employees should provide candid and appropriate

refer

ence information.

Best practices for reference checkers and reference providers have been

outlined in an attempt to increase the effectiv

eness of Federal hiring. These

recommendations to OPM and agencies are an attempt to bring about some

of these improvements through formal policy and guidance. There is no

comparable action to improve practice among reference providers. Instead, it

is hoped that this report has convinced reference providers that it is their

responsibility to provide accurate reference information, and that they can do

so legally, appropriately, and in good conscience.

Reference checking has an important role to play in the Federal hiring

process. I

t can be more than a formality conducted by administrative staff.

It can be more than a casual, unstructured phone conversation between

supervisors. It should certainly not be an illegal and inappropriate exchange

of gossip about unsuspecting applicants. Reference checking can improve the

quality of the Federal workforce by reducing the number of unqualified,

unscrupulous, and otherwise unsuitable applicants whose liabilities escaped

detection during the earlier phases of the hiring process. If reference

checking is to reach this potential, it will require cooperation among Federal

hiring officials, applicants for Federal employment, and reference providers.

The MSPB recommends that agency policy makers, human resources

professionals, hiring officials, job applicants, and former supervisors of these

applicants all play their roles to make reference checking work.

A Report by the U.S. Merit Systems Protection Board

U.S. Merit Systems Protection Board PRST STD

1615 M Street, N.W.

U.S. POSTAGE PAID

Washington, DC 20419

WASHINGTON DC

OFFICIAL BUSINESS P

ERMIT NO. G-113

PENALTY FOR PRIVATE USE $300

in :

M C

ALL

Reference Checking Federal Hiring

AKING THE