Telework in Public Management and Information Fragmentation: A Case Study of FAPEAL in the Pandemic and Post-Pandemic Context

Abstract

The COVID-19 pandemic disrupted traditional work arrangements globally, compelling organizations—especially within the public sector—to rapidly adopt telework as an emergency response. This shift triggered deep changes in administrative routines, information flows, and organizational cultures. While teleworking ensured institutional continuity and protected public health, it also introduced challenges related to information fragmentation, communication breakdowns, and weakened collaborative structures. In this context, the present study aims to examine how telework has reshaped information management practices in the Fundação de Amparo à Pesquisa do Estado de Alagoas (FAPEAL), a Brazilian public agency, during and after the pandemic. The research investigates how information fragmentation emerged or intensified in this period and explores the institutional responses to mitigate its effects.

Grounded in the fields of Information Science and Public Administration, this study adopts a qualitative case study approach, combining documentary analysis, semi-structured interviews, and a review of internal information policies. The research is driven by the following central question: How has the implementation of telework in FAPEAL affected the flow, organization, and integrity of institutional information in the post-pandemic context?

The theoretical framework draws upon foundational authors in knowledge and information management. According to Choo (2003), organizations must function as “sense-making systems,” capable of generating meaning and continuity even in disrupted environments. In telework scenarios, however, the lack of physical interaction often impairs informal knowledge sharing, tacit communication, and collective memory. Davenport and Prusak (2003) emphasize that information requires intentional structuring and social validation to become meaningful knowledge. Without proper systems in place, telework environments can lead to fragmented information ecosystems, siloed decision-making, and duplication of efforts.

These risks are especially critical in public institutions, where information is a fundamental input for accountability, transparency, and service quality. As Valentim (2014) and Silva et al. (2023) argue, public organizations must invest not only in technological infrastructure but also in information policies, metadata standards, and protocols for collaborative knowledge creation. The absence of these mechanisms can result in institutional disarticulation, policy discontinuity, and loss of historical memory.

The case of FAPEAL offers a compelling empirical setting to explore these dynamics. As a state-level agency responsible for research funding and scientific development in Alagoas, FAPEAL had to rapidly reorganize its administrative structures when telework was mandated in 2020. While digital platforms such as e-mail, videoconferencing, and shared drives enabled basic continuity, internal evaluations and informal feedback revealed tensions related to document versioning, information overload, and lack of clarity in responsibilities and workflows.

The research findings show that during the first year of remote work (2020–2021), FAPEAL experienced three key forms of information fragmentation: (1) spatial fragmentation—due to decentralized document storage across personal drives, emails, and local folders; (2) semantic fragmentation—arising from inconsistent terminologies and metadata practices across teams; and (3) procedural fragmentation—reflected in divergent interpretations of workflows, deadlines, and priorities.

To address these issues, the agency implemented a set of measures in 2022 as part of its institutional modernization agenda. These included the standardization of information flows through internal regulations; the adoption of an electronic document management system (GED); training for staff on collaborative digital tools; and the restructuring of coordination protocols to clarify lines of communication. The PACQUALI program (Professional Qualification Program), previously focused on technical skills and continuing education, was expanded to include information literacy and knowledge-sharing practices tailored to hybrid work environments.

Interviews with managers and staff reveal that these interventions contributed to improved clarity in information processing and a renewed sense of organizational cohesion. However, challenges remain, particularly regarding cultural adaptation to remote and hybrid work modalities. Many respondents highlighted the continued reliance on informal, person-centered communication chains, as well as resistance to documentation routines perceived as bureaucratic.

Moreover, the research indicates that information fragmentation is not merely a technical problem but a sociotechnical one. It reflects the interplay between technological systems, institutional cultures, and human practices. As such, addressing fragmentation requires more than installing new tools—it demands the cultivation of a shared organizational culture that values documentation, information integrity, and collective memory. The Science of Information literature underscores that organizational learning is only possible when knowledge is codified, validated, and accessible across time and teams (Nonaka & Takeuchi, 1997; Senge, 2006).

One of the key lessons from the FAPEAL case is the importance of balancing flexibility with standardization. Telework requires adaptive structures, but it cannot function effectively without clear protocols for storing, accessing, and updating institutional information. The research suggests that hybrid models, combining remote flexibility with periodic in-person collaboration, may offer the most viable arrangement for maintaining both autonomy and informational coherence in public organizations.

Another insight is the strategic role of information professionals and knowledge managers in the post-pandemic public sector. As intermediaries between systems and users, these professionals are essential to translating institutional objectives into usable information flows. Their participation in policy design, digital training, and quality control is critical for reducing fragmentation and strengthening information governance.

The study concludes by affirming that telework, if properly managed, can enhance efficiency, autonomy, and professional well-being in public administration. However, its sustainability depends on robust information management strategies that recognize the centrality of documentation, interoperability, and organizational memory. FAPEAL’s experience shows that investments in technological tools must be accompanied by investments in people, processes, and cultures of knowledge.

From a policy perspective, the findings support the recommendation that public agencies institutionalize hybrid work models with clearly defined information governance frameworks. This includes establishing minimum standards for documentation, periodic information audits, team-level knowledge-sharing protocols, and digital skills development. Institutional resilience in the post-pandemic era will depend not only on technological adaptation but on the ability of public organizations to maintain informational coherence amid structural and cultural transformations.

In conclusion, this study contributes to the emerging field of telework and knowledge management in public institutions, offering empirical evidence and theoretical insights into how information fragmentation can be diagnosed, mitigated, and transformed into an opportunity for institutional learning and innovation. The FAPEAL case illustrates the challenges and possibilities of building a robust information infrastructure capable of sustaining public value in a changing administrative landscape.