a personal occurrance
I worked for SBA for a short while a few years ago and a memo was circulated advising the staff that employees with insufficient workload should strive to look busy.
paraphrased:
Not havng work to do at a particular time should not be considered as an excuse to look idle. As SBA employees we are obligated to appear busy even if that entails shuffling papers and rearranging our desk. Appearing to be relaxed and uninvolved sends the wrong message to fellow employees and other observers.