Integrated Service Delivery- Beyond the Barriers

Kenneth KernaghanProfessor of Political Science

and Management

Brock University

May 2003

Outline of Presentation

1. Research Questions2. Research Method3. Study Findings

Responding to citizen/client needsRecipes for success: overcoming barriersBeyond “bubble gum and good will”

4. Conclusions5. Questions for Discussion

Research Questions1. What are the major governance barriers

that will impede progress towards citizen-centred, integrated service delivery?

2. What public and private organizations in Canada or elsewhere provide especially relevant learning points for overcoming these barriers?

3. What new governance arrangements could be adopted- or adapted- to overcome barriers to ISD?

Research Methodology

1. An in-depth review of the ISD literature and the development of an annotated ISD bibliography;

2. Interviews with thirty members of the Canadian public sector ISD community (including PSSDC and PSCIOC members);

3. Ten in-depth case studies of different types of ISD in both the private and public sectors.

Study Findings: (a) ISD Involves Meeting Citizens’ Service Needs

Citizens First found that Canadians want improved service through single-window operations. In particular they want services involving multiple contacts to be integrated so that one-stop service is provided;

ISD refers to the process of bringing together government services so that citizens can access these services in a seamless fashion based on their wants and needs;

Combining service integration with channel integration is the ultimate aim of ISD

An Idealized (Citizen-Centric) Model of ISD

1. A Single portal provides access to services of all orders of government. There is a single-entry portal for each delivery channel;

2. Each portal is organized on a clear and consistent basis from a citizens’ perspective;

3. Service delivery is seamless regardless of which government has responsibility for the service;

4. Service delivery is highly integrated at both the front and back ends of the system;

5. Citizens can receive customized service tailored to their particular wants and needs;

6. The privacy and security of the system are secured; 7. Citizens can receive services through each channel; 8. All citizens can receive the level of service they require.

Current Barriers to ISD: Political and Legal

1. Individual Ministerial responsibility2. Visibility3. Privacy and security4. Digital divide5. Legal barriers (e.g. privacy legislation

and departmental legislation)

Current Barriers to ISD: Structural

1. Departmentalism2. Authority versus influence3. Collective ministerial responsibility4.Inter-governmental barriers

Current Barriers to ISD: Operational/Managerial

1. Inter-operability2. Representation3. Resources

Current Barriers to ISD: Cultural

1. Turf tension2. Tunnel vision

Barriers to Integrated Channel Delivery (ICD)

Political barriers- equity considerationsStructural barriers- organizational silos,

and inter-channel competitionResource constraintsInter-operability constraintsCultural barriers- turf tension and tunnel

vision

Overcoming the Barriers to ISD: Creating “another dimension

between the silos”Single-government, corporate service utilities (e.g.

Service New Brunswick)Reduces several governance barriers

ISD Department (e.g. Service Nova Scotia and Ontario Business and Consumer Services Ministry)Reduces governance and operational barriers

Delegation to another service provider –multiplexing (Ontario Business Connects)

No existing model resolves all of the governance and operational issues

Overcoming the Barriers to ISD: Creating “another dimension

between the silos”Inter-jurisdictional service utilities

Currently some single-jurisdiction public corporations have “morphed” into multi-jurisdictional entities (e.g. PEI Innovative Solutions Agency, and the Canadian Tourism Commission);

Pure form not yet in practice, but examples like National Health Information Institute operate as NGOs;

Interac in the private sector offers an exampleRequires further examination of legal, operational and

accountability aspects of inter-jurisdictional service utilities.

Overcoming the Barriers to ISD

Perfecting PartnershipsEstablishing the governance

frameworkDedicated fundingPolitical-Public Service

CollaborationMarketing

Overcoming Governance Barriers to Integrated Channel Delivery (ICD)

Restructuring organizations to provide for integrated management of the channels

Integrating systems to achieve consistency and inter-operability

Conclusions: From “Bubble Gum and Good Will” to Effective

Management of ISDThe institutions, structures and processes of

government need to be able to support our technological capacity for citizen-responsive ISD

There is a need to examine the potential for crown corporation, NGO, private sector and institutional platforms to manage future inter-governmental and inter-sector ISD initiatives.

ISD Maturity Models:From Horizontal

to Vertical Integration

Intra-departmental

Inter-departmental

Inter-jurisdictional

Single Channel

Multi ChannelICD

General Trend

ISD Maturity Models:Governance Arrangements

Co-located/Virtual Collaboration,Silo owned

IntegratedManagement,Individual . Ownership

Utility and Single ISD Dept. Models

ISD Maturity Models:An Evolution Matrix

Co-located/Virtual Collaboration,Silo owned

IntegratedManagement,Individual . Ownership

Utility and Single ISD Dept. Models

Intra-dep’tISD

Inter-deptISD

Inter-gov’tISD

Integration axis

Governance axis

GeneralTrend

MultiChannelICD

Inter-sectorISD

ISD Maturity Models:Examples in Practice

Co-located/Virtual Collaboration,Silo owned

IntegratedManagement,Individual . Ownership

ServiceUtility

Intra-dep’tISD

Inter-deptISD

Inter-gov’tISD

MultiChannelICD

VACSeniors Portal

ServiceCanada

Canada-Manitoba

BSC

CCRA CallCentres

Passport Office/

Cda Post

AtlanticCanadaOnLine

ISD LeadDepartment

SNBBC

GovtAgents

CdnTourism

Commision

Service NS

OntarioBCS

Centrelink

Toronto211

Inter-SectorISD

Recommendations1. Innovative approaches to ISD such as the corporate

service utility should be adopted and adapted to meet emerging citizen-responsive ISD needs;

2. The legal requirements for creating inter-jurisdictional service utility platforms should be examined;

3. Lessons from public-public and public private partnerships should be integrated into the planning for ISD arrangements;

4. ISD partnership arrangements should focus on making the up-front agreement transparent and comprehensible

Recommendations5. Central agencies and departments should provide

incentives to promote ISD initiatives within and across departments;

6. Political and public service leadership is needed to promote ISD;

7. The benefits of ISD should be promoted to politicians, public servants, the media and the public by academia, ICCS and other bodies such as PSSDC and PSCIOC;

8. Integration of service channels should be vigorously pursued through restructuring and collaboration

Discussion Questions 1. What additional barriers need to be overcome in

developing ISD in the future to meet public needs? 2. Is there a “tipping point” where informal ISD

collaborative arrangements (bubble gum and good will” ) need to be institutionalized? What is that point?

3. Do we need any new inter-jurisdictional institutional arrangements to meet citizens’ needs for ISD, and to exploit the potential that technology gives us for integrated service delivery?

4. What other issues should we study in future work on ISD?

List of Persons Interviewed

Mark Belfrey - PEI Victor Abele -TBS Nicole Burgess - Greater Victoria Economic Development Comm. Scott Campbell - Government of British Columbia Shannon Coughlin - Manitoba/Canada BSC Art Daniels - Government of Ontario Darren Deneumoustier - HRDC Fine, Ed - Treasury Board Secretariat Brian Ferguson - Seniors Canada On-Line Guy Gordon- Government of Manitoba Joanne Harrington - Seniors Canada On-Line Ralph Heintzman - Treasury Board Secretariat Betty-Jo Hughes - Government of British Columbia Harry Hutchings - Government of Newfoundland and Labrador Paavo Kivisto - Government of Ontario Virginia Labelle - Government of Yukon Brian Marson - Treasury Board Secretariat Doug Matheson - HRDC Frank Mayhood - City of Kamloops Joan McCalla - Government of Ontario David Miller- Canada Customs and Revenue Agency Grace Moores - Industry Canada Jag Narasimhadevara - Government of Nunavut Mary Ogilvie - Service New Brunswick Vic Pakalnis- Government of Ontario Rob Pysden - Government of British Columbia Roger Scott-Douglas - Treasury Board Secretariat Robert Smith - Industry Canada Mary Tate - Government of Ontario Susan Till - National Research Council

Case Studies

Bank of Montreal Canada-Manitoba Business Service Centre Centrelink Interac Association Nova Scotia Business Service Registry Ontario Business Connects Seniors Canada On-Line Teranet Atlantic Canada On-Line Halton Region