integrated service delivery- beyond the barriers kenneth kernaghan professor of political science...
TRANSCRIPT
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