Integrated Service Delivery- Beyond the Barriers

1. Integrated Service Delivery- Beyond the Barriers Kenneth Kernaghan Professor of Political Science and Management Brock University May 2003

2. Outline of Presentation • 1. Research Questions • 2. Research Method • 3. Study Findings • Responding to citizen/client needs • Recipes for success: overcoming barriers • Beyond “bubble gum and good will” • 4. Conclusions • 5. Questions for Discussion

3. Research Questions • 1. 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?

4. 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.

5. 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

6. 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.

7. Current Barriers to ISD: Political and Legal • 1. Individual Ministerial responsibility • 2. Visibility • 3. Privacy and security • 4. Digital divide • 5. Legal barriers (e.g. privacy legislation and departmental legislation)

8. Current Barriers to ISD: Structural • 1. Departmentalism • 2. Authority versus influence • 3. Collective ministerial responsibility • 4.Inter-governmental barriers

9. Current Barriers to ISD: Operational/Managerial • 1. Inter-operability • 2. Representation • 3. Resources

10. Current Barriers to ISD: Cultural • 1. Turf tension • 2. Tunnel vision

11. Barriers to Integrated Channel Delivery (ICD) • Political barriers- equity considerations • Structural barriers- organizational silos, and inter-channel competition • Resource constraints • Inter-operability constraints • Cultural barriers- turf tension and tunnel vision

12. 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

13. 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 example • Requires further examination of legal, operational and accountability aspects of inter-jurisdictional service utilities.

14. Overcoming the Barriers to ISD • Perfecting Partnerships • Establishing the governance framework • Dedicated funding • Political-Public Service Collaboration • Marketing

15. 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

16. Conclusions: From “Bubble Gum and Good Will” to Effective Management of ISD • The 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.

17. ISD Maturity Models:From Horizontal to Vertical Integration Intra- departmental Inter- departmental Inter- jurisdictional Single Channel General Trend Multi Channel ICD

18. ISD Maturity Models:Governance Arrangements Co-located/ Virtual Collaboration, Silo owned Integrated Management, Individual . Ownership Utility and Single ISD Dept. Models

19. ISD Maturity Models:An Evolution Matrix Inter-sector ISD Integration axis Inter-gov’t ISD General Trend Inter-dept ISD Intra-dep’t ISD Governance axis Co-located/ Virtual Collaboration, Silo owned Integrated Management, Individual . Ownership Utility and Single ISD Dept. Models Multi Channel ICD

20. ISD Maturity Models:Examples in Practice Inter-Sector ISD Toronto 211 VAC Seniors Portal Cdn Tourism Commision Inter-gov’t ISD Atlantic Canada OnLine Canada- Manitoba BSC Centrelink SNB Service NS Inter-dept ISD Service Canada Passport Office/ Cda Post BCGovt Agents Ontario BCS CCRA Call Centres Intra-dep’t ISD Co-located/ Virtual Collaboration, Silo owned Integrated Management, Individual . Ownership Service Utility ISD LeadDepartment Multi Channel ICD

21. Recommendations • 1. 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

22. Recommendations • 5. 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

23. 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?

24. 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

25. 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