Modernising service delivery: the integrated services prototype
A hard copy of this report summary can be obtained by contacting Paul Noakes [E-Mail: Paul.Noakes@dwp.gsi.gov.uk] or by writing to him at the 'Social Research Division, Department for Work and Pensions, 4th Floor, Adelphi, 1-11 John Adam Street, London WC2N 6HT'.
Research Report No. 104
By Tim Rose
This was an evaluative study to consider how well the Lewisham Integrated Services Prototype reflected the principles of an Active Modern Service from the perspectives of both customers and staff. The study was designed to explore attitudes towards new ways of delivering social security benefits, focussing on a number of issues which included: joint customer visits, tele-claiming, joint electronic claim forms, customer kiosks, joint information and advice, integrated working, data-sharing and case management. It was carried out by Martin Hamblin.
The main findings are:
- The Lewisham Integrated Services Prototype was generally considered, by staff and customers alike, to provide a good basis from which to develop the delivery of social security benefits.
- Customers appreciated receiving one joint visit rather than two and valued the professional and non-judgemental style in which staff from both organisations treated them.
- Customers reacted positively to joint face-to-face and joint tele-claims. They appreciated the enhanced customer focus, convenience (not having to visit multiple offices); efficiency of the service; and the reduction of duplication of information across benefits.
- The helpful and sensitive attitude of staff was the major factor in customers' positive perception of the service.
- Staff felt that the integrated ways of working was more efficient and effective, and provided a better customer service.
- Staff identified cultural differences between the LA and BA, for example pay and conditions and customer service approaches. They felt that these cultural issues would have to be addressed if integrated services were to be successfully launched in the future.
- Staff felt that the more proactive and customer orientated service improved service efficiency. This was particularly in terms of more and better information coming from customers to facilitate the processing and clearance of claims
Introduction
The Lewisham Integrated Services Prototype was launched in April 1998, as part of the Government's comprehensive review of welfare provision.
The Prototype sought to explore customer and staffs attitudes towards a number of Active Modern Service (AMS) principles. These included: joint customer security visits, joint electronic claim forms, customer kiosks, joint information and advice services, tele-claiming, integrated working, data-sharing and case management.
Methodology
The study was qualitative and comprised depth interviews and focus groups with customers and staff.
The customer sample was structured to reflect a wide range of experience of the services tested by the Prototype: method of claiming, method of accessing advice, previous experience of claiming and age.
The staff sample included people responsible for tele-claiming and processing in Belfast, as well as those who carried out face-to-face claims and advice services in Lewisham. Both managers and front-line staff were involved in the fieldwork.
In total, 117 individuals took part in the study: 84 customers, and 33 staff.
The study was carried out between July 1998 and January 1999
Customer views of the Lewisham Integrated Services Prototype
Overall
Customers viewed the new joint visits, claiming and advice services offered under the Lewisham Prototype as customer friendly and unproblematic. They were viewed as a logical development in the way services should be developed, and respondents identified no major barriers to the development of these services. Self reported customer satisfaction with these services is linked to five key themes:
- Increased customer attention and service, with staff being perceived to take a much more customer friendly approach
- Increased customer care, with clear and useful advice given
- A service which is easier to access and less duplication of information
- A quicker, efficient and more accurate service
- A less stressful claim service.
Joint Visits
Customers' reactions to joint visits were positive and can be summarised as follows:
- Customers appreciated the concept of one joint visit, rather than the two they would receive under the 'normal system'
- Customers valued the way they were treated by BA and LA staff during their visit. In particular they valued the professional and non-judgemental style in which staff from both organisations treated them
- Speed and accuracy of payments were important to all respondents, and customers were satisfied with this aspect of the service
- Customers felt staff were confident and knowledgeable when advising them about benefits, and felt they had received the information they requested
- Customers found the interview straightforward and were happy with the length of the interview.
Customers identified no major barriers to the joint visit system. Some customers suggested a number of ways where this service could be refined or improved:
- A number of customers felt they could have been given better information prior to their visit, for example, more information on the nature of the visit, how long it would take and evidence documentation they would need to provide in support of their claim
- Customers who experienced problems with their claim expected their full claim details to be held by both organisations
- Some customers experience implementation problems, for example, multiple Housing Benefit forms after their visit or even multiple visits
- Customers felt that the joint system would only work if staffs from both organisations were well trained, and the service was well funded and efficient.
Tele-Claiming
Customer reactions to tele-claiming can be summarised as follows:
- More convenient making a claim from home, customers found it easier to concentrate on questions and if it was necessary refer to documents and information
- Avoids duplication of questions across benefits
- Reduces the need for customers to travel to one or more offices which are perceived as being unpleasant
- Demonstrated greater customer service and offered a faster and more efficient service
- Information collected was more accurate and complete (many customers find application forms hard to understand and consequently make mistakes. They therefore appreciated the fact that questions could be explained to them)
- The length of the interview was acceptable.
There were a few negative views of the tele-claim interview from those who experienced it:
- Some customers and in particular pensioners were perceived as more reluctant to use the tele-claim process. Many in this group preferred face-to-face interviews in any situation because they liked the reassurance of seeing the person they were speaking to
- Those customers where English was not the first language experienced difficulties understanding all questions.
Face-to-face claims
Most customers reacted positively to face-to-face claims. As with tele-claims, customers appreciated the:
- Enhanced customer service
- Convenience (not having to visit multiple offices)
- Efficiency of the service
- Advice and assistance in completing the joint claim form
- The reduction of duplication of information across the benefits
- Customers also appreciated the appointment system which meant that they did not have to wait for lengthy periods in the offices and could come fully prepared with all the necessary documentation for their claim.
There were a few negative views expressed by customers who had experienced this service:
- A number of customers did not have their interview conducted in a private room. Some of these found this distracting and at times difficult, especially when they had to discuss personal details
- Some customers were confused as they received Housing Benefit Claim forms after completing their joint claim.
Joint Advice and Information
Customers were satisfied with the joint advice services. They found this service quicker and more efficient and were unconcerned about obtaining information about BA benefits and the LA and vice versa.
Customer Kiosks
Those customers who used the electronic kiosks, which provided a video conference link to processing staff, were satisfied with this service. However, it should be noted that this service would probably be utilised by a small select group of customers. Notably those who already feel comfortable using computer technology.
Staff views on the Lewisham Integrated Services Prototype
All staff felt able to deliver the service being tested through the Lewisham Prototype, and felt that these services had improved customer service and efficiency.
Key factors which underpin staff satisfaction with delivering joint visits, joint claiming, and advice services are as follows:
- They had a greater involvement with customers which they valued
- The increased customer focus meant that customers were less aggressive and more co-operative
- Their knowledge of benefits improved
- They were working with a more efficient, accurate and quicker service
- Fraud detection was improved through the joint collection of data
- They developed inter-agency relations, which enhanced co-operation between the BA and Lewisham LA. (This was more enhanced for joint claiming and advice staff who were co-located).
However, there were aspects of the Prototype, which were less satisfying for staff delivering all prototype services. These included:
- Staff identified cultural differences between the two organisations, for example, pay and conditions, customer service approaches and familiarisation with information technology. Staff felt that cultural differences between the BA and the LA would have to be addressed, in order to improve staff satisfaction and the smooth running of the service
- Information technology whilst indicating considerable potential was often problematic in operation.
Problems which were identified by staff working on joint visits and peculiar to the service are as follows:
- LA staff felt they had not received enough background information on customers prior to a visit, for example, a breakdown of benefits received or information on customers disability
- Visiting Officers felt they had not been provided with adequate feedback during the Prototype, for example, quality of visits. This was a particular issue for BA visiting officers
- Staff disliked the way work was divided between the LA and the BA. They thought Target Reviews and New Claims should be shared across the two organisations. This is a particular problem for BA visiting officers, who felt they had lost the welfare aspect of their work.
Problems which were identified by staff working on joint advice and claiming services and peculiar to these services are as follows:
- Insufficient preparation and training meant that staff found it easier to refer customer queries to staff from the organisation rather than attempt to answer them themselves
- Tailoring of question prompts on the electronic claim form proved too rigid and staff felt uncomfortable using them
- Prototype staff felt frustrated because of the lack of Prototype knowledge amongst other frontline staff working in Lewisham local offices. This led to a limited uptake of joint claims, because reception staff were not always referring eligible customers onto the Prototype
- Some staff felt isolated from their home office.
Conclusions
Overwhelmingly, customer and staff views about the Lewisham Integrated Services Prototype were positive.
The Lewisham Prototype: Is it a Model for Active Modern Service?
All services offered by the Lewisham Prototype were generally considered, by staff and customers alike, to provide an excellent basis from which to develop the delivery of social security benefits.
There are many successes identified in this Prototype which the DSS could build upon. These include:
- Joint visits
- The tele-claim process
- Face-to-face joint claims
- Integrated working between agencies
- Increased opportunity to identify fraud
- Increased customer focus.
Relevant publications
Thomas A, Stone V and Cotton D (1999) “Modernising Service Delivery: The Lone Parent Prototype, ”Department of Social Security Research Report No.90, Leeds: CDS