Modernising service delivery: the Lone Parent 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. 90
By Andrew Thomas, Vanessa Stone and Daphne Cotton
This was an evaluative study to consider how well the Lone Parent Prototype reflected the principles of an active modern service from the perspective of both customers and staff. The study was designed to explore attitudes towards new ways of delivering social security benefits for lone parents, focussing on a number of issues which included: tele-claiming, integrated services, having a single point of contact, data sharing, case management, and location of services. It was carried out by BMRB International in summer 1998.
The main findings are:
- The customer response to tele-claiming was overwhelmingly positive. They found it easier to answer questions than to fill in long application forms. Making a claim from home was found to be much more convenient and comfortable because customers did not have to spend time visiting local offices.
- The concept of an integrated service was highly regarded by customers and widely seen as a more ‘natural’ and efficient way of delivering social security business. Having one application form both simplified and speeded up the process and avoided customers having to repeat distressing experiences.
- Customers were enthusiastic about having a single point of contact for the collection of all information that was required for a benefit application. They were keen to see one team or preferably one contact who would co-ordinate their claim.
- The helpful and sensitive attitude of staff was the major factor in the customers’ positive perception of the service.
- All staff felt that customer service had improved and that customers had reacted positively. Staff thought that the claim was a less stressful experience both for the customers and themselves, resulting in reduced customer abuse and aggression.
- 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 their claims.
Introduction
As part of the Government’s comprehensive review of welfare the Department of Social Security (DSS) has been developing a new approach to the delivery of welfare services. This approach known as ‘active modern service’ (ams) is intended to reflect a shift in emphasis away from a department that is seen as primarily a ‘payer of benefits’ towards a simpler, customer orientated service that provides advice and guidance, help and job-seeking, and financial support.
AMS has required the development of a series of service delivery design features. These include: case management; better information; integrated working; information sharing and better IT support for staff.
These have been encapsulated into a group of prototypes to test out alternative modern methods of delivering social security services. One of these is for lone parents and includes joint working between the Benefits Agency, The Child Support Agency and one Local Authority. Customers were offered a single point of contact to make a joint electronic claim This was usually taken by tele-claim.
The Department of Social Security commissioned BMRB International to carry out research to evaluate this prototype. The study was designed to explore attitudes towards new ways of delivering social security benefits for lone parents, focusing on a number of issues which included: tele-claiming, integrated services, having a single (named) contact, data sharing, case management and location of services.
This was a qualitative study which comprised of depth interviews with customers (55) and a series of paired depths and mini groups with staff (22).
Experience and views of the Lone Parent Prototype
Overwhelmingly participants’ views about the Lone Parent Prototype were positive. Underpinning these views were six key features:
- easier access to the benefit system;
- increased customer focus and service, with staff being perceived to take a much greater interest in the customer and their benefit application;
- increased customer care, with helpful advice being offered and customers feeling that they were being kept more informed of the progress of their claim;
- a less stressful experience which resulted in reduced customer abuse and aggression, a view corroborated by staff implementing the Prototype;
- a system which was felt to be less open to fraudulent claims, a view that was also held by BA staff; and
- an overall perception that the social security system was becoming more proactive and customer orientated, the consequence of which was to encourage a more positive view of the DSS and BA .
Tele-claiming
Tele-claiming was the main method tested for the Prototype and the following provides a summary of customer and staff reactions:
- simplifies access to the benefit system;
- avoids duplicating questions across benefits and only requires individuals to tell the story once;
- reduces the need for customers to travel to one or more offices, and reduces the need to arrange, potentially expensive, childcare;
- is perceived to be ‘the way to go’ and in line with other large organisations, a view shared by customers and staff;
- demonstrates greater customer focus and offers a faster and more efficient customer service;
- provides for more accurate collection of information with less missing data;
- offers the opportunity to spot some types of fraud as well as inconsistencies in information received;
- offers a number of potential cost savings in terms of: greater accuracy of the information collected at the application stage; reduced administration costs due to increased compliance; and the suggestion that employment-related information at the time of the claim might also lead to cost savings in terms of a swifter return to the labour market.
There were very few negative views of the tele-interview. The two main problems were:
- problems understanding questions when English was not the customers first language;
- having sufficient time to reflect on questions.
Some customers preferred to stick with postal claiming simply because that method had been trouble-free in the past. The main worry with postal claiming was the unreliability of the postal service which could cause delays in the processing of their claim.
A few customers preferred face-to-face interviews in any situation because they like the reassurance of seeing the person they were speaking to. They also felt that it helped staff to see the “‘honesty’” of the claim.
Customers' views on integrated services
Customers preferred an integrated service because:
- it allowed access to the benefits system through a single point of contact;
- information need only be given once in a single application;
- the process was simpler and quicker.
There were some reservations:
- in particular around the of the Child Support Agency because of
- the negative associations some people held about the CSA and
- the intrusive nature of their questioning;
- a wish not to discuss painful and sensitive issues when putting in a claim for Income Support;
- the need for more time to reflect on the questions and how to answer them;
- integration might slow down the processing of claims.
Although there were some exceptions, the prevailing preference was for accessing the benefits system through the DSS/BA and by telephone. Where personal vists were necessary then an appointment system was felt to be essential.
Customers assumed that data would be shared between the agencies with some respondents considering that:
- different agencies should only have access to the information they needed;
- respondents should be informed as to what information is being shared between departments.
There were few concerns about the confidentiality of the tele-claim process with only a minority of respondents feeling that a password was necessary.
Customers' views on having a single point of contact
Respondents preferred to have their case managed by a single, preferably named, point of contact as this would ensure a ‘personal service’ and it was thought, a more efficient service. There was a strong desire to deal with as few people as possible. Customers were less concerned about how their applications were processed – it could be one person or a team – but their preference was for a single channel of communication between the agencies involved and themselves.
Working on the Lone Parent Prototype
Staff working for the Lone Parent Prototype thought it was crucial for the Department to ‘“modernise”’ the service. Although there were aspects of the Prototype that would need to be changed, staff generally viewed the Lone Parent Prototype as a success in that it had added to the Department’s understanding of how best to modernise the service.
Lone Parent prototype staff were drawn from the BA and CSA and it was clear that they enjoyed working together. Many positive comments were made about the high morale and good working environment which had been engendered during the training. Staff described a working culture that was more satisfying than previous experiences, particularly for CSA staff.
However, links between the DSS/BA staff and the Local Authority were not as close but following a joint review, steps were put in place to resolve problems arising about communication and duplication of work. The Local Authority had found things easier since having computer access to general DSS information and suggested that extending this link would improve efficiency and greatly enhance the processing of Housing Benefit as part of the Prototype.
Staff got a great deal of job satisfaction from working on the prototype. The reasons are as follows:
- Their computing skills were enhanced because they were learning to use more advanced software than they had access to in their previous jobs.
- They had greater involvement with customers which they valued, and the efficiency with which claims could be processed pleased them.
- Staff felt more involved in their cases because they saw them from beginning to the end.
- Staff enjoyed working in an inter-agency culture.
However, there were aspects of the Prototype which were less satisfying for staff. These included:
- it could be hard to plan the working day;
- asking the same questions over and over again could be monotonous;
- insufficient preparation and training for certain aspects of the Prototype made some staff very uncomfortable, especially during the initial stages;
- some of those on higher staff grades felt overgraded for the job and felt considerable frustration over the loss of responsibility and level of decision making they had on the Prototype;
- information technology whilst indicating considerable potential was often very problematic in operation.
The Lone Parent Prototype: Is it a model for active modern service ?
The Lone Parent Prototype was generally considered, by staff and customers alike, to provide an excellent basis from which to develop the delivery of social security benefits.
Successes in the Lone Parent Prototype which supports the principles for active modern service include:
- the tele-claim process;
- single point of contact;
- integrated working between agencies;
- increased opportunities to identify fraud;
- the potential to offer non benefit advice and information;
- increased customer focus reflected in heightened customer satisfaction and reduced aggressive and abusive calls;
- generally increased staff satisfaction.
Three specific areas for extension were considered to be feasible:
- widening the range of benefits;
- extending the Prototype to a wider range of client groups, specifically people with disabilities and the elderly; and
- developing a more proactive approach to the delivery of, or sign posting to, non-benefit related information and advice
Relevant publications
Woodfield, K. and Finch, H. (1999) New Deal For lone parents: Evaluation of Innovative Schemes, DSS Research Report No. 89, CDS.
Rose, T. (forthcoming). Modernising Service Delivery: The Lewisham Closer Working Prototype, DSS Research Report, CDS.