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
Inter-gov’t
ISD
Integration axis
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
BC Govt
Agents
Ontario
BCS
CCRA Call
Centres
Intra-dep’t
ISD
Co-located/
Virtual Collaboration,
Silo owned
Integrated
Management,
Individual . Ownership
Service
Utility
ISD Lead Department
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