The Guideline on Service Management is no longer up-to-date, as the Policy on Service and Digital and the Directive on Service and Digital took effect on April 1, 2020.
This document provides guidance to departments on managing their services and implementing the Treasury Board Policy on Service.
Although targeted to the departments to which this policy applies (see section 2 of the Policy on Service), other Government of Canada institutions are encouraged to follow the advice in this guideline, as appropriate. It provides recommended practices, tips and tools regarding service management, which in some cases may already be in place in departments.
Program and service managers and executives who are responsible for implementing the Policy on Service and/or managing Government of Canada services are the intended audience for the guideline.
This guideline was prepared by the Chief Information Officer Branch of the Treasury Board of Canada Secretariat, in consultation with departments and agencies. For more information on this guideline, please contact Treasury Board of Canada Secretariat Public Enquiries.
Government of Canada employees can access more information about service management on the Government of Canada Service Policy Agenda page via GCpedia, a closed government network.
Every day, the Government of Canada delivers a broad range of services. Excellence in the design and delivery of services promotes confidence in government, and contributes to the efficient and effective achievement of public policy goals and better service experiences for clients.
The Policy on Service was introduced in 2014 to establish a strategic and coherent approach to the design and delivery of Government of Canada external and internal enterprise services that is client-centric, realizes operational efficiencies and promotes a culture of service management excellence.
This guideline outlines the key components of good service management stemming from the 10 requirements of the Policy on Service:
This section outlines some key concepts that underpin the design, delivery and management of government services.
This section provides advice on what constitutes a service under the Policy on Service. Departments are responsible for determining what constitutes or does not constitute a service based on their own specific operational context.
A service is the provision of a specific or final output that addresses one or more needs of an intended recipient and contributes to the achievement of an outcome.
When identifying services, keep the following in mind:
Definitions and explanations of the key terms contained in the definition of service are as follows:
To differentiate between these two concepts, the following example is helpful. Passport Canada has the authority to issue Canadian passports. The output of this service is a passport. The outcome is the ability for Canadians to travel abroad.
This section explores some useful concepts to help service owners and service providers better understand and identify services based on the definition provided above. Some services are easy to identify; others are not and require careful consideration and discussion.
Departments are responsible for determining what is or what isn’t a service within their operational context. For assistance in determining whether an activity or a series of activities is a service, consider using the Service Test Tool presented in Appendix 1A.
Programs provide the context for determining the services to be delivered. Programs are generally delivered through services, which contribute to the achievement of program objectives.
Most departments have already identified, in their Departmental Results Framework, their outcomes, or expected results, which are to be reflected in their Program Inventory, as per the Policy on Results. Services contribute to the achievement of those expected results (outcomes).
An understanding of services first requires knowledge of the context in which they operate. Services are a component of a Program that contributes to a specific set of outputs. Services deliver a final output to recipients, or clients, to support the achievement of the outcome. Services are composed of activities (processes) that lead to the final output. Figure 1 illustrates this context.
Figure 1: Context in which services operate
When determining whether an activity is a service, it is helpful to ask whether the activity produces an intermediate output or a final output to a client. Some examples include:
A service consists of a series of activities (processes) that result in a single final output for the recipient (or client). Each activity is not considered an individual service, even though it might produce intermediate outputs.
Consider a scenario where a business owner requires a permit or certificate from the Government of Canada to be able to proceed with a specific action on business premises. The series of activities may involve:
The administration of grants and contributions usually constitutes a service, except in the case of contributions/transfers made to other governments or other organizations (for example, fiscal equalization, membership dues to NATO (North Atlantic Treaty Organization).
Grants and contributions meet the definition of a service in that there is a final output (funding); there is a need (funds); there is a recipient; and it supports an outcome or public policy goal (the reason the government is providing the grant and contribution).
Service standards are often applied to the administration of grants and contributions. When there is uncertainty about whether a grant and contribution is a service, it is up to the department to make the final determination.
For more information on grants and contributions, consult the Policy on Transfer Payments.
Information or data is a service when it constitutes a final output to a client and when it has the other elements contained in the definition of service (that is, need, recipient and outcome).
Addressing the following considerations can help in assessing whether information or data is a service. In addition, service providers can use the Service Test Tool (see Appendix 1A).
Is the information the final output, or is it part of a larger process that leads to a final output? The greater the sense that the information or data is the final output, the greater the likelihood it is a service. For example, the weather forecast published to the weather website is a service because the information concludes an interaction between the service provider (the weather website) and the client (the website visitor). The interaction is concluded because the client obtains the weather forecast as a final output.
For information to be considered a service, the final output must be produced frequently or repeatedly. The more frequently the information or data is produced, the greater the likelihood that it is a service.
The greater the recipient’s need for the information, the greater the likelihood that the provision of it is a service. Consider whether access to the information helps ensure the well-being, health and safety of Canadians or economic viability of businesses and whether the lack of access to it could hinder this. For example, travel advisories or food recall warnings published to the Internet are services.
The greater the need for the information in a specified time frame, the greater the likelihood that it is a service. For example, consider weather services. The weather website publishes information about the weather forecast with a high degree of frequency; sometimes, as often as every minute. Contrast this to a report or document that is published to the website once or twice per year.
The greater the number of individuals that access the information or data as a final output, the greater the likelihood that it is a service. Given the wide range of services offered by the federal government, it is impossible to establish a threshold number here because that number depends highly on the nature of the service and the operational context.
Answering yes to this question increases the likelihood that the provision of the information or data is a service. For example, a call centre agent providing information or advice in the form of a final output contributes directly to an outcome; the client has obtained customized information and advice needed to access Government of Canada programs and services.
The activities that make up a service may be completed by one or several departments, including third-party organizations. When that is the case, it is especially important to understand the concept of service owner.
A service owner may differ from a service provider. A service owner is the organization that has the authority to offer the service. That authority can be conferred through legislation or through a regulatory or other instrument to a service provider, and accountability is delegated to the appropriate level of manager.
Service management is the set of activities and practices undertaken by those responsible for designing, implementing, delivering, monitoring and continuously improving the services for which they are accountable.
All individuals, businesses, and organizations in Canada require services from the federal government at one time or another, and they expect those services to be of high quality; they expect government to provide services that are easy to access, timely, accurate, reliable and secure.
Effective service management enables excellence in the design and delivery of services. It also contributes to the achievement of public policy goals, delivers value for money, produces high levels of client satisfaction and promotes confidence in government.
Service management in the Government of Canada is governed through the Policy on Service and requires deputy heads to apply the policy in a manner that reflects the following three principles:
The above principles of service management are complemented by the consideration of well-known drivers of client satisfaction:
A service agreement is a formal administrative understanding between two or more parties that articulates the terms and conditions of a particular service relationship between two or more parties.
Establishing service agreements is a sound management practice in any type of service owner /service provider arrangement when, for example, a Government of Canada service is provided by one department to, or on behalf of, another department.
Service agreements can enhance governance, accountability and service quality by clearly defining roles, responsibilities, processes and performance expectations. The practice of establishing service agreements is strongly recommended in any type of service owner /service provider or collaborative service relationship. Aspects of the service relationship that are typically documented in a service agreement include scope, governance, operations, finances, performance and implementation.
Service agreements serve three primary functions:
For additional information and tools for this aspect of service management, please consult the two Treasury Board of Canada Secretariat Guidelines on Service Agreements, published separately. The Guideline on Service Agreements: An Overview provides an overview of service agreements and is geared toward senior managers and executives. The Guideline on Service Agreements: Essential Elements describes the essential elements of these agreements and is intended for individuals responsible for developing or reviewing service agreements.
The Policy on Service contains specific requirements relating to priority services. Identifying priority services helps departments focus their attention on particular improvement areas based on their specific operational contexts.
Priority services are external and internal enterprise services, determined by each department based on a number of considerations, including:
Priority Services must be identified in a department’s service inventory and are expected to remain relatively static over time. Departments should review them regularly and should have a strong rationale for their decision as to whether a service constitutes a priority service or for any changes to priority service designations.
The Priority Service Identification Tool identified in Appendix 1B is intended to support departments in the identification of their priority services and in documenting the analysis and assessment; it can be refined to reflect other considerations or factors, such as weighting to reflect the relative importance of the criteria being used. However, departments should ensure comprehensiveness.
An external service can be defined as a service where the intended recipient is a client that is external to the Government of Canada. The following are examples of external services:
The general types of external services are outlined in Appendix 1C, which can be helpful in in the identification of, and reporting on, external services.
An internal enterprise service can be defined as a service provided by a Government of Canada department to other Government of Canada departments on a government-wide basis (they may be provided to several or all departments) and are distinct from internal services, which are provided within a department. The following are considered internal enterprise services:
The general types of internal services (as prescribed in the Policy on Results) are outlined in Appendix 1D, which can be helpful in in the identification of, and reporting on, internal enterprise services.
E-services / e-enabled services are defined in the Policy on Service as the provision of a service that can be completed online from end-to-end, except in circumstances where it is prohibited by law or security considerations.
It is understood that an e-enabled service is one that can be completed online from the client’s perspective. The final output may not be delivered online in all cases, as it may be a material document, such as a passport, a medical certificate or otherwise; however, departments are encouraged to consider the possibility of e-enabling the final output as well. In instances of third-party delivery, departments must incorporate e-enabled requirements into their contracts or agreements, as compliance with the Policy on Service remains necessary in those situations.
The e-enablement of services usually applies to all of the interaction points between the service provider and the client, including:
Departments are encouraged to document their approach (rationale) when excluding a service or part of a service (an interaction point) from being e-enabled, and note this in the departmental service inventory.
The requirements of the Policy on Service related to e-services are intended to better position the Government of Canada to meet the needs and overall expectations of clients while also realizing efficiencies by increasing the reliance on lower-cost delivery channels.
Given their complex and transformational nature, e-service policy requirements are the last to come into effect in the policy’s phased implementation schedule. This also reflects the reality that, for many departments and agencies, e-service initiatives need to be incorporated into existing planning exercises, such as business and IT plans, as well as contracting.
Beyond legal or security considerations, e-enabling all or part of a service may not be practical from a cost-benefit perspective, or based on other considerations, such as technical feasibility. In other circumstances, a particular intermediate activity of a service may not be suitable to be completed online, for example, an in-person consultation or inspection. E-enabling a service requires taking a client-centric approach, and clients should be given the option to revert back to the online channel once an activity requiring a different delivery channel has been completed.
This tool is designed to assist Government of Canada service providers in determining whether an activity or group of activities constitutes a service. The tool provides general guidance on identifying services however departments must make the final determination in this regard.
Based on your understanding of the activity or group of activities, use the table below to respond to the following questions and answer yes or no in the space provided. If you answer no to any question, the activity is not a service.
If you have answered yes to all the questions, the activity is a service and should be included in your service inventory.
Questions | Analysis | Yes/No |
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1. Does the activity result in a final output to a recipient/client? | ||
2. Is the final output produced repeatedly? | ||
3. Does it address one or more need? | ||
4. Is there a timeliness factor associated with a need? | ||
5. Is there a clearly defined recipient/client or group of recipients/clients? | ||
6. Does the activity contribute, on its own, to the achievement of an outcome? | ||
7. Is the activity independent of all other services? | ||
8. Is the activity delivered over at least one service delivery channel (that is, Internet, in person, mail or telephone)? |
The following three examples show how the service test tool can be used to determine whether an activity is a service.
Questions | Analysis | Yes/No |
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Conclusion: This is a service. | ||
1. Does the activity result in a final output to a recipient/client? | The funding is the final product of the service and is what the farmers were seeking when they originally applied for and paid for the service. The distribution of funds is the final output. | Yes |
2. Is the final output produced repeatedly? | The funding is given repeatedly and in different years. | Yes |
3. Does it address one or more need? | Provides funding when producers’ production margins fall below their reference margin by more than 30%. | Yes |
4. Is there a timeliness factor associated with a need? | The service is provided when producers’ production margins fall below their reference margin by 30%. The funding assists producers at a time of financial need and is therefore time-sensitive. Thus, there is a timeliness factor associated with meeting a need. | Yes |
5. Is there a clearly defined recipient/client or group of recipients/clients? | There are many farmers who could use this service. | Yes |
6. Does the activity contribute, on its own, to the achievement of an outcome? | AgriStability does not require additional activities or processes to ensure that it contributes to a program outcome. | Yes |
7. Is the activity independent of all other services? | AgriStability does not depend on other services. | Yes |
8. Is the activity delivered over at least one service delivery channel (that is, Internet, in person, mail or telephone)? | Funding is delivered in person or by mail. Some of the information related to the service is delivered over the Internet. | Yes |
Questions | Analysis | Yes/No |
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Conclusion: This is a service. | ||
1. Does the activity result in a final output to a recipient/client? | The icebreaking and the protection that goes along with icebreaking are what the client has requested and is paying for. It is the final output. | Yes |
2. Is the final output produced repeatedly? | The ice is cleared many times during the winter, year after year. | Yes |
3. Does it address one or more need? | Supports economic activities by assisting commercial vessels to voyage efficiently and safely through or around ice-covered waters. | Yes |
4. Is there a timeliness factor associated with a need? | Icebreaking is required to enable the passage of sea vessels and to maintain shipping schedules, which indicates that the need is time-sensitive. | Yes |
5. Is there a clearly defined recipient/client or group of recipients/clients? | This service is provided to many clients: commercial vessels, fishing vessels, Arctic residents, port operators, and the general public. | Yes |
6. Does the activity contribute, on its own, to the achievement of an outcome? | The Icebreaking Program does not require additional activities or processes to contribute to a program. | Yes |
7. Is the activity independent of all other services? | The Icebreaking Program would continue to exist and would remain unchanged if another service disappeared. | Yes |
8. Is the activity delivered over at least one service delivery channel (that is, Internet, in person, mail or telephone)? | The Icebreaking Program is delivered in person. | Yes |
Questions | Analysis | Yes/No |
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Conclusion: This is not a service. | ||
1. Does the activity result in a final output to a recipient/client? | The website is a tool that identifies various benefit programs and services based on target group and life events. It provides links to other websites. It is therefore an intermediate output, rather than a final output to a client. | No |
This Tool is intended to assist departments in identifying their priority services and complements the Policy on Service.
Consideration | Criteria | Example | Assessment (high/medium/low) | Analysis |
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Overall rating as a priority service: | ||||
Is this service a priority service for the department? | Yes/No | |||
Mandate |
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Government priority |
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Volume |
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Mission critical or essential |
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Importance of service to well-being of individuals or viability of businesses |
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Authentication |
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Other criteria |
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Use of common terminology can help with Government of Canada reporting exercises. The five external service types in the following table are based on the 19 service output types listed in the Canadian Governments Reference Model (CGRM). Departments are encouraged to use these five types when identifying and categorizing external services.
External service type | Description | CGRM service output title | Examples |
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1. Resources |
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2. Advisory services |
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3. Educational, recreational and cultural encounters |
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4. Regulatory compliance and enforcement |
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5. Rule making |
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Use of common terminology can help with Government of Canada reporting exercises. The following list of internal service types (as prescribed in the Policy on Results) can be used to assist in the identification of, and reporting on, internal enterprise services.
Internal service type | Examples |
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1. Acquisition services |
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2. Communications services |
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3. Financial management services |
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4. Human resources management services |
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5. Information management services |
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6. Information technology services |
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7. Legal services |
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8. Management and oversight services |
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9. Materiel services |
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10. Real property services |
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The Policy on Service sets out requirements for deputy heads in relation to various aspects of service management. The implementation of the requirements mentioned throughout this document, whether for the development of service inventories or others, can benefit from project management practices.
The Policy on Service also sets out monitoring and reporting requirements under which deputy heads are to confirm compliance with the Policy through reporting mechanisms, such as the Management Accountability Framework, or through an annual confirmation that requirements are being met (see section 8.1.b of the Policy on Service). The following elements are essential to strong service management:
Section 7.1. of the Policy on Service, which came into effect on October 1, 2014, requires that departments develop a service inventory for external services and for internal enterprise services, and to update it annually.
A service inventory is a catalogue of external and internal enterprise services, including the identification of priority services, that provides detailed information based on a specific set of elements (for example, services type, area of responsibility, client and volume).
A service inventory contains information, known as data elements, that enables service providers to fully understand and manage their services. This information should be consistent with data contained in department’s Performance Information Profile.
When used effectively, a service inventory can help organizations know, understand and manage their portfolio of services. A service inventory also demonstrates an organization’s commitment to transparency and to service excellence. Using a service inventory has several benefits:
Although many departments already have service inventories, they are encouraged to align their inventories with the advice contained in this Guideline to ensure a consistent approach government-wide. Table 5 below provides an overview of the service inventory requirements. A service inventory template can be found on the Government of Canada Service Policy Agenda page via GCpedia, a closed government network.
Many data elements can be included in a service inventory and the most important elements are listed in Table 5 below. Departments may include other data elements in their service inventory, including those related to cost. For more information on costing, consult the Treasury Board Guidelines on Costing.
No | Element | Description |
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1 | Service ID number | A unique number assigned by the department to a service in the inventory to make it easier to refer to specific services |
2 | Service name | The official name of the service. |
3 | Service type | Identifies the external or internal service type. For external services, select from one of the following elements:
For internal enterprise services, select from one of the following elements:
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4 | Special designations | Whether the service has been identified as a priority service, a mission critical service and/or an essential service by the department. These categories are not mutually exclusive and more than one designation can be listed. |
5 | Service description | A brief (one or two sentences) description of the service, and the need it meets. |
6 | Responsibility area | The part of the organization that is responsible and accountable for the service. |
7 | Authority | A list of the legislation and/or policies that grant authority for the establishment of the service. |
8 | Program name | The name of the program under which the service is delivered. |
9 | Program ID number | The unique program number associated with program elements for all strategic outcomes, programs, sub-programs, and sub-sub-programs. Corporate planners in the department who are responsible for the Policy on Results can assist in identifying the program ID Number, if needed. |
10 | External service or internal enterprise service | Indicates whether the service is an external service or internal enterprise service, as defined in the Policy on Service. Note: Although not required by the Policy on Service, Departments may include their internal services as long as they are properly identified as such in a separate section of the document. |
11 | Service ownership | Identifies the owner of the service, such as, the organization that is responsible for it based on established authorities. If the owner is another department, provide the name of that department. Departments are encouraged to use the applied title for the department, in accordance with the Federal Identity Program. For a list of applied titles, consult the Registry of Applied Titles. |
12 | Service agreements | Indicates whether any service agreements have been put in place to support the delivery of the service. |
13 | Client/service target group | Identifies the client or targeted groups for the service:
Note: Should you require further clarifications in regards to these categories, please consult the Standard on Tagging, in the Policy on Results. |
14 | Volume per channel | The volume of the service that is delivered in a fiscal year, including the absolute number of applications received and number of final positive outputs for each of the following channels used to deliver the service:
Note: If a service is not offered via a channel, please indicate that this question is not applicable. If there is no data for a service yet it is offered via that channel, please indicate the data is not available. |
15 | User fee | A yes/no value that indicates whether a user fee is collected for the service (for details, consult the Policy on Service Standards for External Fees). |
16 | Service standards | A yes/no value that indicates whether there are service standards for the service. |
17 | Operational performance targets | A yes/no value that indicates whether there are operational performance targets for the service. These are usually outlined in a department’s performance measurement framework (for details on the difference between service standards and operational performance targets, consult the Service Standards section of the Guideline). |
18 | E-enabled services | Indicates, from the client’s perspective, the percentage of the service’s activities that are completed online, based on the number of the following applicable interaction points of the service:
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The following are some key points to consider when developing and updating a service inventory:
Section 7.2 of the Policy on Service, which came into effect on October 1, 2014, requires that learning opportunities regarding service-related knowledge and client service excellence be given to service providers.
Learning opportunities consist of diverse learning methods or tools (formal or informal) to generate awareness or acquire knowledge and skills about the design or delivery of Government of Canada services. This could include training, information or orientation sessions, video, information provided via internal collaborative tools, manager debriefs, account sign-on notifications and electronic newsletters.
Departments that regularly provide learning opportunities related to service knowledge and client service excellence lay the foundation for meeting the needs of clients and achieving program outcomes.
Learning opportunities ensure that service providers have the resources, tools, relationships, networks, training, education, and supervisory support to enable them to apply service knowledge and skills (see Table 6 below) in service design and during client service interactions. Ultimately, this results in better service experiences, greater client satisfaction and improved program outcomes.
To effectively provide service-learning opportunities across the organization, departments may want to develop a department-wide approach or plan for learning activities.
The term service-related knowledge refers to knowledge about the specific service(s) being provided, whereas client service excellence refers to excellence in the skills required for interacting with clients. Table 6 lists some examples of service-related knowledge and client service skills.
Component | Description |
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Service-related knowledge | Knowledge of the following:
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Client service skills | The ability to do the following:
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Departments that choose to develop service-learning approaches or plans may include the following possible learning opportunities in those learning approaches or plans.
Section 7.3 of the Policy on Service, which came into effect on October 1, 2015, requires that a mechanism to provide feedback and address client service issues in a timely manner is available to clients.
Mechanisms to provide feedback and address service issues may include diverse methods or tools, formal or informal, to collect feedback from clients and to resolve service issues not related to decisions or appeals, such as an ombudsman, a generic departmental email or social media account and questionnaires during service delivery.
Client feedback and issue-resolution mechanisms provide a means for departments to receive and manage input from clients, and involve recording, processing, responding to and reporting on the input received. These mechanisms are generally related to other departmental activities to effectively manage feedback or service issues, such as:
A service issue refers to a challenge a client is experiencing at any point in the process of receiving a service. It does not relate to recourse related to a decision or a formal appeal process. Though most service issues are minor in nature, they typically require immediate attention in order to be resolved in a timely manner. This is critical to achieving an overall positive service experience for the client. How quickly issues are resolved will depend on their complexity and the operational circumstances of the department. Examples of service issues that could be addressed by the mechanism include:
Service issues are routinely raised with client service officers during normal client interactions and can usually be resolved quickly, to the clients’ satisfaction or understanding during the initial contact. To the extent possible, these should be recorded to inform service management improvement.
A range of mechanisms may already exist within a department for managing other types of issues, including those:
Departments may elect to use the same mechanism for all types of client feedback or service issues, however, the types of issues covered by each mechanism should be clearly communicated to employees and clients where appropriate. Determining whether an issue identified by a client is eligible for consideration under a particular mechanism can help to avoid wasting resources on a misunderstanding, a wrongly directed concern, or a frivolous matter. For example, if a client’s application for a permit is denied, their perceptions of the service delivery and the decision taken may be negative, when in fact the delivery met or exceeded established service standards. In this case the outcome of the transaction is influencing the client’s satisfaction with the service.
Client feedback and service issue-resolution mechanisms are critical to delivering services that meet the needs of clients and to continuous improvement. They serve a number of key purposes, including:
Feedback and issue-resolution mechanisms are used to manage a broad range of client experience information and usually employ a number of methods across all service delivery channels, both prompted and unprompted. For example, feedback and issue-resolution mechanisms that involve prompting users for input include offers to participate in an exit survey, while an unprompted method could include a “contact us” section that includes a web link, generic email and/or telephone number to contact the department.
Information received through the mechanism can be classified into two broad categories: general feedback that would be used to improve services, including future service improvement work plans, and more specific feedback or complaints on service delivery issues that are likely to require interaction or follow-up with a client, with varying degrees of urgency.
Depending on the type of information and the circumstances involved, a single method may be used for both collecting feedback and resolving service issues. In certain departmental situations involving a large volume of services and transactions, a specific office dedicated to client feedback and service resolution, such as an office of client satisfaction, could be considered.
All employees who deal with clients regularly should receive training in techniques for handling issues that may arise. This training could include instruction in negotiation and alternative dispute-resolution skills, and in skills for dealing with difficult people. Consider the following:
Providing clients with an opportunity to view a summary of survey results and/or actions undertaken in response to comments/complaints and suggestions will provide transparency, demonstrate that their feedback is valuable, and encourage their continued participation. Consider the following:
Section 7.4 of the Policy on Service, which came into effect on October 1, 2015, requires that priority services be reviewed regularly by departments to identify opportunities for service redesign, improved usability, channel integration and mobile optimization. It also requires that, where appropriate, departments adopt best-in-class service delivery approaches, alternative service delivery mechanisms and partnership arrangements.
A review of priority services consists of a systematic assessment of a department’s priority services against the aforementioned criteria to identify opportunities for service improvement, greater effectiveness and increased efficiency.
The regular review of priority services is a key practice in ensuring that services meet the evolving needs of clients, are efficient, and align with the overall Government of Canada Service Direction.
A departmental review of priority services does not need to be a complex process, although it does require a methodical approach and good understanding of the department’s current service environment, its priorities, its services, as well as coordination with key departmental and other service stakeholders.
When undertaking a review of priority services, consider the following key steps:
Once you have identified your overarching goals or objectives for service improvement, you may wish to consider the following key questions as part of your review of priority services.
Section 7.5 of the Policy on Service, which came into effect on October 1, 2015, requires that a multi-year departmental service management strategy be developed and implemented in alignment with the Government of Canada service direction, and that progress be measured annually.
In general terms, a strategy is a high-level plan of action to achieve a major or overall goal. A service management strategy outlines, among other things, what selected service improvement initiatives a department intends to pursue over a multi-year (that is, two- to five-year) period to improve the department’s services.
Developing and implementing a service management strategy demonstrates a department’s commitment to effective service management and to advancing the Policy on Service’s principles of client-centric service, operational efficiency, and a culture of service management excellence. A sample table of contents for departmental service management strategies is available in Appendix 2B. Departments may use this as a starting point and adjust the content to reflect their operational context and needs.
There are several benefits to developing a service management strategy:
Before developing a departmental service management strategy, departments will want to have developed and reviewed their service inventory.
Typically, a service management strategy contains the following key elements:
In order to keep their service management strategy current when significant changes occur, departments are encouraged to prepare an annual update to their service management strategy.
The annual update should clearly articulate what has changed and/or completed from their previously approved strategy, and should be practical and streamlined. For example, the update can consist of:
The annual update should include the following elements:
The annual update should be approved by the same executive or committee that approved the original service management strategy.
Note: Commitments can be made at the any above levels.
Section 7.6 of the Policy on Service, which came into effect on October 1, 2015, requires that user engagement approaches be developed to promote awareness and uptake of e-services.
A user engagement approach is a strategic plan that promotes awareness amongst clients of the availability of e-services, the benefits of using them and how to access and use them, with the ultimate goal of increasing uptake.
The development and implementation of a user engagement approach helps ensure that clients are aware and making use of the services that are available online and that such services are used effectively.
The following are some of the key elements of a user engagement approach:
All plans that include communications with the public must comply with the Communications Policy of the Government of Canada.
The following are some key points to consider when developing or implementing a user engagement approach to promote the awareness and uptake of e-services.
Section 7.7 of the Policy on Service, which came into effect on October 1, 2015, requires that service standards and real-time service delivery performance information for priority services to be available to clients on Canada.ca for external services and on internal collaborative tools for internal enterprise services.
Departments are responsible for ensuring they comply with all policy requirements for service standards. These include not only those contained in the Policy on Service, but also those in the Cabinet Directive on Regulatory Management, the 2004 Policy on Service Standards for External Fees, the 2004 User Fees Act and the 2008 Policy on Transfer Payments.
This section provides guidance on setting and managing service standards and real-time performance information to support the design and delivery of services, as required by the Policy on Service. Figure 2 below provides a generic step-by-step lifecycle that can be applied to all service standards.
Figure 2. Phases and steps in life-cycle management of service standards
Figure 2 lays out the overall process (inside circle) and presents the specific steps included under each phase (outside circle). While 5 phases and 15 steps are presented in a sequential order, some can be undertaken concurrently.
A service standard is a public commitment to a measurable level of performance that clients can expect under “normal circumstances” (expected level of demand for regular day-to-day service operations).
The term “normal circumstances” refers to the expected level of supply and demand for regular day-to-day service operations. This differs from special circumstances where regular service standards may not apply. These are circumstances that are typically not within the organization’s control. Examples include holidays, the end of April for tax filing, natural disasters, or other emergency situations.
There are generally three types of service standards:
When designing service standards, consider the following key characteristics:
Service standards are integral to good client service and to effectively managing performance. They help clarify expectations for clients and employees can drive service improvement, and contribute to results-based management. Service standards reinforce government accountability by making performance transparent, and increase the confidence of Canadians in government by demonstrating the government’s commitment to service excellence.
Service standards serve two key purposes:
Real-time service delivery performance information is information on the current level of performance that clients can expect to be provided for a service.
The concept of real-time means that timely information on the expected delivery of the final (service) output is available so that citizens and businesses can choose when to use government services based on that information.
For example, travellers approaching Canada can check the Canada Border Services Agency’s online service to know the current wait times at a particular border crossing and decide on which to use. In publishing this information, the Canada Border Services Agency helps clients set realistic expectations about its service.
Real-time service delivery performance information can be grouped into three categories based on the frequency of updates and the speed in which information is processed. They are as follows:
The frequency and speed of updates will vary for each service. Departments need to consider what real-time means in the context of each service, including what makes sense to clients, and to determine how best to publish real-time service delivery performance information. Service providers are best positioned to determine which frequency of update is most suited to each service.
Typically real-time information is focused on the timing to deliver a final output to a client. It can however, provide updates on the anticipated time frames for delivering intermediate outputs if they are anticipated by, and given directly to, clients as part of a larger process to deliver a service.
When establishing real-time service delivery performance information approaches, consider the following key characteristics:
Although service standards inform clients what to expect based on organizational service targets, they do not provide current performance information that permits citizens and businesses to make behavioural choices when accessing government services. Real-time service delivery performance information bridges this gap.
Service standards and real-time performance information should be linked to an operational performance target. An operational performance target is defined as the frequency (often expressed as a percentage) that the organization expects to meet the service standard (for example, we will meet our service standard 90% of the time).
The target takes into account the risks associated with process delays and uncertainties arising from factors, such as workload fluctuations, staff movements, and seasonal variations.
The purpose of the operational performance target is to help manage operations and track progress against overall delivery objectives. The target is typically for management use but can also be made available to the public.
Service standards, real-time service delivery performance information and operational performance targets are three distinct and complementary metrics. Together, departments can use these metrics to help manage service delivery results and client expectations.
The table below provides examples of the different metrics used to assess service performance.
Service standard | Operational performance target | Real-time performance information |
---|---|---|
The Canada Revenue Agency has put in place a standard to process T2 corporation income tax returns within 60 days. | The target for achieving this standard is set at 90%. | The Canada Revenue Agency is currently processing T2 corporation income tax returns within 45 days. |
Western Economic Diversification Canada has established a standard that states: “WD will issue a claim payment cheque within 15 business days of receiving a complete claim from the client, including all of the required claim information.” | The target for meeting this standard is set at 95%. | Western Economic Diversification Canada is currently issuing claim payment cheques within 10 days of receiving a complete claim. |
Collecting data on implementing service standards, the attainment of operational targets and performance information over time means that managers can monitor service performance. The data can be analyzed to make improvements to an individual service and to better manage services across a service metrics portfolio.
A service metrics portfolio represents all the service metrics a department has in place, or a common set of services. Examining service metrics across a portfolio increases transparency and encourages consistency. It also facilitates the development of coherent approaches to implementing and using metrics across sectors and branches. Finally, examining service metrics as a portfolio helps ensure that all major services and client groups have been addressed.
When integrated with corporate planning and reporting activities, service metrics are a useful tool to support overall organizational management:
As noted above, there are several Government of Canada requirements related to service standards, including those noted in legislation or a Treasury Board policy instrument.
If a department is in the early stages of implementing service standards, it is encouraged to develop a departmental implementation plan to enable compliance with all existing mandatory requirements related to service standards. Additionally, such a plan could be considered as a service improvement initiative or project for inclusion in the department’s service management strategy.
When establishing service standards, consider the following:
National service standards are preferred because they help departments to send a consistent message to all clients. Where possible, avoid sending different messages to each region or client group or encouraging unwanted comparisons between the levels of service offered in each region.
Organizations that strive to continuously improve their performance are likely to meet client expectations more frequently and thereby increase client satisfaction.
After service standards have been in place for a while, departments may decide to raise their service standards. Increases in expectations should be gradual to ensure that employees understand the changes and can contribute to their attainment.
It may be necessary to scan the environment, both internally and externally, to determine possible influences that affect the attainment of service standards. Table 8 identifies three performance results scenarios and possible courses of action.
Scenario 1: results exceed standards | Scenario 2: results are consistent with standards | Scenario 3: results fall short of standards |
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For additional information and tools for this requirement, please consult the Guideline on Service Standards, published separately.
Section 7.8 of the Policy on Service, which came into effect on October 1, 2015, requires that mandatory services be adopted where available. This requirement complements section 5.1 of the Common Services Policy, which states that departments must use mandatory services to meet their requirements.
Mandatory services are services provided by a Government of Canada department that other departments must use to meet their business needs. Mandatory enterprise services derive their mandatory status through either legislation or Treasury Board policy.
Mandatory services generally address a common Government of Canada business need and are intended to reduce siloed operations, duplication and inefficiency. Examples of mandatory services include acquisition and compensation services (Public Services and Procurement Canada) and legal services (Justice Canada).
A list of mandatory services can be found in Appendix E of the Common Services Policy.
Section 7.9 of the Policy on Service, which came into effect on October 1, 2016, requires that the proportion of external and internal enterprise e-services be increased annually, according to a department’s service management strategy.
The objective of this requirement is to ensure that the number of services available to clients that can be completed online is increased annually and that a department’s plans to do so are captured within their service management strategy.
As noted previously (see section 1.8.1 ), e-enabled services are defined as services that can be completed online from end-to-end, except in circumstances where it is prohibited by law or security considerations or not practically feasible.
Jurisdictions within Canada and around the world are increasingly focusing their efforts on delivering a better online service experience that clients want to use. Canadians and businesses have been clear that they expect e-enabled government services that are accessible, fast, personalized, respect privacy, and secure. E-services are not just convenient for clients; they are significantly more cost-effective than services delivered through in-person or telephone channels.
Keeping track of the proportion of departmental external and internal enterprise e-enabled services over time is an important element in meeting objectives related to the availability of online services. The following calculation method can help determine the proportion of e-services:
Number of e-enabled external and internal enterprise services
(divided by)
Total number of external and internal enterprise services
The calculation is to be based on information contained in the department’s service inventory, and any services excluded from the calculation should be documented with a rationale.
When determining the proportion of e-enabled services, consider the following:
Figure 3 below provides a measurement framework for determining the proportion of e-services.
In addition to calculating the proportion of e-services, departments may also wish to calculate the average percentage of each service that can be completed online, excluding services and intermediate activities that are not suitable to be completed via this channel. This calculation is important, given that it provides information on the extent of progress in making services available to be completed from end to end, taking into account any exclusion. The following calculation method can help determine the average percentage of each service that can be completed online:
Sum of % of each external and internal enterprise service that can be completed online
(divided by)
Total number of external and internal enterprise services
Figure 3: Measurement framework for determining the proportion of e-services
Important points to consider regarding this requirement include:
Section 7.10 of the Policy on Service , which takes effect on October 1, 2017, requires that priority-authenticated external services are e-enabled, with real-time application status available to clients.
A priority-authenticated service is a priority service that relies on a credential assurance to carry out a transaction securely (as per the Standard on Identity and Credential Assurance).
E-enabling priority-authenticated services is important because clients should be able to complete the department’s priority-authenticated external services online from end-to-end, and have access to real-time information on the state of their request or application. When accessing government services, clients need the most up-to-date information that will allow them to make behavioural choices about their interactions.
Important points to consider regarding this requirement include:
Review question | Assessment |
---|---|
1. Is further work required to make this service fully e-enabled, end-to-end? | Yes/No |
2. Are there any specific client satisfaction issues related to this service? If so, identify potential service improvement initiatives. | Yes/No |
3. Are there any opportunities to improve the general service experience of clients for this service? If so, identify potential service improvement initiatives. | Yes/No |
4. Are there opportunities to improve the overall delivery efficiency of this service? If so, identify potential service improvement initiatives. | Yes/No |
a) Can the business process for this service be streamlined? | Yes/No |
b) Are there opportunities to align or integrate this service with other services (within the program, department, government or other jurisdictions) for better client service and/or greater efficiency? | Yes/No |
5. If yes to any of the above questions, what service redesign or optimization activities are recommended? Identify the proposed service improvement initiatives and consider the following questions for each. | |
6. What are the overall benefits of pursuing these initiatives? | List the benefits. |
7. What are the costs associated with these initiatives? | List the costs. |
8. What are the risks of proceeding or not proceeding with these initiatives? | List the risks. |
9. Are there opportunities to collaborate with external partners in pursuing the redesign or optimization initiatives? | List any opportunities for collaboration. |
10. Should this priority service be recommended for service redesign or optimization? | Yes/No |
The following sample table of contents contains the key elements of a service management strategy. Departments can adjust this to meet their specific context and reporting needs:
Appendix: integrated service improvement work plan
The table below provides a sample template for an integrated service improvement work plan that can be used by departments to support the tracking progress of service improvement initiatives contained in their service management strategy.
Name of initiative | Objectives | Actions | Area responsible for the initiative | Expected completion date | Status |
---|---|---|---|---|---|
Legend
| |||||
For example, service standards | Ensure that service delivery performance meets the needs of clients | Develop a plan | Division X1 | July X, 20XX | Completed |
Consult clients, staff and other partners | Division X1 | July X, 20XX | Completed | ||
Establish service standards for all priority services | Division X1 | July X, 20XX | Completed | ||
Test established service standards | Division X1 | August X, 20XX | Risk of delay | ||
Post service standards for priority services on Canada.ca | Division X2 | September X, 20XX | Risk of delay | ||
For example, e-services |
| Establish departmental working group | Division Y1 | June X, 20XX | Completed |
Assess current state | Division Y1 | June X, 20XX | On target | ||
Identify services for transformation purposes | Division Y1 | June X, 20XX | Risk of delay | ||
Seek senior management approval | Division Y1 | July X, 20XX | Risk of delay | ||
Increase the proportion of e-services available to clients | Division Y1 | August X, 20XX | Delayed | ||
For example, user engagement | Promote awareness and uptake of e-services | Develop a plan | Division Z1 | August X, 20XX | Risk of delay |
Launch a client-centric awareness campaign | Division Z1 | August X, 20XX | Delayed | ||
Explain how to access and use the e-services | Division Z1 | September X, 20XX | Discontinued | ||
Establish a measurement plan to assess areas of success and weakness | Division Z2 | September X, 20XX | Delayed |
Canadians deserve a public service that is continuously striving towards service management excellence. Service management, and its related activities, can ultimately shape how the public views its government. The design and delivery of services must be convenient, accessible, reliable, timely and secure in order to satisfy their rising expectations. Meeting these expectations for external services requires that supporting internal services also be more efficient and effective. In this regard, this Guideline is intended for the use of departments of the Government of Canada in their journeys towards implementing strong service management practices.
As the world of service management will continue to evolve, so will the contents in this guideline.
We welcome departments to provide any relevant feedback on this Guideline and to contact us via Treasury Board of Canada Secretariat Public Enquiries should they have any further questions or issues.
A graphical representation of the context within which Government of Canada services operate that includes the key terms from the definition of service. The image shows that Departmental programs have the mandate to achieve an outcome to meet the needs of a target group. Services deliver a final output to recipients, or clients, to support the achievement of the outcome. Services are composed of activities (processes) that lead to the final output.
Figure 2 lays out the overall process (inside circle) and presents the specific steps included under each phase (outside circle). While 5 phases and 15 steps are presented in a sequential order, some can be undertaken concurrently. The centre of the circle is labelled “Service Standards”. The centre circle is surrounded by 5 phases: Phase 1: Establish service standard priorities; Phase 2: Plan and develop service standards; Phase 3: Implement service standards; Phase 4: Measure performance against service standards, Phase 5: Act on the results. The outer circle consists of 15 steps: 1: Take stock of existing initiative; 2: Connect to organizational priorities; 3: Develop service standards; 4: Assess monitoring capacity; 5: validate proposed service standards; 6: Determine the performance methodology and measurement framework; 7: Establish an implementation plan; 8: Determine if new systems or processes are necessary; 9: Train staff and service delivery partners; 10: Communication service standards; 11: Measure performance; 12: Evaluate findings and report to senior management; 13: Publish results for clients; 14: Determine course of action; 15: Implement required changes.
Figure 3: Measurement framework for determining the proportion of e-services. The figure shows a flow chart of key client interaction points. The figure begins with the search for information and services. Step one is account registration and enrolment. For example, a client would register for a personalized account/ enrol. Step two is authentication. For example, a client would establish credentials and authenticate using the Credential Broker Service or GCKey. Step 3 is application. For example, a client would complete and send an application, receive confirmation of application receipt/status or make a payment. Step four is decision. For example, the client would be notified of a decision or status. Step five is issuance (final output). For example, the client would receive a payment, authorization, permit, licence, certification and consultation. Step six is issue resolution and feedback.