ARCHIVED - Literature Review on Service Standards

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3.0 How To Develop A Service Standard

As discussed in the TBS How to Guide^[28], the first step in creating a service standard is to take stock of the organization's internal workings and capabilities. It is then important to understand and use input from the clients and the employees. The client/employee views on standards can then be matched to the resources available and a plan set to achieve them. The next steps are to implement the changes and monitor progress. The final step is to close the loop by evaluating and restructuring the program as necessary.

The TBS How to Guide^[29] details the different aspects and considerations when developing service standards. The step by step guide begins by describing the findings from the Citizens First 1998 survey. This parallels the need for consulting with the client base to determine the areas which clients feel are priorities for service improvement.

Service standard principles to consider when developing service standards include:

• widespread and equitable,
• applicable throughout an organization,
• applied in equitably for each client in each region,
• meaningful to the individual, not only in dealing with issues that concern them but also by using easily understood language,
• based on consultation,
• attainable yet challenging, this is determined through analysis of the business line and its capabilities,
• affordable,
• owned by managers and employees,
• published,
• measured and reported,
• reviewed and updated.

The last two relate more to the importance of maintaining service standards as opposed to service standard development. This aspect would be included in any service commitment or charter and is integral in creating a successful service standard program.

The How-to Guide outlines the six steps to take in developing service standards. These provide the outline for the following discussion.

1. Know the business. This step involves analysing the client base, the services provided, and the business line partners. As mentioned in defining a service standard, a client base can be considered internal or external.

Figure 2 demonstrates the three basic models for client interaction. Scenario A is the most common and simplest model to deal with. This dynamic is the same as with Figure 1. The client initiates an encounter with the service deliverer or vice versa. Service standards are applicable at the point of contact. Standards are measured at that point, either internally or externally and adjusted as needed. This would be the case for services such as information on government programs.

Figure 2. Models of client/service deliverer interaction
 

In Scenario B, again the client contacts the service provider and seeks approval or a decision. However; the front line service deliverer acts more as a receptionist or gatekeeper than a true service provider and must rely on other service providers to enable the service to be delivered to the client. The same mechanisms apply as in Scenario A, but now the frontline service deliverer is in a client-provider relationship with the authoriser. This interaction now becomes integral in determining the client's reaction. If, for example, the process (authoriser) is not timely, the client will not be satisfied with service delivery. If the service deliverer is frustrated by the process (authoriser), this frustration may filter through to the client.

This scenario demonstrates the importance of establishing some form of internal service standard. It now becomes necessary to identify the limitations to service in internal processes and treat them as interactions in need of service standards. Thus, there can be service standards surrounding the client-service deliverer experience, as well as ones relating to the timeliness and outcome of the process or decision.

Scenario C demonstrates the case with regulators/inspection/enforcement (RIE). In this case, there tends to be regulations and legislation defining responsibilities of both the client and the RIE. Service standards must be carefully tailored to ensure a productive relationship between the two parties, and reflect the client's expectations of the RIE, as well as the RIE's expectations of the client.

2. Consultations. Part of the standard setting process is consultation with clients and staff. The consultations help determine what features are most important to the service, what the client satisfaction levels are (for benchmarking and improvement), what changes the clients need or want, what are the client expectations, and help to define what are the service provider's responsibilities. This step also includes outlining reciprocal roles and responsibilities. The Australian charter specifically mentions client responsibilities^[30]. Client-centred public service does not place sole responsibility for reform on the public service; it relies on input through consultations with the client. Service standard practices are determined through dialogue with the client. The goal is to achieve a level of service acceptable to the client, but within the means of the service provider. These consultations may define certain responsibilities of the client as well as the provider. For example, Industry Canada, after consulting with stakeholders determined that to meet the level of service stakeholders expected with respect to merger notification, stakeholders would need to fund the process through a fee. The new fee structure was implemented in 1998. A follow up survey was conducted and found that 92% of stakeholders surveyed agreed that service standards were being met^[31].

3. Client-sensitive service standards. The standards are set based on the client's needs and expressed in a way that is easy for them to understand. Pilot projects may be useful for they allow cost projections and reporting, as well the ability to fine tune the process before a large scale roll-out is initiated.

4. Train staff. Staff should be sensitive to the needs of the clients and equipped to deal with any demands the client may have. ACA touches on some aspects that should be considered to help realize that they are an integral part of the process:^[32]:

• Empower the employees to do what ever is needed to make the customer (client) happy and reward the employee for doing so.
• Train employees to know whom their customers (clients) are and how to exceed their expectations.
• Be ready to adapt to changing client focus. Client service must be flexible to change, based on the clients' needs and wants.
• Tailor contact information from the client's perspective. Access to services must be simple and clear.

This step also involves training managers and supervisors in their role as leaders and motivators of the improvement program. United States Internal Revenue Service framework expands on the importance of the managerial role by committing to streamlining managerial responsibilities so as to afford them the time to become more involved with the day to day function of their group^[33].

5. Communicate to clients and staff. When publishing service standards, it is important ensure client expectations are managed so that they do not exceed the capabilities of the department. Faye Schmidt points out the importance of managing client expectations. She contends that both the standard and the target need to be communicated. For example, the standard may be to answer the telephone within three rings, but the target may be to do this 8 times out of 10. If the client is only aware of the service standard, and that standard is not realized 100% of the time, the client's perceptions of government services may be adversely effected.^[34]

Systems should be in place to measure performance achieved with respect to individual service standards based on initial benchmarking. Client satisfaction levels should be closely monitored and reported.

6. Implementation and quality management. Part of the process is to measure performance against service benchmarks. It is important here to develop a service improvement plan and to strive for continued on-going service improvement as well as cultivating the client-centred workplace environment.

In the OPS initiation phase, to focus ministries on the need for change and to help determine the proper course for their ministries the participating ministries were required to:^[35]

• Orient and train their teams.
• Evaluate their ministry's performance against OPS quality service cornerstones using the available assessment tools.
• Establish a baseline and identify strengths, weaknesses, and gaps.
• Develop a quality service plan with performance indicators.
• Participate in the independent evaluation of the pilots.

Throughout the process of implementing the service standards, one must keep in mind the context as set by the service standard principles. The context set through these factors must be maintained throughout the implementation phase. These principles help set the tone of the implementation phase and change the overall workplace culture from service-centred to client-centred. They create the context through which the service standard initiative maintains its overall cohesiveness.

The steps in the USAID process for establishing service standards are as follows:^[36]

Step 1:      Now Your Mission
The mission statement describes your operating unit's role in providing services to the ultimate customer.

Step 2:      Focus On The Vision
The vision is shared by top management, involves customers, employees and partners to achieve the best sustainable development.

Step 3:      List Your Key Customers And Partners
Once you have identified your operating unit's customers and partners, this will help you clarify the focus for your customer standards.

Step 4:      Define Key Services And Link Customers/ Partners And Employees
Identify the key services and products your operating unit provides.

Step 5:      Continue To Listen To Your Customers
USAID's continued commitment to listen to customers is extremely important.

Step 6:      Define What System/Process Changes Are Necessary To Satisfy Customers
Review the final analysis of what your customers expect.

Step 7:      Develop Clear, Simple, Measurable Customer Standards
Continue to focus on areas that are most important to your customers.

Step 8:      Give Feedback To Your Customers
Find ways to let your customers know what your standards are.

Step 9:      Monitor And Measure How You Are Doing
Track your progress.

Step 10:    Benchmark Your Success
Know whether customers are satisfied - determine results.

One notable difference among nations is the emphasis that the United States places on 're-engineering' of operating processes to help bring about dramatic changes in service improvements. No other nation gives as much attention to this feature of service standards. This stems from the 'Balanced Measure' approach to public service improvement. This approach identifies three interrelated factors that require attention to effectively improve customer service and satisfaction: employee satisfaction, business results and client satisfaction. All three factors must be carefully considered in establishing organizational objectives and goals, assessing performance, and ultimately, effecting real service improvements.

A second notable difference is that the United Kingdom, Australia and Canada tend to be more prescriptive with respect to how to improve service. Each provides a 'how-to' guide that outlines the drivers of client satisfaction, and includes an emphasis on issues such as providing widespread and equitable services to clients across the country. The summary of suggestions for establishing charter standards in the box below provides an example of the kind of guidance provided by the Service First Initiative.^[37]

Summary of Suggestions for Establishing Charter Standards: United Kingdom Service First Program

Charter standards set out clearly the service that users can expect to receive. Good standards are vital for an effective charter, and should be expressed in a way that is meaningful to all users. They usually focus on different issues from the strategic performance targets set by ministers for their departments and agencies. Standards should correspond to minimum service that central government departments and executive agencies should apply in their dealings with the public. The standards should be based on the views of users and potential users - they should be contacted directly. Find out what is important to them. Others (especially front-line staff) should be involved to tap their ideas for increasing the efficiency and quality of services. Complaints and comments will help identify those issues that users think are important and any weaknesses. Senior managers should also be involved to ensure and show top-level commitment to the process. Charter standards should cover the main services provided. They should focus as much on the quality of the service, and the overall experience for the user as on the more easily assessable measures of activity and process. Standards should relate to: the service provided (for example issuing correctly documented passports, or payment of the correct rate of benefit on the due date); the way in which you deliver the service (for example the speed with which you answer letters or phone calls); and the quality of service provided. Charter standards should, wherever possible, address all users. Try not to write standards in such a way that they address only some (even if the majority) of users. Research shows that many people do not understand percentages. So wherever possible avoid their use. Think carefully about the wording of the charter. It should make clear whether users have a right to each standard that is enforceable through the courts or other means (for example a complaints procedure or independent review), or whether you simply aim to meet them as targets. Enforceable right - a charter standard that applies to all users all of the time they use the service. It must be clear when the standard has not been met, and a remedy must be available. Either the provider must immediately put things right, or it must be possible for the user to enforce a remedy through a dispute resolution process (for example the courts, regulator, an ombudsman, or appeal panel). Target - a level of service which the provider is aiming to provide, but which the user cannot always expect to receive, and for which a remedy is not necessarily available. A target that is likely to be unattainable more than 25% of the time should be changed. You should make clear what happens if targets are not met. Standards should be challenging, but realistic. They should be drawn up, where appropriate, by comparing them with those developed by comparable organizations in the United Kingdom, and where relevant, overseas. Be careful when developing standards to avoid unintended results, for example to focus staff on easy cases at the expense of difficult ones. You should also be honest about what can be provided. Raising expectations unrealistically leads to frustration, which may in turn provoke rudeness or worse. Standards should be easy to understand and written in plain language. Standards should be measurable. There is no point telling people that they will be seen 'quickly' unless you tell people what this means and then monitor your performance. Procedures should be developed to monitor the organization's performance against its standards. This could be done either as part of normal operating procedures (for example time taken to process claims and error rates) or by surveys of users, or mystery shopping (for example sampling how your service is actually being delivered). To demonstrate the effectiveness of the service in an open and verifiable way, wherever possible an external organization should validate your performance independently against your charter standards. This task could be undertaken by a statutory body or a commercial auditor. Users have a right to know how you are performing against your standards. The results of monitoring should be published in such a way that it gets to as many users as possible, and is easily understood by them. Results of monitoring should be regularly reviewed by senior staff and action to be put in hand if standards are not met. Consider whether standards need to be updated in order to remain relevant and challenging.

Some international examples of best practices in the development of service standards is presented in Annex B.

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