Evaluation of Customer Charters

Roinn an TaoisighDepartment of the Taoiseach

Evaluation ofCustomer Charters

Evaluation of Customer Charters

Final Report

June 2007

Designed by: Boyd Freeman Design

© 2007 Government of Ireland

www.boydfreeman.ie

Executive Summary and Key Recommendations ...................................7

Chapter 1: Background and Requirements .......................................... 211.1 TheCustomerCharterInitiative........................................................................................................................ 22

1.2 EvaluationRequirements.................................................................................................................................... 23

1.3 ApproachandMethod........................................................................................................................................ 23

1.4 WorkProgramme.................................................................................................................................................. 26

1.5 Reporting................................................................................................................................................................. 28

Chapter 2: The Customer Charter Process ............................................ 292.1 Introduction............................................................................................................................................................ 30

2.2 PublicServiceModernisationandtheQCSInitiative............................................................................... 30

2.3 TheCustomerCharterGuidelines................................................................................................................... 36

Chapter 3: The Published Charters ......................................................... 433.1 Introduction............................................................................................................................................................. 44

3.2 DoallDepartments/OfficeshaveChartersandwhenweretheypublished?.................................. 44

3.3 “Visibility”ofCustomerChartersonWebsites............................................................................................ 46

3.4 StructureandContentofPublishedCharters............................................................................................. 48

3.5 WhattheChartersTypicallyContain(underMainHeadings)................................................................ 52

3.6 EvaluationandReporting................................................................................................................................... 53

Chapter 4: The Customer Charter Process in Practice ........................ 614.1 Introduction............................................................................................................................................................. 62

4.2 OriginalPreparationProcess.............................................................................................................................. 62

4.3 NatureofCommitmentAchieved.................................................................................................................... 66

4.4 EvaluationProcesses............................................................................................................................................. 69

4.5 Targets/IndicatorsinPractice............................................................................................................................ 72

4.6 ReportingonCharters.......................................................................................................................................... 74

4.7 LinkstootherProcesses...................................................................................................................................... 75

4.8 ViewsonChallengesandFutureDevelopments........................................................................................ 76

Chapter 5: Impact of Customer Charters .............................................. 795.1 Introduction............................................................................................................................................................ 80

5.2 ViewsofQCSOfficers............................................................................................................................................ 80

5.3 ResultsofOverallCustomerSurveys.............................................................................................................. 82

5.4 ReportingonChartersbyDepartmentsandOffices................................................................................ 84

5.5 WiderConsultations.............................................................................................................................................. 92

Table of Contents

Chapter 6: Other Experience with Customer Charters ....................... 956.1 Introduction............................................................................................................................................................ 96

6.2 PublicSectorExperienceinOtherEnglish-speakingCountries........................................................... 96

6.3 Citizens/CustomerChartersintheEU..........................................................................................................102

6.4 PrivateandCommercialSectorPractice......................................................................................................104

Chapter 7: Key Issues, Conclusions and Recommendations ........... 1077.1 Introduction...........................................................................................................................................................108

7.2 SummaryofKeyFindings.................................................................................................................................109

7.3 FutureDirection....................................................................................................................................................115

7.4 PrincipalConclusions.........................................................................................................................................121

7.5 PrincipalRecommendations............................................................................................................................124

Annexes ..................................................................................................... 127Annex1:DepartmentsandOfficesintheCustomerCharterprocess........................................................128

Annex2:ListofOtherConsultees............................................................................................................................129

Annex3:CaseStudies..................................................................................................................................................130

Annex4:NumberofValidComplaintsReceivedbyTheOfficeofTheOmbudsman1999-2005......157

Annex5:CustomerActionPlans–DatesandTitles...........................................................................................158

Annex6:SelectedPublicSectorOrganisations–CustomersandEmployees.........................................159

List of Figures

Figure2.1: PrinciplesOfQualityCustomerService................................................................................. 32

Figure2.2: SomeMethodsForInformingCustomersAboutCharters............................................. 41

Figure3.1: CustomerCharterExistenceAndYearOfPublication–Departments....................... 45

Figure3.2: CustomerChartersExistenceAndYearOfPublication–Offices.................................. 46

Figure3.3: CustomerCharter“Visibility”OnWebsites–Departments............................................. 47

Figure3.4: CustomerCharter“Visibility”OnWebsites–Offices......................................................... 48

Figure3.5: SummaryOfContentOfCharters–Departments............................................................ 50

Figure3.6: SummaryOfContentOfCharters–Offices......................................................................... 51

Figure3.7: CustomerCharterQuantifiedTargets–Departments..................................................... 54

Figure3.8: CustomerCharterQuantifiedTargets–Offices.................................................................. 55

Figure3.9: CustomerCharterTargetResponseTimes:Telephone–Departments...................... 56

Figure3.10: CustomerChartersTargetResponseTimes:Telephone–Offices................................. 57

Figure3.11: CustomerCharterTargetResponseTimes:Correspondence–Departments......... 58

Figure3.12: CustomerCharterTargetResponseTimes:Correspondence–Offices...................... 59

Figure7.1: AVirtuousQCSCircle..................................................................................................................120

List of Tables

Table5.1: GeneralPublicViewsOnTheIrishCivilService................................................................... 83

Table5.2: SelectedEvidenceOfCustomerServiceQuality–Trends............................................... 85

Table5.3: Departments’ProgressAgainstCharterCommitments–TelephoneResponse.... 86

Table5.4: Offices’ProgressAgainstCharterCommitments–TelephoneResponse.................. 88

Table5.5: Departments’ProgressAgainstCharterCommitments–Correspondence............. 89

Table5.6: Offices’ProgressAgainstCharterCommitments–Correspondence.......................... 90

Table5.7: SelectedEvidenceOfProgressOnComplaintsHandling............................................... 91

Table6.1: ReportedPrevalenceOfCitizensChartersInEUMemberStates...............................103

List of Abbreviations used

CAP CustomerActionPlan

CCC CustomsConsultativeCommittee

CMOD CentreforManagementandOrganisationDevelopment(DepartmentofFinance)

CPMR CommitteeforPublicManagementResearch

CSPVG CivilServicePerformanceVerificationGroup

CSSO ChiefStateSolicitor’sOffice

DBG DeliveringBetterGovernment

DPP DirectorofPublicProsecutions

IBEC IrishBusinessandEmployersConfederation

IPA InstituteofPublicAdministration

ISME IrishSmallandMediumEnterprises

MAC ManagementAdvisoryCommittee

NESF NationalEconomicandSocialForum

OPW OfficeofPublicWorks

OSI OrdnanceSurveyofIreland

PAS PublicAppointmentsService

PMDS PerformanceManagementandDevelopmentSystem

PRA PropertyRegistrationAuthority*

PSM PublicServiceModernisation

PSMA PublicServiceManagementAct

QCS QualityCustomerService

RAB ResourceAllocationBudget

ROS RevenueOnlineService

SFA SmallFirmsAssociation

SMI StrategicManagementInitiative

SMS ShortMessageService

TALC TaxAdministrationLiaisonCommittee

ToR TermsofReference

VoIP VoiceoverInternetProtocol

* Formerly Land Registry/Registrar of Deeds

Executive Summary and Key

Recommendations


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1. IntroductionCustomerChartersareshort,readablestatementsofthecommitmentsofGovernmentDepartmentsandOfficesregardingtheservicethatcustomerscanexpectintheirdealingswiththem.TheCharterswerefirstintroducedacrosstheCivilServiceinIrelandin2003aspartoftheongoingwiderQualityCustomerService(QCS)Initiative,itselfinitiatedin1997.ThepurposeofintroducingtheCharterswastogiveadditionalimpetustotheQCSInitiativeasawhole,andtorespondtospecificproposalsinthisregardthathadbeenmadeinearlierevaluations.

2. Objectives and Work ProgrammeThreeyearsintotheCustomerCharterprocess,itwasdecidedthatanevaluationofexperiencetodateshouldbeundertaken.Thisreportpresentsthefindingsofthatevaluation.Theevaluationwasaskedtoaddresssixkeyissuesasfollows:

analyse the Customer Charters that have been published by Government Departments and Offices;

examine the Customer Charter Guidelines as a tool in ensuring consistency and robustness across Departments and Offices;

review how the Customer Charter Initiative has been implemented in Departments and Offices, including the robustness of reporting mechanisms, and whether the commitments made are being met;

evaluate to what extent the Charter Initiative is fulfilling its objectives and in particular, identify the benefits (if any) that accrue to the customer and Departments and Offices as a result;

assess the usefulness of any related and relevant developments, in both the private and public sectors, nationally and internationally, that may add value to the Charter process;

in light of the above, make recommendations on areas where the Charters, the Guidelines and the Charter process itself might be improved.

TheEvaluationwascarriedoutduringtheperiodNovember2006toMay2007.Itinvolvedaseriesofresearchsteps.Thisincludedareviewofbackgrounddocumentation,thepublishedCharters,ofotherrelevantdocumentation,andevaluationscarriedoutwithinDepartmentsandOfficesandsummarisedinAnnualReports.Italsoinvolvedconsultationswithall30DepartmentsandOffices,includingcompletionbythemofastandardinformationchecklist.IndividualcasestudieswerealsoundertakenoftheCharterprocessinsixorganisations.Theworkprogrammealsoinvolvedotherconsultationswithhigh-levelkeystakeholders,withtradeunionsandwithotherrepresentativebodies.PresentationsofthedraftfindingswerealsomadetotheQCSResearchGroup,theQCSOfficers’NetworkandtotheImplementationGroupofSecretariesGeneral.Adesk-basedreviewoftheexperienceofChartersinothercountriesandintheIrishprivatesectorwasalsoundertaken.

ReflectingthenatureoftheCharterinitiative,thefocusoftheevaluationwasontheexternalCustomerCharterswithinthe30centralCivilServiceDepartmentsandOffices.ItdoesnotconstituteanevaluationofChartersinthewiderPublicService,oftheinternalCustomerCharterprocess,orofQCSasawhole.

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3. Principal Findings3.1 OverviewThissectionpresentsasummaryofthekeyfindingsoftheresearch.TheyarepresentedhereintermsofthesixissuesintheTermsofReference(seeSection2above).

3.2 Analysis of Published Customer ChartersChapter2ofthereportpresentsananalysisoftheChartersaspublished,bothhardcopyandonwebsites.Keypositivefindingsemergingare:

atthetimethisevaluationcommenced(November2006)all30organisationshadpublishedaCustomerCharter.Inaverysmallnumberofcases,aslightlydifferenttitlewasused.So,asagainstthisbasicbenchmark,theprocesshasbeensuccessful;

mostChartershavebroadlyfollowedthepublishedGuidelinesforCharterpreparation,bothintermsofpreparatoryprocessandofbroadstructure;

itisevidentfromtheChartersandfromassociatedbackgrounddocumentationthatanimpressivelevelofworktypicallywentintothepreparatoryprocessinDepartmentsandOffices,andthatorganisationsenteredintothespiritaswellastheletteroftheprocess.

Intermsofareaswithpotentialforimprovement,anumberoffindingsare:

giventhediverserangeoforganisationsandsituationsinvolved,Charterstendtobesomewhatstandardisedandnotreallyallthatreflectiveof,ortailoredto,thespecificcircumstances,customersandservicesoftheindividualorganisations;

withnotableexceptions,Chartershavenotbeenparticularlygood(eitherinpreparationorpublication)atsegmentingtheorganisations’customerbase,differentiatingthecategoriesofcustomeranddifferentservicesprovidedtothem,i.e.theyaretypicallywritteninasomewhatgenericstyleacrosstheorganisationsasawhole,althoughinmanycasestheorganisationisquiteheterogeneousinternally;

whileChartersgenerallycontainquantifiedservicetargets,thesearegenerallylimitedtolevelsofinteraction–mainlyresponsetimestocommunications.ThereisthusscopeformoreambitioninanynewCharters;

externalaccessibilityandvisibilityofChartersisalsoaweakness,againwithnotableexceptions.Theyaretypicallydisplayedinreceptionsandoffices,andtheyaregenerallyavailableonwebsites.However,inamajorityofcasestheyarenotdirectlyaccessiblefromwebsitehomepages.ThereisalsoingeneralalackofproactivityintermsofmakingthepublicorcustomersawareoftheexistenceofCharters.

3.3 The Customer Charter Guidelines as a Tool in Ensuring Consistency and Robustness

TheGuidelines,publishedin2003,setouttheoverallnature,conceptandcontentofCustomerCharters,andalsoprovidedpracticalillustrationsoftheprocessestobeundertakenintheirpreparationandsubsequentevaluation.

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TheroleoftheGuidelineshasbeenverypositive.Thisisevidencedby:

theChartersaspublishedcloselyreflecttheroleandinfluenceoftheGuidelinesintermsofCharternature,length,structureandcontent;

QCSOfficersintheDepartmentsandOfficesinvolvedaregenerallycomplimentaryasfarastheGuidelinesareconcernedandacknowledgethepositiverolethattheyhaveplayed.

Withthebenefitofhindsight,thereareanumberofissueswithwhichtheGuidelinesmighthavedealtmorefully,andwithwhichfutureGuidelinescansodeal.Theseincludethenecessitytodefinebothdifferentcustomersanddifferentservicesbeingprovidedtothemasclearlyaspossible,andtheneedformoreexplicitcommitmentsonevaluation.

MuchofthedetailintheGuidelinesisarguablyasrelevanttotheCustomerActionPlansasitistotheCharters.ConsolidatedCustomerCharter/ActionPlanGuidelineswouldbeappropriateinthefuture,whilestilldistinguishingbetweenthedifferentroleofeachwithintheoverallQCSinitiative.

AsdescribedunderrecommendationsinSection4below(Section4.1)futureGuidelinescanalsoaddressanumberofweaknessesinthefirstroundofCharters,includingthecustomersegmentationissuedescribedhere,andclearercommitmentsregardingthenatureandextentofevaluationandreportingthatwillbecarriedout.

3.4 Implementation of the Customer Charter Initiative in Practice

Thepictureacrossthe30organisationsisareasonablypositiveone.ItisclearthattheChartershavenotbeen“leftlying”oncepublishedandthattherehasbeenarangeofactivityassociatedwithimplementingthem.Specifically:

quantitativetargetshavebeenestablished(albeitgenerallylimitedtocommunicationresponse-times);

inmostcasesatleastsometargetsarebeingactivelymonitoredandmeasured;

aproportionofthesearealsobeingreportedon,inparticularinAnnualReports;

itwouldappearthatquantitativecommitmentsmadeinChartersareinmostcasesbeingmet;

manyorganisationsalsohavemuchmoreextensivequantitativetargetsintheirCustomerActionPlans,particularlyinCustomerActionPlanspublishedaftertheCharters,andaremonitoringandreportingonthese.

ExamplesarealsoavailableofinstancesofChartersandassociatedfeedbackhavinginfluencedcustomerservicedelivery.Whileinsomewayschangesmademightbemodest(e.g.receptionsremainingopenatlunchtimes)theyarepositivedevelopments.

Therobustnessofreportingisalsomixed.Onthepositiveside,reportingisbeingdoneinAnnualReportsasrequiredinvirtuallyallcases.Inmanycasesthisincludesreportingonquantitativeperformancetargets.However,thisisnotuniversalandreportinginanumberofAnnualReportsisstillofasomewhatminimalnature,describingevaluationthatisbeingcarriedoutratherthanreportingonitsfindings,orreportingresultsinveryqualitativeterms.

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Thecustomersatisfactionsurveyspublishedcentrally–whichshowbroadlypositiveresults–reportontheperformanceoftheCivilServiceasasingleentity.Whilethepositiveresultsarebroadlyreassuring,theyareoflimitedvalueinplanningfutureimprovementstocustomerservicesinspecificorganisations.Moreregular,rigorous,organisation-relatedandprofessionallyvalidatedresearchisdesirable.

3.5 Extent to which the Initiative is Fulfilling its Objectives

TherewereanumberofmotivationsbehindtheintroductionoftheCustomerCharterInitiative,including:

theviewthatthenaturalevolutionandprogressionofQCSovertime,frombroadprinciplestoCustomerActionPlans,calledforarenewedemphasisontargetsandtheirmeasurement;

thedesiretorespondtoEvaluations(PAConsultingandButler)whichhaddrawnattentiontoaseriesofweaknessesandagenerallackof“bite”inQCS;

relatedtotheabove,thedesiretointroducemoremeasurementintotheQCSwhileleavingindividualorganisationsfreetochoosetheirownmetrics;

theviewthatmakingpublishedexternalcommitmentswouldhavepositiveresultsnotonlyforcustomers,butwouldalsohaveapositiveimpactonserviceprovision.

TheimpactoftheChartersinpracticecanbelookedatonanumberoflevels.Firstly,thereislittledoubtthatoverthelongtermtherehasbeenaconsiderablepositiveshiftintheIrishPublicServicetowardsbeingmorecustomer-focusedandoutward-lookinggenerally.Secondly,theexistingbroadly-basedcustomersurveysgenerallyshowverypositivefeedbackregardingtheserviceprovidedbyGovernmentDepartmentsandOfficesforthemajorityofcustomers,andtherewouldappeartohavebeenfurtherimprovementsintheperiodsincetheCharterswereintroduced.Thirdly,theCelticTigerperiodandsubsequentyearshaveseenahugegrowthintheIrishpopulationandeconomy,andhencedemandformanypublicservices.Maintaininghighlevelsofcustomersatisfactioninthesecircumstancesisaconsiderableachievement.

ManyofthetrendscitedaboveofcourserelatetotheQCSasawhole,andmaynotnecessarilyconstitutespecificaddedvalueoftheCustomerCharters.However,itcanbesaidthat:

asnotedabove,servicestandardshavecontinuedtorisesincetheCharterswereintroduced;

customerperceptionshaveimprovedinanumberoftheareasspecificallyhighlightedintheCharters,e.g.thehandlingofcomplaints;

theChartersthemselvesintroducedoremphasisedanumberofnewdimensionsintoQCSwhichmighthavebeenpreviouslylacking,e.g.customerconsultation,quantitativetargetsandtheirmeasurement,andcomplaintsprocedures;

thereisevidentimprovementinthequalityanddetailofCustomerActionPlanspublishedsincetheCharterswereintroduced.

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Twoothermoregeneralpointscanbemadeinthiscontext.Firstly,theexperienceindicatesthattheCustomerCharters,oreventhewiderQCSinitiative,cannotworkaloneorintheabsenceofappropriatepre-conditions.Theseenablersincludeleadership,strongpartnership,awell-disposedcorporateculturewithintheorganisation,clarityaboutcustomersandservices,networkingandsharingofgoodpractice(e.g.throughtheQCSOfficers’Network),andthenecessaryinternalsystemstomaintainhighqualitycustomerservices,e.g.highqualityICT-basedservicesforcustomersclearlyhavehighqualityICTsystemsasaprerequisite.

Secondly,whilethe30centralCivilServiceDepartmentsandOfficesincludeanumberofmajorserviceareas–Revenue,SocialWelfareandAgriculture–thesearestillarguablysomeofthelesscomplexareasofIrishpublicserviceprovision.Theyessentiallyinvolvetransactionswithcustomers,whichareboundbyrules,eligibilitycriteria,etc.andarefocusedmainlyonreceiptorexpenditureofmonies.ManyofthemorecomplexandproblematicareasoftheIrishPublicServicesuchashealthcare,primaryandsecondaryeducation,policing,transport,trainingandlifelonglearning,areoutsidethedirectremitoftheCharterInitiative.Sothereforeitsabilitytoimpactonthesecanatbestbeonlyindirectanddemonstrativeasmatterscurrentlystand.Wereturntothisissueinourrecommendations.

3.6 Related and Relevant Developments in the Public and Private Sectors

Inrelationtothepublicsectorinternationally,thegeneraldirectionIrelandhastakenwithregardtoPublicServiceModernisationandQualityCustomerService,includingCharters,isinaccordancewithinternationalthinkingandpractice,especiallyinadministrationsintheso-called“Anglo-Saxon”tradition.1Intermsoflevelsofknowledge,awarenessandoverallphilosophicalcommitment,Irelandisprobablyupwiththebetterplayersandmayhaverelativelylittletolearnatthelevelofoverallpolicyororientation.

AreaswherethereislikelytobescopeforlearningisinrelationtomechanismsforembeddingandimplementingqualityQCS,andofimplementinginpracticethegoodprinciplesthatarealreadyaccepted.InternationalexampleshereincludetheUKCharterMark,whichisaninternalvoluntaryquality-standardsystemfortheUKpublicserviceandhasitsoriginsintheearlierCharters.OthercountriesdemonstratinggoodpracticesincludeAustraliaandCanada.InCanada,oneoftherecentprincipalinitiativesforpromotingmorecustomer-orientedserviceisthe“CitizensFirst”surveys.Thesearelargenation-widesurveysconductedeveryfewyearswhichprovidedetailedanalysesofattitudestowardspublicservicesacrossthecountry.Theresultscanbebrokendownbyregion,bytypeofservice,etc.Individualparticipatingorganisationscanalsoobtainresultsrelatedtotheirownperformance,andbenchmarktheseagainstnationalperformances.Thefirstsurveywasundertakenin199�anditwasrepeatedin2003,2004and2005.Thenextone(CitizensFirst5)willrelateto2007.

Akeyelementoftheinitial199�surveywasidentificationofthespecificcomponentfactorswhichdriveoverallcitizensatisfactionlevels.Thiswasdoneonthehypothesisthat,tobothunderstandandimproveoverallsatisfactionlevels,itisimportanttoknowwhatdrivesthese.Thatsurvey

1 C.Pollitt,InternationalexperiencesofPublicManagementReform:LessonsWhichweCanLearn?PresentationtotheDepartmentoftheTaoiseach,Dublin,19January2005.


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identifiedfivesuchdrivers,andthesehaveremainedrelativelyconsistentthroughoutsubsequentsurveys.Thesekeydriversare:timeliness;knowledgeandcompetenceofstaff;fairness;courtesyandcomfort;andoutcome.

Forothercountriesdevelopingqualitycustomerserviceswithaviewtoincreasingcitizensatisfaction,thekeyinsighthereisthatitisnecessarytounderstandwhatdrivessatisfactioninthefirstplacebeforeservicescanrespondfullytoit.ThereisotherwisethepitfallthatthedrivetowardsQCScanstillinvolveaninbuiltpresumptionthattheserviceprovidersknowwhatthecitizenwants.Otherinterestedcountries,includingtheUKandNewZealand,arecurrentlylookingtothisaspectoftheCanadianmodel.2

Inrelationtotheprivatesector,thecontextisofcourseverydifferent.Theprivatesector,exceptinexceptionalcases,isoperatinginacompetitivemarketinwhichcustomershaveachoicebothaboutwhethertheypurchaseservicesatall,andiftheydofromwhichsuppliertheypurchasethem.ThiscontrastswiththePublicServicewherethereisfrequentlynochoiceaboutusingtheservice(e.g.paymentoftax)andevenifthereis,thereisgenerallynochoiceaboutwhoprovidesit.ChartersandQCS-typeprocessesgenerallyarethereforemoreimportantinthenon-commercialpublicsectorsinceitlackstheimmediatecorrectivemechanismthatthemarketprovideswherebycustomerscan“taketheirbusinesselsewhere”.

Anotherconsiderationintheprivatesectoristheincreasingprevalenceofexternallegalprovisionswhichgovernservicesandcustomerservicestandards,includinginIrelandwherenewcustomerservicelegislationisbeingenactedinthecontextofanewNationalConsumerAgency.Togetherwithexistinglegislationthisprovidesmanycustomerswithadegreeofsanctionwhichmaybeabsentinthecaseofpublicservices.

Existenceofformalwritten“CustomerCharters”andsimilarstatementsofcommitmentsintheIrishprivatesectorareprimarilythepreserveofrelativelylargecompanies.Someofthechallengesandpracticesusedtokeepthese“alive”withintheseorganisationscanthereforebequitesimilartothosefacedinthePublicService,andmanyoftheinitiativesusedinternallyinthisregardarepotentiallytransferable,e.g.internalcompetitions,useofadegreeofinternalrivalrytostimulatebetterpractice,aswellasawardsforspecialefforts.

Alsoimportantintheprivatesectoraresomeoftheassociatedinitiativeswhichhelpimprovecustomerserviceingeneral,includinglongeropeninghourstoconveniencethosewhospendlongperiodsworkingandcommuting,andincreasedlevelsofinternetaccessibilityacrossawholerangeofservicessuchasfinancialservices,onlineshoppingandtravel.Inthepublicsectorthispointstothepotentialofthee-Governmentagendatobothreducecostsandimproveservices.

2 ForfurtherinformationseeChapter6(Section6.2.2,Box3),orwww.iccs-isac.org.


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4 Principal Conclusions4.1 Conclusions – The Customer Charter Guidelines

theCustomerCharterGuidelinesneedtobeupdatedandconsolidatedwiththeearlierGuidelinesonPreparationofCustomerActionPlans,

thegeneralrole,natureandtoneofChartersshouldstaylargelyasenvisagedintheGuidelines,i.e.theyshouldcontinuetobe“ashort,easytoread,accessibledocumentwhichactsasapubliccommitmenttothecustomeronthelevelofservicess/hecanexpecttoreceivewhendealingwithaparticularDepartmentorOffice”.Ineffect,infuturetheyshouldbeanexternally-orientedExecutiveSummaryofthecounterpartCustomerActionPlan;

reflectingtheviewthattheChartersretaintheircurrentniche,proposedadditionstoChartertextshouldbequitelimited;

inouropinion,however,thereisagoodcaseforthreespecificadditions:

aclearerdefinitionattheoutsetofthedifferent external customer groupsandtheservicesprovidedtothem;

relatedtothis,greateremphasisontailoring Charters,bothgenerallyandonmultipleCharters(iftheseareappropriate);

inclusioninallChartersofexplicitcommitmentsthatCharter(andwiderQCS)commitments will be evaluatedandthatthiswillberegular,rigorous,organisation-relatedandreportedon;

revisedGuidelinesshouldnowreflecttheaboverequirementsandshouldre-emphasisetheroleofcustomerconsultationandfeedback,includingcomplaintsandappealsprocedures;

Guidelinesshouldemphasisetheimportancenot,justofthecustomerexperiencenarrowlydefined,butalsooftherightservicesdeliveredthroughtherightdeliverychannels.

4.2 Conclusions – ConsultationsWithinthenormalconstraintsofpolicyandresourcesitisimportantthatserviceprovision,includingthemeansthroughwhichservicesareprovided,reflectsasfaraspossiblecustomerpreferencesratherthanbeingexclusivelypre-definedbythesupplyingagency.ThisgoestotheheartofQCS.

InthecontextoftheCharters,practicalimplicationsofthisare:

analysisneedstodifferentiatebetterbetweenthedifferenttargetaudiencesandshouldbeless“generic”acrossmultiplestakeholders;

thereshouldbewideruseofspecificfeedbackstructuressuchascustomerpanels;

considerationshouldbegiventoanenhancedcentralstandardisedsurveyprocesswhichwouldcombineexplorationofthedriversofQCSandmonitoringofperformanceonasystematicbasisacrossorganisations;

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therangeofstakeholdersconsultedcouldalsobeextendedtovariousrepresentativeandadvocacyorganisationsthatmayhaveagoodknowledgeoftheissuesinvolved,oralsospecificstakeholdergroups.ThismightalsobeextendedtotheprofessionalstaffofpoliticalofficesincludingtheOireachtasandconstituencyoffices.

4.3 Conclusions – CommitmentThereareanumberofkeydimensionstothiscriticalissue.

In relation to targets,thereisnowaneed:

torecognisethattheagreementanduseoftargetsandperformanceindicatorsiscriticaltoassessingprogressmadeinachievingtargets;

tobemoreambitiousinrelationtothenatureofthese,movingbeyondpurelyresponsetimestoothertargetsappropriatetothesubstanceofthequalityofserviceofferedbyindividualorganisations;

targetsneedtobemorereflectiveoftheactivitiesofdifferentDepartmentsandOffices,ratherthanbeinggeneric;

Chartertargetsshouldbeasub-setofsomeofthecriticaltargetssetoutinCustomerActionPlans;

complaints,appealsandredresssystemslinkedtocleartargetsareacentralelementofQCS,andshouldbereflectedinCustomerChartersandCustomerActionPlans.

Maintenance of Levels of Commitment,afterCharterpublication,emergedasacriticalissueintheresearch.Essentially,thebasicsofQCSneedtobeconstantlyinculcatedintopublicservices,andtrainingandawarenessraisingonanongoingbasisiscentraltothis.ThereisextensivegoodpracticeinthisregardavailableinleadingIrishPublicServiceorganisations,intheprivatesector,andinpublicservicesinternationally.However,approachesineachorganisationneedtobetailoredtoitsspecificcircumstances.Theessenceofretainingcommitmentisthattheremustbe:

anongoingandproactiveprogrammeofactivityatorganisationleveltoensurethatrelevantstaffareadequatelysupported,informedandcommittedandthattheyaredeliveringandmonitoringChartercommitments;

clearresponsibilityandresources(includingfinancialandstaff )forthiswithinorganisations,i.e.theQCSOfficerfunctioninparticularbeadequatelystaffedwithsuitablytrainedpersonnel;

increasedemphasisoncommitmentsandtargetsthatarealsomeasured,monitoredandreportedonexternallyandinternally;

theresultsofmeasurementandmonitoringshould,wherepossible,beusedbyDepartmentsandOfficestoidentifymorechallengingcustomerservicecommitmentsinthePlanstheyarerequiredtosubmitinrelationtotheperformanceverificationprocessunderTowards 2016;

theresultsofmeasurementandmonitoringmustalsobeutilised,bothasfeedbackintoimprovingservicedeliveryandalso,wherepossible,targetsandmeasurementofprogressshouldbefedintoannualBusinessPlans(ofbusinessunitsandsections)andintothePMDS(e.g.asobjectivesforindividualroleprofileforms);

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betterhandovermechanisms,wherethereisachangeinthestaffingoftheQCSOfficerrole,needtobeputinplace(toensurecommitmentisnotlostatsuchpoints).

Public Visibility of Chartersisessentialifcommitmentsaretobemeaningful.Inthisregard:

visibilityonwebsitesmustbeincreased;

Charterleafletsmustbemorewidelyavailableinreceptions,attachedtocorrespondence,etc;

thereshouldbeCivilServicewidepublicityontheexistenceofCharters;

keyCharter(andQCS)commitmentsshouldbereflectedintherelevantsectoraldevelopmentstrategiesoforganisations,andviceversa.

4.4 Conclusions – Monitoring and EvaluationConclusionsinrelationtoevaluationare:

thereshouldbeaclearandexplicitcommitmenttoevaluationinthepublishedCharters,sothatinterestedstakeholderscanbeawareofitsexistenceandpotentiallyseekinformationontheresults;

evaluationmustbetailoredtotheorganisationanditsservices,relevanttothenatureofthatservice,andrigorousinthemethodologiesused(e.g.propersampling,non-leadingquestionsinsurveysetc);

itneedstoinvolvesomedegreeofindependenceandprofessionalvalidation;

morein-depthanalysisofreasonsfordissatisfactionwithpublicservicesneedstobeundertaken;

thelevelofwebsitehitsonChartersshouldbemonitoredasarelativelysimplewaytogaugelevelsofawarenessofandreferencetothem.

4.5 Conclusions – Reportinggenerally,arrangementswithinDepartmentsandOfficesformeasuring,monitoringandreportingonprogressneedtobeclearlydefinedwithclearrolesandresponsibilitiesforthestaffinvolved;

thecurrentreportingmechanismviaAnnualReportsshouldberetainedasacorereportingtool,andstrengtheningthereportingthroughadditionalelementsassetoutinthefollowingpoints;

thisreportingmustgobeyondpurelyreportingthatmonitoringandevaluationaretakingplace,topresentingtheresults,aswellasthesourceoftheseresults;

reportingshouldalsohighlightwhereactionhasbeentakenonfootofmonitoringresults;

reportingonChartercommitmentsshouldalsobereflectedinAnnualOutputStatementsandotherreportingprocesseswhicharepresentedtotheOireachtas;

reportingshouldalsoincludedetailsofcomplaintsreceivedoncustomerservicestandardsandwhathasbeendonetoaddresssuchissues.

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4.6 Conclusions – Wider Contextual ChangesTheseareissueswhicharenotexclusivelyCustomerCharter(orQCS)ones,butwherewiderdevelopmentshavethepotentialtohaveamajordirectbenefit,andotherimplications,forChartersandwhattheyrepresent:

theroll-outofICTbasedpublicservicesneedstobespeededup.Whileanumberofkeyserviceshaveemerged3,theseremainnotablefortheirexceptionalnature.ICTbasedserviceswillalsogiverisetoaneedforquitedifferenttypesofservicetargetsandcommitments,e.g.telephoneandcorrespondenceresponsetimeshavelittlerelevancetoon-lineservices;

decisionsonpossiblecomplaintsandredresssystemsforcasesofPublicServicefailurecouldhaveamajorroleingivingtractiontoCustomerCharter(andQCS)commitments;

embeddingwiderreportingandmonitoringprocedures(StrategyStatements,AnnualReports,AnnualBusinessPlans,thePerformanceVerificationprocessandthePMDSprocess)allprovidescopeforexplicitlinkageswithCharterandwiderQCStargets.TheOrganisationalReviewProgrammeannouncedbytheTaoiseachinJune2006alsopresentsanopportunitytoputCharters(andQCSgenerally)atthecentreofthe“healthcheck”processinorganisations;

thenatureandcriteriainthebiennialTaoiseach’sPublicServiceExcellenceAwardsshouldbereviewedwithaviewtogivingamoreexplicitlinktoQCSandCustomerCharterperformance,possiblyasacategoryofawardonitsown.Considerationshouldalsobegiventohavingaseparate“ChampionCharter”award.

5. Principal Recommendations5.1 Core Recommendations/“Next Steps”Thetencorerecommendationshererelatetoactionsthatcanbeundertakenintheshort-term,andthatcanbeinitiatedatcentrallevel.Thesearesetoutbelow.

Re-engineer QCS and place it centre stage:Thisreviewprovidesanopportunitytore-engineertheCustomerCharterprocessandtoplacecustomerservicesatthecentrewithinorganisations.DepartmentsandOfficesshouldusethenextiterationofCustomerChartersandCustomerActionPlanstolookstrategicallyatthewayinwhichtheyapproachcustomerservice.DepartmentsandOfficesshouldensurethatcustomerserviceissuesareadequatelyincorporatedintoallelementsofthestrategicplanningandreportingprocess(StrategyStatements,BusinessPlansandPerformanceManagementandDevelopmentSystems).ThetargetssetoutinCustomerChartersandassociatedCustomerActionPlansshouldfeeddirectlyintothevariousperformanceverificationprocesses,whichcurrentlyobtaininthePublicService.ThisshouldalsoextendtotheproposednewOrganisationalReviewProgrammeswhicharecurrentlybeinginitiatedandwhichcouldusefullyconsidercustomerserviceimprovements,includingthequalityofChartersandCustomerActionPlansandtheresources/emphasisdedicatedtotheissuegenerally;

3 RevenueOnlineService,MotorTaxation,e-Tenders,publicjobs.ie.

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Streamline the guidelines for preparation of Charters and Plans:AsetofrevisedandconsolidatedguidelinescoveringtheCustomerCharterandCustomerActionPlansshouldbepreparedtofacilitateanewjointcyclefortheperiod200�onwards.ThiswillreflectthefactthatCustomerChartersandCustomerActionPlansshouldbeproducedaspartofthesameprocessandshouldbevalidforaperiodof3years.ThesenewguidelinesshouldreflectcurrentandfutureelementsoftheQCSInitiative,includinganynewschemeofcustomerserviceredress/administrativeremedies,aswellasensuringthatthebasic(butimportant)principlesofcustomerservicebehaviourcontinuetobeemphasisedinallGovernmentorganisations.TheserevisedguidelinesmightbecoordinatedbytheDepartmentoftheTaoiseach,throughtheQCSResearchGroupandtheQCSOfficers’Network,forapprovalbytheImplementationGroupofSecretariesGeneral;

Use Charters to set stretch targets in the area of customer service: ThereisaneedforDepartmentsandOfficestoviewCustomerChartersasliveandevolvingratherthanasstaticdocuments.Thisshouldrecognisethefactthatcommitmentsandobjectiveswillchangeovera3-yearperiodandshould,therefore,beacknowledgedas“stretchtargets”thataremerelyminimum standards.Similarly,commitmentsinChartersshouldnotbeseenasthesumoforganisationalambitiontobereportedonannually,butratherasastartingpointforamorestrategicapproachtoqualitycustomerservice.Inaddition,newelementsintheQCSInitiativearelikelytoariseoverthelifetimeoftheCustomerCharterswhichwillneedtobeincorporatedintotheorganisationalcommitments;

Define the QCS Officer role and assign responsibility at an appropriately senior level:Thenatureofoverallandday-to-dayresponsibilityfortheCustomerCharterprocesswithinorganisations(andalsoQCSasawhole)shouldbereviewedacrosstheparticipatingorganisations.Aspartofthis,theQCSOfficerroleshouldbeexaminedandacommonjobdescriptionshouldbedeveloped.Thestatusoftheroleinorganisationaltermsshouldbeconsideredtoensurethatitisatasufficientlyhighlevel.Alsoevaluationfeedbackandreportingprocessesshouldbereviewed,andbetterhandovermechanismswhenresponsibilityfortheroleischanging,shouldbedeveloped;

Consider separately resourcing the QCS function:Theresourcingofthecustomerservicefunctioninorganisationsshouldbeexamined,intermsofboththestaffingandtheprovisionofadequateandspecificbudgetsforservicedevelopment.Specificbudgetsforcustomerserviceimprovements,setoutonthebasisofstatedobjectivesandperformanceindicators,wouldallowforamorefocusedapproachandformeasurableandpubliclyidentifiableprojects;

Accelerate and support the further extending of QCS Charters in the wider Public Service:TheprocessofextendingtheCustomerCharterprocesstothewiderPublicService(e.g.non-commercialstatebodies)throughparentDepartmentsshouldbeaccelerated,withDepartmentswithsectoralresponsibilitiestakingactiveownershipandresponsibilityforthisprocess.Aspartofthis,itisrecommendedthattheorganisationofQCSnetworksandgroupstosupporttheextensionoftheCharterprocessshouldbereviewed;

Use Charters to support ICTs in the re-configuring of customer services around the needs of the customer (both individual and corporate):TheroleofICTsintheprovisionofservicesrequiresmoreattention.ICTs,includingweb-basedservices,canpresentanopportunityfororganisationstoexaminehowtheyareprovidingservicesandhowthismightbedonebetter.

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TheuseofICTscanpresentacost-effectiveandspeedierserviceandshouldbeanintegralpartoftheCustomerCharterandActionPlanprocess,withDepartmentsandOfficesundertakinganin-depthanalysisoftheirexistingservicesandassessingthepotentialofICTforimprovementoftheseservices,orindeedfornewservices;

Consult customers and use feedback proactively:DepartmentsandOfficesshouldaimtodeveloptheuseofcustomerneedsanalysis,consultationandfeedbackmechanismsintheprovisionoftheirservices.Itisimportantthatservicesaredesignedanddeliveredthroughthechannelsmostconvenienttousers.Specifically,DepartmentsandOfficesshouldaimtodevelopuserpanelsandcustomerfocusgroupstodetermine,onanongoingbasis,whereresourcesarebestdirectedandalsotoprovidefeedbackwherenecessary.Surveystargetingspecificissues(e.g.therecentESRIBusinessRegulationSurvey)arealsousefulonacross-Departmentalbasisandshouldbefurtherutilised;

More regular and detailed surveys should be undertaken: Amoreregular(annual)detailedandextensivenationalPublicServiceCustomerSurveyprocessshouldbeputinplace.Thisshouldincludeamuchlargersamplesothatresultscanbebrokendownbyorganisation,servicearea,populationgroups,geographicalarea,etc.anditshouldincludemoredetailedexplorationofthedriversofattitudestopublicservices.Itshouldtrytoestablishthereasonsforparticularfindings,bothpositiveandnegative(inthisregarditwouldbeusefultolookatCanada’s“CitizensFirst”surveys).Thiscouldbedoneviaenlargementoftheexistingcentralsurvey,ajointsurveyacrosstheorganisations,orseparatesurveysundertakenonacommonbasis.ItissuggestedthattheQCSResearchGroupcouldbeaskedtoexaminethepossibilitiesinthisareaandtoreportitsfindings;

Independently monitor compliance:WhileDepartmentsandOfficesremainresponsiblefortestingtheirowncommitmentsthroughsurveys,mysteryshoppersetc,considerationshouldbegiventoasystemofregularindependentspotcheckstobeundertakenonasystemwidebasis.

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Chapter 1: Background and

Requirements


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Chapter 1, Background and Requirements1.1 The Customer Charter Initiative

1.1.1 Quality Customer Service

ImprovedqualityofcustomerserviceisoneofthesixkeythemeswithinIreland’soverallPublicServiceModernisation(PSM)programmeinitiatedinthemid1990s.TheoverallQualityCustomerService(QCS)InitiativeisthereforeacentralpartofongoingPublicServiceModernisation.Itseekstopromotetheimprovementofcustomerfocusandserviceinthe30centralGovernmentDepartmentsandOffices.

Since1997,akeyrequirementoftheInitiativeisthatDepartmentsandOfficesarerequiredtoprepareandpublishaCustomerActionPlan(CAP).ThesePlanssetoutindetailthemethodsthroughwhichtheDepartmentsandOfficeswillprovidethehighestlevelofserviceintheirdealingswithcustomers.Morerecently,theyhaveanimportantroleindescribinghowCustomerChartercommitmentswillbedeliveredandevaluated.

1.1.2 The Customer Charter Initiative

TheCustomerCharterInitiative,whichisthespecificfocusofthisevaluation,waslaunchedin2002.Itinvolvesthe30centralGovernmentDepartmentsandOfficesinpreparingandpublishingCustomerCharters.TheChartersareshortstatementsdescribingthelevelofserviceacustomercanexpect.GuidelinesforpreparationoftheCustomerCharterswerepublishedin2003,andsetouttheprocessinvolvedingreaterdetail.1TheseGuidelinesarereviewedinChapter2.TosupportDepartmentsandOfficesinthisprocess,tailoredtrainingprogrammeswerealsoprovided,inconjunctionwithCMOD,forthoseinvolvedindevelopingtheirorganisation’sCharter.CustomerCharterswerepublishedbyallGovernmentDepartmentsandOfficesbetween2003and2006.

CustomerChartersandCustomerActionPlanswereseenashavingrelated,butdistinct,roleswithintheoverallQualityCustomerServiceInitiative.AssetoutintheGuidelinesforPreparationoftheCharters,theCharterisintendedtobeashort,easytoread,accessibledocumentwhichactsasapubliccommitmenttothecustomeronthelevelofservicess/hecanexpecttoreceivewhendealingwithaparticularDepartmentorOffice.

TheCustomerActionPlan,ontheotherhand,isamoredetailedPlanwhichdescribeshowtheCustomerChartercommitmentswillbedeliveredandevaluatedbytheDepartment/Office.

TheCharters’focusisprimarilyonthetransactionaspectofcustomerservice,i.e.ontheimmediateinteractionbetweenthecustomerandtheDepartmentorOffice.Itismoreabout“how”servicesaredeliveredthan“what”theseare.Thisdistinctionisnotalwaysaneatoneinpractice.InDepartmentsorOfficesprovidingapersonalservice,thetwoarecloselyintertwined.However,inothercasesthedistinctionisclear,e.g.theCustomerChartersofRevenueandtheDepartmentofSocialandFamilyAffairsarenotabouttaxratesorsocialwelfarelevels,theyareabouthowtheseareprofessionallyadministeredinpractice.

1 DepartmentoftheTaoiseach,PublicServiceModernisationDivision,Customer Charters: Guidelines for preparation 2003


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1.2 Evaluation RequirementsTheCustomerCharterGuidelinesenvisagedevaluationasanintegralfeatureoftheCharterprocess,asoneofthefourstepsintheCharterpreparationcycle.EvaluationisalsoseenasbeingimportantintheQualityCustomerServiceInitiativeasawhole.DepartmentsandOfficesarerequiredtoreportontheirperformanceagainsttheircustomerservicecommitmentsintheirAnnualReportseachyear.ThefirstsuchreportingwascontainedinAnnualReportsfor2004.

AnevaluationofCustomerActionPlanswasundertakenin2002.2ThreeyearsintotheCustomerCharterProcess,itwasdecidedthattheoverallCharterprocessalsomeritedexamination.

AssetoutintheTermsofReference,theobjectivesofthisevaluationaretoundertakesixtasks:




evaluate to what extent the Charter Initiative is fulfilling its objectives and, in particular, identify the benefits (if any) that accrue to the customer and Departments and Offices as a result;

assess the usefulness of any related and relevant developments, in both the private and public sectors, nationally and internationally, that may add value the Charter process;


Ourapproachandmethodweredesignedtomeettheserequirements.

1.3 Approach and Method

1.3.1 QCS Processes

Reflectingthecontextandrequirements,ouroverallapproachhasinvolvedanumberofkeyelements:

acentralfocusontheTermsofReferenceandfulfillingtherequirementsoftheseinasystematicfashion;

afocusontheCustomerCharterInitiativeandonidentifyingitsdistinctrolein,andcontributionto,thewiderQualityCustomerServiceInitiative;

seeingtheInitiativeasa“processwithinaprocess”,i.e.inthewidercontextoftheQualityCustomerServiceInitiativeasawhole,andoftheoverallPublicServiceModernisationprocess;

relatedtothis,approachingtheCustomerCharterInitiativeitselfasa“process”,notjustasasetofpublisheddocuments,althoughthesearethemselvesimportant;

2 Dr.P.Butler,SchoolofBusinessStudies,TCD,EvaluationofCustomerActionPlans,ReportforthePublicServiceModernisationDivision,Depart-mentoftheTaoiseach,April2002.

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allowingintheevaluationforboththeexistenceofcommonguidelinesandstandardisation,andforthediversityintheunderlyingPublicServiceorganisations,services,andcustomerbases,e.g.betweenDepartments/OfficeswhichprovideservicestothepublicandthosewhoprimarilydealwithcolleagueswithinthePublicService;

astrongemphasisonexperiencetodate,onwhathasworkedandwhathasnotworkedoverthetimeperiodsincetheInitiativewasintroduced,andonrelevantchangesintheexternalenvironmentandtheirroleoverthisperiod;

afocusonevaluatingtheCharterprocessasawhole,ratherthanonindividualorganisations’performance(exceptasitinformstheoverallpicture).Inparticular,thisevaluationisnotasubstituteforself-evaluationbythe30individualDepartmentsandOffices.

1.3.2 Overall Methodology

InordertomeettheTermsofReferencerequirementsinasystematicfashion,weutilisedaclearevaluationapproach.Thiswasderivedfromthefour-stageprocessproposedintheCustomerCharterGuidelines,i.e.consultation,commitment,evaluationandreporting,withanadditional“preparation”stepadded.Foreachoftheseweessentiallyaimedtoexaminefirstly,whatwasintendedattheoutsetin2003,andsecondly,howpracticeandexperiencehasevolvedovertime,i.e.by2006/07.

Acrossthe30DepartmentsandOfficeswethusexamined:

whatpreparatory processDepartmentsandOfficesundertookinitially,e.g.intermsofstructuresandskillsacquisition;

whatformofconsultationstookplaceinitially,whatcameoutofthese,andthenwhetherconsultationshavehappenedsubsequentlyandwhattheseandtheconsultationsarenowsaying;

thenatureofthecommitmentsinitiallyestablished,andwhathashappenedtothisintheinterveningperiodandtheextenttowhichthesamecommitmentsnowexist;

theinitialintentionsregardingtheevaluationprocessandhowthisprocesshasbeenputintoeffectinpractice;

theinitialproposalsregardingreporting,includingreportingintheAnnualReports.

1.3.3 Other Key Parameters

AnumberofotherkeyparametersfollowedfromthenatureoftheCharterInitiativeandfromtheTermsofReference:

ourprimaryfocusontheCustomerChartersratherthanthewiderQCSInitiative,exceptinsofarastheseoverlap;

aswiththeInitiative,ourfocusisonthe“external”customer.MostorganisationsalsohaveinternalCustomerChartersandthesearefrequentlyhandledbytheQCSOfficers,butarenotthetopicofthisreport;

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Figure 1.1: Steps in Customer Charter preparationSource: Department of the Taoiseach, Public Service

Modernisation Division, Customer Charters: Guidelines for Preparation, 2003


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ourfocusisspecificallyontheCustomerCharteraspectoftheQCSinitiative,andthusonlyindirectlydealswithotherrelatedaspectssuchasCustomerActionPlans;

ourfocusisonthe30centralCivilServiceDepartmentsandOffices.The30organisationsarelistedinAnnex1;

whileexaminingtheexperienceofall30DepartmentsandOffices,theevaluationfocusesontheCustomerCharterInitiativeasawhole.Itdoesnotconstituteafullevaluationofeachindividualorganisation.

Regardingthelatterissue,manyotherbodiesinthewiderpublicsectoralsohaveCustomerCharters.ThisaroseinparticularfromthecommitmentinSustaining ProgressthatallPublicServiceorganisationswould“commitpubliclytoservicestandardstotheircustomers”.3ThiswasfrequentlyinterpretedaspublishingaCharter.TheexperienceofthiswiderPublicServiceisnotencompassedbythisevaluation.

Ageneralimplicationoftheseparametersisthattheevaluationisnotdealingwithmanywideraspectsofcustomerserviceimprovement.DepartmentsandOfficeshaveotherprojectsandinitiativesoutsideoftheCharterprocess,toimprovecustomerservices.WhiletheCharter(andtheCustomerActionPlan)processisobviouslyimportant,otherworkisgoingonattheback-endandfront-endofservicedeliverytoimproveprocessesandadministration.This,ofcourse,canandshouldfeaturesomewhatinCustomerActionPlans,butprogressisbeingmadethatmaynotnecessarilybefullyevidentfromexaminingCustomerChartersandCustomerActionPlansalone.4

1.3.4 The 30 Civil Service Departments and Offices

ReflectingthefocusoftheCustomerCharterInitiative,thereviewdealswiththeChartersofthe30centralCivilServiceDepartmentsandOffices.Thisconsistsofthe15GovernmentDepartmentsand15OfficeswithintheCivilServicestructure.

Aconstantthemeofthisevaluationwillbethatofthediversitybetweenandwithinthese30organisations.Thisdiversityincludes:

arangeofsizes,includinglargePublicServiceemployerssuchasRevenue(nearly6,500employees)downtosmallorganisationswithlessthan100people(StateLaboratory);

organisationsprovidingdirectservicestothepublic,thoseprovidingservicestootherpartsofthePublicService,andmorepolicymakingbodies;

thoseproviding“mass”servicestolargesegmentsofthepopulation,e.g.theRevenueCommissionersandtheDepartmentofSocialandFamilyAffairs,thoseprovidingmorespecialistservicestothepublic,businessesorcolleagues;

organisationswithwhichthecustomersmayinteractregularly(e.g.RevenueCommissioners)oronlyrarely(e.g.thePassportOffice).

Suchdistinctionsexistwithin,aswellasbetween,organisations,e.g.theDSFAhasconventionaldepartmentalfunctionsaswellasitssocialwelfareserviceprovisionrole,andevenDepartmentswithrelativelylittledirectcustomerservicesstilltendtohavesomesuchroles,e.g.DepartmentofForeignAffairsadministersthePassportOffice,DepartmentofTransportadministersdrivertesting,etc.

3 DepartmentoftheTaoiseach,Sustaining Progress: Social Partnership Agreement 2003-05,TheStationeryOffice,February2003,para.20.134 OnwiderpublicservicequalityissuesseeNationalEconomicandSocialForum,Improving the Delivery of Quality Public Services,ReportNo.34,

Dec.2006.

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SubsequentsectionsofthisreportwillmakefrequentreferencetosuchheterogeneitybothintheanalysisandintheConclusionsandRecommendationsinChapter7.

1.4 Work Programme

1.4.1 Overview

TheTermsofReferenceenvisagedthattheevaluationwouldbeprimarilydeskbased,includingexistingassessmentsofconsumersatisfactionandattitudestowardsCustomerCharters,donemainlythroughsecondaryresearchofexistingsurveysandotherevaluationtechniques.TheonlyprimaryresearchshouldinvolveinterviewswithkeyplayersinGovernmentDepartmentsandOffices,contactwithsomeconsumergroups,andexaminationofnationalandinternationaltrendsanddevelopments.Ourworkprogrammereflectedthisemphasis.TheworkwasundertakenbetweenNovember2006andMarch2007.Itwasdividedintoaseriesofninestepsassetoutbelow.

1.4.2 Work Steps

Step 1: InceptionThisinvolvedinitialmeetingsandinteractionwiththeDepartmentoftheTaoiseachandanyotherkeystakeholdersinordertodiscussthekeyparametersandrequirementsandtheworkprogramme.Inparticular,itimprovedourunderstandingoftherequirements,allowedadjustmentstotheworkprogrammeasoriginallyproposed,andidentifiedkeycontactsandconsultees.ItalsoincludedparticipationinaQCSSeminaronCustomerChartersforGovernmentDepartments,Offices,andwiderPublicServiceagenciesheldinNovember2006intheRoyalHospital,Kilmainham.

Step 2: Review of Original Contextual DocumentationThisinvolvedareviewoftheoriginaldocumentationsurroundingtheInitiative,includingdocumentationontheoverallQualityCustomerServiceInitiative,andontheCustomerCharterInitiative.

MaterialexaminedincludedtheindividualCustomerActionPlans(withparticularreferencetoCharters),the2002evaluationoftheQualityCustomerServiceInitiative,theGuidelinesforPreparationoftheCustomerCharters,andotherrelevantdocumentationavailableonthe“BetterGovernment”website5.

Step 3: Review of the published Customer ChartersThisinvolvedareviewofthe30publishedCustomerCharterdocuments.ItinformedsuchkeyissuesaswhetheralltheorganisationshaveCharters;whentheywerepublishedandwhethertheyhavebeenupdated;theiroverallnatureandstructure;theirdetailedcontent;theextentofdifferencesbetweenCharters;theextentofquantificationofobjectivesandwhattheseobjectivesare;theextentofthefocusoncustomersoronotheruserswithinthePublicService;and,therelationshipbetweentheCharterandtheCustomerActionPlan.

Step 4: Review of Other DocumentationThisinvolvedareviewofotherdocumentationwhichreflectedtheexistenceorresultsoftheCustomerCharters.ThisincludedDepartmentalandOfficeCustomerActionPlans,StrategyStatements,AnnualReports,andotherdocuments,e.g.SectoralStrategydocuments.

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Step 5: Review of Existing Customer Service Evaluations Asalreadysetout,theCharter,andthewiderQualityCustomerServiceprocess,hasproducedanamountofrelevantevaluationmaterial.WeexaminedallsuchmaterialavailablefromindividualDepartmentsandOffices,bothforitscontentandtheprocessinvolvedinitsproduction.DepartmentalAnnualReportswereakeysourcehere,aswereunpublishedsurveyresultsgiventousbysomeDepartmentsandOffices.

ThisalsoinvolvedexaminationofCivilService-wideevaluationmaterialofrelevance,includingconsumerandbusinessattitudesurveys.

Step 6: Consultations with Departments and OfficesAll30DepartmentsandOfficeswereindividuallyconsultedaspartoftheevaluation.Thisinvolved:

preparationofachecklistofinformationwhichwewouldwishDepartmentsandOfficestoprovide(ChecklistagreedwiththeDepartmentoftheTaoiseachduringtheProjectInceptionstep);

obtainingavailableinformationbye-mailorhardcopywhereitalreadyexisted;

follow-upcontactandrelatedconsultationswiththerelevantpersonnelintheDepartmentsandOffices,generallyincludingthedesignatedQCSOfficer(seeAnnex1).

Step 7: Case StudiesWeexaminedsixoftheorganisationsinmoredepth.Thesewere:theOfficeoftheRevenueCommissioners;theDepartmentofForeignAffairs;theDepartmentofCommunications,MarineandNaturalResources;theStateExaminationsCommission;thePublicAppointmentsService;andtheHousesoftheOireachtas.

Thesewerechosenbyus,inconsultationwiththeDepartmentoftheTaoiseach.Theaimwastochooseamixofdifferenttypesoforganisations,e.g.DepartmentsandOffices,organisationswithdifferenttypesofcustomersanddifferenttypesofrelationshipswiththesecustomers(e.g.generalpublicversusotherPublicServiceorganisations),organisationswithaprimarilydirectpublicservicerole(e.g.RevenueCommissioners)asagainstthosewithamorepolicyoradvisoryfunction.Theaimwastodeepenourunderstandingofissuesbyfocusingonmorequalitativeissuesacrossawiderrangeofstakeholders,andtoidentifyexamplesofgoodorinnovativeCharter-relatedpracticewhichcouldhavewiderapplication.

Thecasestudiesarereferredtothroughoutthereportandareincluded,forreference,asAnnex3.

Step 8: Other ConsultationsThisrelatestoconsultationsoutsidethebilateraloneswiththe30individualorganisations.Thesefellintoanumberofcategories:anumberofhighlevelPublicServiceintervieweeswithastrongknowledgeofoverallprogress;TradeUnionandRepresentativeBodies;andPublicServicebodieswithrelevant“horizontal”responsibilities.AlistofconsulteesisprovidedinAnnex2.

TheQCSResearchGroup,theQCSOfficers’NetworkandtheImplementationGroupofSecretariesGeneralwerepresentedwithdraftfindingspriortothefinalisationofthereport.

Step 9: Wider ExperienceWealsoundertookadesk-basedexaminationofexperienceandpracticewithCustomerChartersintheIrishprivatesectorandinpublicservicesoverseas.Thisinvolvedamixofinternetsearchesandreviewofdocumentationandreports.

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1.5 Reporting Duringtheevaluation,threeinterimprogressreportsweresubmittedtotheDepartmentoftheTaoiseachforinformationandtoobtainguidanceon,andagreementto,steps-e.g.thechecklistusedinconsultationswiththe30DepartmentsandOfficesandthechoiceofcasestudies.

ThisreportconstitutestheFinalReportontheEvaluation.Itisstructuredasfollows:

Chapter1setsoutthebackground,context,requirementsandapproach;

Chapter2describestheCustomerCharterprocessasdevelopedattheoutset,includingtheCharterGuidelines;

Chapter3describesandanalysestheCharterdocumentsaspublished;

Chapter4describestheexperienceoftheCharterprocessinpractice,asitemergesfromourinteractionwiththe30organisationsinvolved,andfromrelevantassociatedmaterial,i.e.CustomerActionPlansandAnnualReports;

Chapter5examinestheimpactoftheChartersbasedonthe30individualorganisations’ownresearchandevaluation,onconsulteeviewsandonothermaterial;

Chapter6examinesthewiderexperienceof,andattitudesto,CustomerChartersinthepublicserviceinternationally,intheIrishprivatesector,andoforganisationsrepresentingcustomers;

Chapter7presentstheKeyIssues,togetherwiththeConclusionsandRecommendationsoftheEvaluation.

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2. The Customer Charter Process2.1 Introduction ThisChaptersetsouttheoverallnature,roleandcontentofCustomerCharters,inparticularasenvisagedinthe2003CustomerCharterGuidelines.

Section2.2presentsthewiderPSMandQCSinitiative.

Section2.3summarisestheCustomerCharterGuidelines.

2.2 Public Service Modernisation and the QCS Initiative

2.2.1 Public Service Modernisation

ThePublicServiceModernisationprocessinIrelandcommenced13yearsagoin1994,withthelaunchofthethenStrategicManagementInitiative(SMI).TheSMIhadthestatedobjectiveofpresentingPublicServicemanagementwithanopportunitytomakeasubstantialcontributiontonationaldevelopment,throughprovisionofservicestothepublicwhichwerebothexcellentinqualityandeffectiveindelivery.In1996thereport,Delivering Better Government(DBG),expandedontheframeworksetoutinSMIandpresenteda“VisionfortheCivilService”builtaroundaseriesofkeyorganisationalthemes.Theseincludedamissionofqualitycustomerservice,greateropennessandaccountability,andtheefficientandfairoperationofsimplifiedregulations.

WithinGovernmentDepartments,thesedevelopmentsweretobeunderpinnedbyorganisationalimprovementsinhumanresourcemanagement,financialmanagementandenhancedinformationsystemsmanagement.FurthersupportfortheimplementationoftheseinitiativeswassetoutintheProgrammeforProsperityandFairness(PPF)in2000,andinsubsequentnationalagreements.

ThesubsequentPublicServiceModernisation(PSM)processhasthusfocusedonthecentralDelivering Better Governmentthemesof:

BetterRegulation;

FinancialManagement;

HumanResourceManagement;

InformationSociety;

PartnershipintheCivilService,andcruciallyforthisstudy;

QualityCustomerService(QCS).

Thelatteristheimmediatefocusforthisevaluation.

2.2.2 The QCS Initiative

TheCustomerCharterinitiativebeingevaluatedhereisthuspartofthewiderQCSInitiative.Originallylaunchedin1997,itisconcernedwithleadingamore“customerfacing”focusintheservice.Underpinningthisaretwelve(previouslynine)PrinciplesofQualityCustomerService.Theseare:

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QualityServiceStandards;

Equality/Diversity;

PhysicalAccess;

Information;

TimelinessandCourtesy;

Complaints;

Appeals;

ConsultationandEvaluation;

Choice;

OfficialLanguagesEquality;

BetterCo-ordination;

InternalCustomer.

ThesearedescribedinmoredetailinFigure2.1.

OfparticularrelevancehereisprincipleNo.1:Quality Service Standardswhichinvolvesacommitmentto“publishastatementthatoutlinesthenatureandqualityofservicewhichcustomerscanexpect,anddisplayitprominentlyatthepointofservicedelivery.”ThisisineffectwhattheChartershavesubsequentlyaimedtooperationalise.

TheImplementationGroupofSecretariesGeneralhasoverallresponsibilityfordirectingandleadingthemodernisationprogramme.TheQCSWorkingGroupreportstothisGroup,andisinvolvedindeepeningandnurturingtheQCSinitiative.

TheWorkingGroupincludesmembersfromGovernmentDepartmentsandOffices,aswellasrepresentativesoftradeunions,business,consumerandequalityinterests.TheWorkingGroupisassistedinitsrolebyaResearchGroupthatconsidersnewinitiativesandparticularsubjectsasrequired.TheQCSinitiativeismanagedandco-ordinatedbythePublicServiceModernisation(PSM)DivisionoftheDepartmentoftheTaoiseach.

AQCSOfficers’NetworkwassetupinOctober2000andincludesrepresentativesdrawnfromallGovernmentDepartmentsandOffices.TheNetworkmeetsregularly(everytwomonths)todiscussitemsofinterestandsharebestpracticeonallaspectsofCustomerServiceandisresponsibleforsupportingandpromotingtheQCSinitiativeatlocallevel.

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Figure 2.1: Principles of Quality Customer ServiceForCustomersandClientsofthePublicServiceIntheirdealingswiththepublic,CivilServiceDepartmentsandPublicServiceOfficeswill:

Quality Service Standards Publish a statement that outlines the nature and quality of service which customers can expect, and display it prominently at the point of service delivery.

Complaints Maintain a well-publicised, accessible, transparent and simple-to-use system of dealing with complaints about the quality of service provided.

Equality/DiversityEnsure the right to equal treatment established by equality legislation, and accommodate diversity, so as to contribute to equality for the groups covered by the equality legislation (un-der the grounds of gender, marital status, family status, sexual orientation, religious belief, age, disability, race and member-ship of the Traveller Community).

Identify and work to eliminate barriers to access to services for people experiencing poverty and social exclusion, and for those facing geographic barriers to services.

AppealsSimilarly, maintain a formalised, well-publicised, accessible, transparent and simple-to-use system of appeal/review for cus-tomers who are dissatisfied with decisions in relation to services.

Physical AccessProvide clean, accessible public offices that ensure privacy, comply with occupational and safety standards and, as part of this, facilitate access for people with disabilities and others with specific needs.

Consultation and Evaluation Provide a structured approach to meaningful consultation with, and participation by, the customer in relation to the develop-ment, delivery and review of services. Ensure meaningful evaluation of service delivery.

InformationTake a proactive approach in providing information that is clear, timely and accurate, is available at all points of contact, and meets the requirements of people with specific needs. Ensure that the potential offered by Information Technology is fully availed of and that the information available on Public Service websites follows the guidelines on web publication.

Continue the drive for simplification of rules, regulations, forms, information leaflets and procedures.

ChoiceProvide choice, where feasible, in service delivery including payment methods, location of contact points, opening hours and delivery times. Use available and emerging technologies to ensure maximum access and choice, and quality of delivery.

Timeliness and CourtesyDeliver quality services with courtesy, sensitivity and the minimum delay, fostering a climate of mutual respect between provider and customer.

Give contact names in all communications to ensure ease of ongoing transactions.

Official Languages Equality Provide quality services through Irish and/or bilingually and in-form customers of their right to choose to be dealt with through one or other of the official languages.

Better Co-ordinationFoster a more co-ordinated and integrated approach to delivery of public services.

Internal CustomerEnsure staff are recognised as internal customers and that they are properly supported and consulted with regard to service delivery issues.


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2.2.3 Customer Action Plans

OneofthekeyelementsoftheQCSInitiativeistherequirementthatGovernmentDepartmentsandOfficesshouldprepareandpublishaperiodicCustomerActionPlan(CAP).ItspurposeistosetoutindetailthemethodsthroughwhichtheDepartment/Officewillprovidethehighestlevelofserviceintheirdealingswiththepublic.GuidelinesforpreparationofCustomerActionPlanswerepreparedbytheQCSWorkingGroupin2000.1

CustomerActionPlansaretailoredtosuitthespecificrequirementsofeachindividualDepartmentorOffice,andassuchtheydifferintheemphasisplacedondifferentelementsoftheplan.Generally,aCAPshouldoutlinethemechanismsusedforconsultingwithcustomers,describetheresponsibilitieswithintheorganisationfordeliveringoncommitments,anddetailtheperformanceindicatorstobeusedinevaluatingtheeffectivenessoftheplan.Since2003theyalsohaveanimportantroleindescribinghowtheCustomerChartercommitmentswillbedeliveredandevaluated.

FollowingthelaunchoftheQCSInitiative,CustomerActionsPlanswerefirstpublishedfortheperiod1997-2000,andsubsequentlyfor2001-2004.DepartmentsandOfficesarethustypicallynowintheirthirdCAP.However,forvariousreasons,thisisnotuniversal.Itshouldalsobenotedthatanumberoforganisations–notablytheRevenueCommissionersandtheDepartmentofSocialandFamilyAffairs–hadCustomerActionPlans(orsimilardocuments)priortothisbeingaformalrequirementundertheQCSInitiative.

Asintended,CAPsaretypicallyfairlyextensivedocuments,settingoutsummaryservicecommitments,objectivesandtargetsacrosstherangeoftheorganisations’services.TheytypicallyincludetheCustomerCharter(wherethispredatestheCAP).Theyareusuallypubliclyavailableinhardcopyandonwebsites,andareinmanycaseshighlyprofessional“glossy”documentsratherthanpurelyinternalplans.TherelationshipbetweentheCAPsandtheCustomerChartersisanissuewhichwillbeexaminedlaterinthisreport.

2.2.4 Evaluations of the QCS Initiative

TheCustomerCharterInitiativegrewoutoftherecommendationsoftwoevaluationscompletedin2002.ThefirstwasthePAConsultingEvaluation of the Strategic Management Initiativeasawhole2.Theirsummaryofthepositionastheyassesseditin2002(fiveyearsafterQCSandeightyearsafterSMI)wasasfollows:“a decade ago, the Civil Service did not speak of customers and evidenced little recognition of the importance of a customer service culture. Whilst current arrangements may still be imperfect, the Civil Service has introduced the discipline of a customer service ethos, and in doing so has acknowledged the expectations of individual and corporate customers. Our observations in the Civil Service leave us in no doubt that a customer service culture has taken hold and is being further progressed”.(ExecutiveSummary;paragraph3.3).

WhilefindingthattheCivilServiceofferedanincreasinglyhigherqualityservicetoitscustomers,thereviewalsofoundthatarrangementsinplaceinmanyDepartmentsandOfficestomonitorandevaluatelevelsofcustomersatisfactionwereinadequate.

ThesecondevaluationwasaspecificreviewofDepartments’andOffices’CustomerActionPlanscompletedbyDr.PatrickButleroftheSchoolofBusinessStudies,TCD.InhisEvaluation of Customer

1 SMI/QCSWorkingGroup,Practical Guide for the Development of Quality Customer Service (QCS) Customer Action Plans by Departments and Offices,December2000.

2 PAConsultingGroup,Evaluation of the Strategic Management Initiative, Report presented to the Department of the Taoiseach,March2002.


34

Action Plans3.Dr.Butlerinhissummaryconcludedthat“among the primary conclusions are that the Twelve Principles of Quality Customer Service are being addressed extensively and positively in the Plans; that the establishment of service standards and evaluation of performance require objective research and widespread consultation on a continuous basis; that compliance alone with set standards, without commitment to the service ethos, is insufficient for sustainable reform in this area”.Herecommended,amongotherthings,amorerigorousapproachtocustomerconsultationandstandardssettingandclearerservice-levelcommitments,suggestingthesewouldmakeiteasierforDepartmentsandOfficestoevaluatetheirperformanceandarticulatethesetocustomersandotherkeystakeholders.

2.2.5 Other Relevant Aspects of QCS

AnumberofotheraspectsofthewiderPSMcontextdeserveabriefdescriptionaspartofthecontextoftheCharters.

Equality/Diversity: In2001,asupportpackforGovernmentDepartmentsandOfficesonEquality/DiversityaspectsofQCSwasproduced.ThiswasdevelopedbytheEquality/DiversitySub-GroupoftheQCSWorkingGroup.TheSub-GroupalsoadvisedtheWorkingGrouponthecommissioningoftheResearchReportonEquality/DiversityAspectsofQCSwhichwascirculatedtoallDepartmentsandOffices.EqualityissuesarealsoincludedbyDepartmentsandOfficesintheirCustomerChartersandCustomerActionPlans.

Redress for Civil Service Customers: TheissueofRedressforCivilServicecustomersiscurrentlybeingaddressedbytheHigh-LevelGrouponRedress,whichwillbereportingtotheImplementationGroupofSecretariesGeneralin2007.4

Irish Public Service Excellence Showcases and Awards and 4QC: TheTaoiseach’sPublicServiceExcellenceAwards,organisedbiennially,aredesignedtoacknowledgeexcellenceinthePublicServiceandinparticular,torewardprojectsandinitiativesthathaveimprovedthequality,efficiencyandeffectivenessofservicesandadministration.InMarch2006,theTaoiseachpresented20PublicServiceExcellenceAwards(outof153submissions).

ThreeoftheawardwinningprojectswentontorepresentIrelandatthe4thQualityConferenceforPublicAdministrationsintheEU,whichtookplaceinFinlandinSeptember,2006.

ArrangementsfortheTaoiseach’sPublicServiceExcellenceAwards200�arecurrentlyunderway.

Communications: ThePublicServiceModernisationDivisionpublishesLINKNewsletter,5-6timesperannum.LINKhasacirculationofapproximately30,000andprovidesupdatesonissuesrelevanttothemodernisationagenda.

Thewebsite,www.bettergov.ie,providesinformationonthebackgroundtoPublicServiceModernisationandthevariousinitiativestherein.Italsocontainsnewinformationandrelevantpressreleases,reportsandlinkstoothersites.

AcentralemailaddressisusedforcontactwiththePublicServiceModernisationDivision.Thisisbettergov@taoiseach.gov.ie.

3 P.Butler,SchoolofBusinessStudies,TCD,Evaluation of Customer Action Plans, Report for the Public Service Modernisation Division, Department of the Taoiseach,April2002

4 McCannFitzgerald,Redress for Civil Service Customers: International Approaches,PublishedbytheDepartmentoftheTaoiseach,2005.


35

2.2.6 Other Relevant Aspects of Public Service Modernisation

Performance Management and Development System (PMDS) Thisisabroadtermtodescribethewayajobholder’sworkperformance,careeranddevelopmentneedsaremanaged.PMDScanbeseenasaprocessforestablishingasharedunderstandingaboutwhatistobeachieved,howitistobeachieved,andanapproachtomanaginganddevelopingpeoplethatincreasestheprobabilityofachievingsuccess.Itlinksthemanagementofindividual/teamperformancetotheobjectivesoftheDepartment,assetoutintheStrategyStatementandBusinessPlan,byfocusingjobholder/teamactivityaroundtheseobjectivesandbybettermonitoringofprogresstowardsachievingobjectives.

Civil Service Performance Verification Process (CSPVG) ThePerformanceVerificationprocessmonitorsprogressmadebyPublicServiceorganisationsinimplementingthevariouselementsofnationalagreementsandlinksthisprogresstopayincreasessetoutintheseagreements.Therearefoursectorsinvolved–theCivilService,Health,EducationandLocalGovernment.UnderthetermsofTowards 2016,paymentofeachofthefourPublicServicepayincreasesisdependentonverificationofsatisfactoryachievementinrelationtoco-operationwithflexibilityandongoingchange(includingco-operationwithsatisfactoryimplementationoftheagendaformodernisationsetoutintheAgreement),maintenanceofstableindustrialrelations,andtheabsenceofindustrialactioninrespectofanymatterscoveredbytheAgreement.TheroleoftheCivilServicePerformanceVerificationGroup(CSPVG)istoverifyprogressintheseareasatsectoral,organisationalandgradelevelintheCivilService.

Strategy Statements: SecretariesGeneralandHeadsofOfficeareobligedunderthePublicServiceManagementAct(PSMA)1997,tosubmitStatementsofStrategy(SS)toMinisterswithinsixmonthsoftheMinistercomingintooffice,andattheexpirationofthe3yearperiodsincethelastsuchstatementwaspreparedandsubmitted.RevisedguidelinesforSecretariesGeneralandHeadsofOfficesonthePreparationofStrategyStatementsandrevisedguidelinesforMinistersontheimplementationofthePSMAwereproducedandcirculatedinlate20045.TherevisedguidelinesdidnotmakeanyfundamentalchangestotheunderlyingapproachtoStrategyStatements.

TherewasanAideMemoiretoGovernmentonthePreparationofStrategyStatements2005-2007inOctober2004.Itstatedthat“allDepartments,includingthosewheretherehasbeennonewMinisterialappointment,shouldprepareanewStrategyStatement;thisprocessshouldbeusedtoensurethatDepartmentalstrategiesarefullyalignedwiththeProgrammeforGovernment”.TheStrategyStatementwastocovertheyears2005-2007.TherationaleforaskingallDepartmentstoprepareaStrategyStatementwastomaintainacommontimescale.

RegardingCustomerService,the2004Guidelines(Section4.6)statethattheStrategyStatementshouldpayparticularattentiontoservicedelivery,havingregardtotheCustomerCharterandtheQCSInitiative.Theyalsoemphasisetheroleofcustomerresearch,andofICT.TheydonotreferexplicitlytotheCAPs.

NewguidelinesforGovernmentDepartmentsandOfficesforthepreparationofStrategyStatementshavebeenproducedandissuedforthenextiterationofStatements.

5 DepartmentoftheTaoiseach,PublicServiceModernisationDivision,Guidelines for Secretaries General and Heads of Office on the Preparation of Strategy Statements,October2004.


36

Annual Reports: AnAnnualReportisthemeansbywhichaDepartment/OfficemustreportonprogressmadeinachievingthegoalsassetoutintheStrategyStatement,havingregardtotheperformanceindicatorsidentified.AnnualReportsplayanimportantroleinthatDepartments/OfficesarerequiredtousethemtoreportonprogressmadeinachievingtheirCustomerChartercommitments.

Business Plans: TheaimoftheBusinessPlanistotranslatethehighlevelgoalsandobjectivesassetoutintheStrategyStatementintodivisionalorunitobjectivesand,ultimately,intoindividualandteamobjectives.Businessplanninghelpsorganisationsprioritiseandmanagework,andallocatetasks.EachsectionwithinaDepartmentorOfficemustprepareabusinessplanannually,withkeytasksandperformanceindicatorsbywhichachievementofthesetaskscanbemeasured.

Organisational Reviews: TheTaoiseach,atanInstituteofPublicAdministrationConferenceon�June,2006,announcedanumberofinitiativesinordertogivethemodernisationprocessanewimpetus,includingareferencetoareviewoforganisational-levelcapabilityasfollows:

“...Iamasking(theImplementationGroupofSecretariesGeneral)topreparerecommendationsforconsiderationbytheGovernmentofasystemofexternalreviewofthestructures,capacities,proceduresandleadershipofDepartmentsandAgencies,sothatproblemareasareidentifiedandsupportcanbegivenforfutureimprovement.Wealreadyhaveasystemofexternalaudit,and a developing system of expenditure review with outside expertise. We have recentlyintroduced external support for the management of large-scale IT projects.What I have inmindisthatweshouldbroadenthistolookattheoperationofDepartmentsandAgenciesasawhole,bothtogiveassuranceabouttheiroverallperformance,butalsototargetpracticalsupportandadviceonareasofparticularconcern.”

TheproposedorganisationalreviewswillexaminethecapabilityofDepartments/OfficesandAgenciestomeettheircurrentservicedeliveryrequirementsandtodealeffectivelywithfuturechangesindirectionand/ornewchallenges.Specifically,thereviewswilllookatstructures,capacities,proceduresandleadershipcapabilitiesacrosstheCivilService.ItisenvisagedthatthesereviewswillhelporganisationsintheformulationofactionplansarisingunderTowards 2016andthebusinessplanningprocessgenerally.

Therationaleforthereviewsistoidentifyproblemareasandprovidesupportforfutureimprovement,tocomplementexistingexternalauditandexpenditurereviewprocessesandtobroadentheapproachcurrentlybeingtaken,forexample,toprovideexternalsupportforthemanagementoflarge-scaleITprojects.ItisintendedtolookattheoperationofDepartmentsandAgenciesasawhole,bothtogiveassuranceabouttheiroverallperformanceandtotargetpracticalsupportandadviceonareasofparticularconcern.

2.3 The Customer Charter Guidelines

2.3.1 Overview

TheCustomerCharterGuidelinesprovideatouchstoneforthisevaluationforanumberofreasons.TheyconstitutetheformalstatementofintentregardingtheCharters’natureandpurpose,thussettingabenchmarkagainstwhichsubsequentimplementationcanbejudged.TheTermsofReference(Point2)


37

askthatweexaminethemas“atoolinensuringconsistencyandrobustnessacross”DepartmentsandOffices,andtheyareapossiblevehicleforadjustmentorotherchangesintheprocessinthefuture.

AsstatedintheTaoiseach’sintroduction,theGuidelinesareintendedasasetof“practicalguidelines”forthoseinvolvedinCharterpreparation.TheChairoftheQCSWorkingGroup,inhisintroduction,statesthat“theyarenotintendedtobeprescriptive,butrathertofacilitatesharingofgoodpracticerecognisingthateachDepartment/Officewillneedtotailoritsapproachtoitsowncircumstancesandexperiences”.

TheGuidelinescontainanOverviewwhichdealswiththenatureoftheCharters,andthenaseriesofSections,oneoneachofthefourstepsinCharterpreparationi.e.“consultation”,“commitmenttostandards”,“evaluationofperformance”,and“reportingofresults”.

Overall,thefirstsectionoftheGuidelinesisatightly-writtendocument.Thisprovidesforadmirablebrevity,butdoesmeanthatmanyimportantissuesarestatedverybrieflyandcouldbeoverlooked.Ofcourse,moredetailedexamplesintheGuidelines,andaccompanyingtraining,mayhavehelpedtoaddressthisissue.

2.3.2 Basic Nature of a Customer Charter

ThisisacriticalelementoftheGuidelines.Theystatethat:

“aCustomerCharterisashortstatementdescribingthelevelofserviceacustomercanexpectfromaGovernmentDepartmentorOffice”.

Additionally,theGuidelinesaddthat,inallcases,theCustomerChartershould:

statetheDepartment’scommitmenttoprovidingservicestoitscustomersinaccordancewiththetwelveQCSPrinciples(thismightincludeashortmissionstatementanddescriptionoftheservicesprovided);

defineservicestandardsincleartermsandsimplelanguage;

informcustomershowtomakeacomplaintorasuggestion(including,ifappropriate,formsofexternalredress/appeal);

includethepublicationdateoftheCustomerCharterandrelevantcontactdetails.

AnissueonwhichtheGuidelinesdoesnotexplicitlyelaborateisthemeaningof“servicestandards”.AswillbeclearfromChapter3,thesehaveinpracticebeendefinedintermofcustomers’immediateinterfacewithDepartments/Offices,ratherthanintermsofthequalityofthesubstantiveunderlyingservice.

TheGuidelinessaythateachDepartmentwillneedtotailoritsapproachtoitsowncircumstancesandcustomerbase.Forexample,theCustomerChartermight:

coveranentireDepartmentoronlyrelatetoaspecificserviceareaorsection;

addresstheneedsofspecificcustomergroups;

definecustomerresponsibilities(e.g.tokeepappointments,providecorrectinformation,treatstaffinarespectfulmanner).

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TheGuidelinesarealsoexplicitonwhataCharterisnot.TheysaythataCustomerChartershould“notseektocovereverythingaDepartmentdoes.Itshouldinsteadfocusonwhatisimportanttoitscustomers,notfocusoninternalprocessesorpoliciestoachievetheservicestandards.ThisismoreproperlyaddressedthroughCAPsandbusinessplans”.

2.3.3 Relationship Between Charter and Action Plan

TheGuidelinessaythatCustomerChartersandCustomerActionPlans(CAPs),whilebothpartofthesameinitiative,haveseparatebutcomplementaryroles.“TheCustomerCharterisashort,easytoread,accessibledocumentwhichactsasapubliccommitmenttothecustomeronthelevelofservices/hecanexpecttoreceivewhendealingwithaparticularDepartmentorOffice.TheCustomerActionPlanisamoredetailedplanwhichdescribeshowtheCustomerChartercommitmentswillbedeliveredandevaluatedbytheDepartment/Office”.

Oncontent,theGuidelinesgoontostatethatwhileDepartments/Officesmaywishtoadoptdifferentapproaches,theCharterislikelytodescribe:

theprocessbywhichcustomersareconsulted;

responsibilitieswithintheorganisationfordeliveringoncommitments;

moredetailedperformanceindicatorswhichwillbeevaluatedandreportedonintheAnnualReport.

ItmaythereforebeappropriatetoincludetheCustomerCharteratthefrontoftheCAPaswellaspublishingitseparately.

2.3.4 Frequency and Timing

Onthematteroffrequency,theGuidelinesstatethat“itwillstillbenecessarytorevisetheCAPeverythreeyears,orwhenaDepartment/Officesignificantlychangestheservicesitoffers.ThisexerciseislikelytobeanappropriateopportunitytoreviewtheCustomerCharteralso,althoughtheCustomerChartercommitmentsmayhavealongerlifespanthantheCAP”.ThisappearstohavebeensubsequentlyinterpretedastheCharterhavingalongshelflife,althoughthismaynothavebeentheintention.

Giventheircomplementaryroles,theGuidelinessaythatitmaybeappropriatethattheCustomerCharterandCAParepreparedaspartofthesameprocess.ThismayinvolvesimultaneouspublicationorpublishingtheCustomerCharterfirst,followedbytheCAP.TheGuidelinesstatethat“Departments/OfficesshouldpublishaCustomerCharterassoonaspossibleandasaminimumshouldpreparetheirfirstCustomerCharterwhentheyareduetoproducetheirnextCAP”.Formostorganisations,thiswillhavemeantthattheyshouldhavehadaCustomerCharterinplaceduring2004orshortlythereafter,(someCharterswerenotactuallypublisheduntil2006).

TheGuidelinesnotedthatallDepartments/OfficesshouldincludeareportonachievementoftheirCustomerChartercommitments,and/orCAPcommitments,intheirAnnualReports.

2.3.5 Internal Customers

TheGuidelinesstatethattheCustomerCharterisintendedtoaddressthe“external”customer’sneeds

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39

andresponsibilitiesonly.However,forQCStobetrulyintegratedintoeverythingaDepartmentdoesandtoensurebestpossibleservicetotheexternalcustomer,thetreatmentoftheinternalcustomermustalsobeaddressedinasubstantivewaybutnotaspartoftheCustomerCharter.

TheGuidelinesaddthatDepartments/OfficeswillwishtoconsiderwhetheraparallelinitiativeontheInternalCustomerisalsorequired,notingthatareporton“HowtoDevelopanEffectiveInternalCustomerServiceEthos”isavailablefromtheCommitteeforPublicManagementResearch.

Subsequently,abookletpreparedbytheQCSResearchGroupwaspublishedbytheDepartmentoftheTaoiseachin2004.Thebooklet,entitled“OurCommitmentstoourColleagues”wasaimedataddressingtheissueofinternalcustomersintheCivilService.

2.3.6 Preparation of Charters

TheGuidelinesrecommendedthat“aDepartmentshoulddevelopastructuredapproachtopreparingtheCustomerCharter.Thiswouldbelikelytoinvolveanumberofsteps:

discussionsatseniormanagementlevel(e.g.theMAC)aboutthepurposeof,andapproachto,theinitiative;

assigningoverallresponsibilityforthetasktoamemberofseniormanagement;

establishingstructuresforundertakingthetask.ThePartnershipCommitteeoraspeciallyestablishedsubgroupislikelytobeanidealvehicleforinvolvingstaffthroughoutanorganisation;

communicatingwithstaffabouttheinitiative;

ensuringthattheprocessislinkedtothewiderbusinessplanningprocesswithintheDepartment;

ifappropriate,discusstheCustomerCharterinitiativewiththerelevantMinisteratthisstage”.

TheGuidelinesproposedthat,inpractice,preparationoftheCustomerChartershouldinvolvefourstepswhicharedescribedindetailinthefollowingchapters.Thesefourstepsare:

Consultation with customers/stakeholders;

Commitment to service standards;

Evaluation of performance;

Reporting on results.

SubsequentsectionsoftheGuidelinesweredevotedtothesestagesone-by-one,withpracticalexamplesprovidedintheAppendices.

2.3.7 Wider Support to the Process

TheGuidelinesenvisagedthat,whenDepartmentsdevelopCustomerChartersandengageinmorerigorousconsultation,settingofstandards,evaluationandreportingofcustomerservicestandards,theywillalsoneedtotakeintoaccounttheprovisionofsupportstostaff.

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Thisshouldincludethefollowingtwoelements:

Communications–theCustomerCharterrepresentsacertainculturalshiftfororganisations.Morerigorousevaluationofpublishedservicestandardscouldbeseenasmoreintrusivemonitoringofstaffperformance.AsignificanteffortwillneedtobemadeatorganisationandbusinessunitleveltoallaythesefearsandcommunicatetherealgoalsoftheCustomerCharter–bettercustomerservice;

Training–CustomerChartersmaymakenewdemandsonstaff.EventhepreparationoftheCustomerCharteritselfmayrequiresomestafftodevelopskillsinareassuchasfacilitationofcustomerconsultations,analysisofsurveyresultsetc.Customerservicetrainingneedstobetargetedatprovidingstaffwiththeskillsthattheywillrequiretomeetthesedemands.

TheGuidelinesalsosawpublicationoftheCustomerCharterasanopportunityfororganisationstogiveanewimpetustocustomerserviceandtoraisetheprofileofQCSissueswithintheorganisation.

2.3.8 Guidance on Content

TheGuidelinesstate(quitecorrectly)that“akeyfactorinasuccessfulCustomerCharterisaccessibility”.TheyrecommendthattheCustomerChartershouldbeaconcise,easy-to-readdocument,probablyintheformofabrochureorposter.WhiletherewillbemanyvariationsinCustomerCharters,ataminimumtheCustomerCharterislikelytoinclude:

WhytheCustomerCharterwasputinplace–toimprovecustomerservicebysettingoutandmeasuringcustomerservicelevels;

Whataretheservicestandardsthattheorganisationiscommittingto;

Complaints/Comments–whatmechanismsareavailabletocustomerstocomplain/seekredressiftheybelievethestandardssetoutintheCustomerCharterarenotbeingmet.Contactdetails(phone,email)mightbeincludedintheCustomerCharter;

Formats/Languages–ConsiderationshouldalsobegiventomakingtheCustomerCharteravailableinformats/languageswhichareaccessibletodifferentcustomergroups.

2.3.9 Communicating with the Customer

TheGuidelinessaythatthekeyquestioniswhatchannelsofcommunicationsthecustomerprefersorismostusedto.Figure2.2listssomeofthemethodsDepartments/Officesmightwishtoconsider.

TheGuidelinesaddthatconsiderationshouldalsobegiventomeasuringawarenesslevelsoftheCustomerCharter,andthecommitmentsitcontains,amongcustomers.ThisisanexampleofapieceofbasicGuidancewhichmayhavebeenstatedsobrieflyithasperhapsbeenoverlooked.ThisissuearisesagainasarecommendationinChapter7.

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2.3.10 Reviewing Charters

OnthereviewofCharters,theGuidelinesstatethattheCustomerChartershouldevolveanddevelopaspartofacommitmentto“continuousimprovement”.ReviewsbyDepartments/OfficesofCustomerChartersshouldreflect:

changesintheservicesofferedbytheDepartment;

feedbackreceivedfromcustomersinrelationtoservicesandtotheCustomerCharteritself;

acommitmenttocontinuousimprovementinservicestandards.

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Figure 2.2: Some Methods For Informing Customers About Charters Posters - in public and other offices – this will have the added dividend of informing staff of the Customer Charter.

Leaflets - could be sent to customers along with other routine correspondence. If the Customer Charter is brief it could be printed on the reverse of forms. Leaflets could also be available in public offices.

Website – the Customer Charter should be prominently displayed on the organisation’s website. At a minimum, a link to the Customer Charter from the home page and any other page focused on customer service.

Emails – staff could include a link to the Customer Charter at the bottom of emails.

Press release/launch – for Departments with a substantial customer base it may be worthwhile to consider trying to attract some press interest in the launch of the Customer Charter.

Meetings with customers, collectively or individually, may be appropriate opportunities to inform them of the Customer Charter orally or by handing out the leaflets referred to above.

Speaking Opportunities – Ministers can use speeches to customers/media and staff as opportunities to outline the main elements of the Customer Charter.

Publications – other publications on customer service could incorporate the Customer Charter.

Advertising – national, local, trade and special interest publications could be considered.

Customer Diversity – the Customer Charter should be produced in as many formats as possible and made available through a range of channels of communication to ensure that it is accessible to customers experiencing, or vulnerable to, poverty and social exclusion and to those covered by equality legislation. The Combat Poverty Agency, National Disability Authority and the Equality Authority can advise on this. Source:CustomerCharterGuidelines


42

Chapter 3: The Published

Charters


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3. The Published Charters3.1 IntroductionThisChapterreviewstheCustomerCharterdocumentsaspublishedbythe30DepartmentsandOfficescoveredbytheCharterInitiative.Itlooksat:

whetherall30organisationshavethem;

whentheywerepublishedandwhetheranyhavebeenupdated;

theiroverallnatureandstructure;

theirmoredetailedcontent;

differencebetweenCharters;

thenatureandextentofquantificationoftargets;

theextentoffocusonfinalcustomersoronotheruserswithinthePublicService;

therelationshipbetweenthepublishedCharterandotherstrategicstatements.

Theanalysisisdoneona“horizontal”basis,allowinganalysisoftheextenttowhichtherearesimilaritiesacrossGovernmentDepartmentsandOffices,andacrossdifferenttypesoforganisations,e.g.thoseprimarilyservingthepublicdirectlyandthoseofamorepolicy,regulatoryandfundingnature.

TheChapterlooksexclusivelyatthepublishedCharters,especiallyaspublishedonwebsites.ThisisanappropriatewaytoassesstheChartersfortworeasons.Firstly,itisoneofthetasksintheTermsofReference.Secondly,thisishowanexternalcustomerwouldbelikelytousetheCharter.Otherwiderinformationatourdisposal,includingrelatedinformationintheCustomerActionPlans,isdrawnoninlaterChapters.

TheChapterlooksseparatelyattheCustomerChartersofthe15GovernmentDepartmentsandthe15Offices.Thisisdoneforpracticalreasons,astableswith30rowsorcolumnswouldbeunwieldyandhardertoexamineandinterpretinareport.

3.2 Do all Departments/Offices have Charters and when were they published?

3.2.1 Existence of Charters

All30DepartmentsandOfficescoveredbytheCustomerCharterprocesshavepublishedCharters.Inonecase,theValuationOffice,thereisa“RatepayersCharter”whichissimilartoaCustomerCharter.

AfewDepartmentsandOfficeshaveproducedmorethanoneCharter,withtheseaddressedatdifferentcustomergroupsorfunctionse.g.theHousesoftheOireachtashaveproducedthreeChartersandearlyin2007willproduceafourth.TheirChartersareforPoliticalStaff,Members,thePublicandStaff(thelatterbeinganinternalCustomerCharter).AnumberoforganisationsalsohaveadditionalassociateddocumentsalongsidetheirCharter.Revenue,forexample,hasaseparate“CustomerServiceStandards”leaflet,andtheDepartmentofAgricultureandFoodhasalsopublishedadetailed“Charter

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ofRightsforFarmers”.ButonthebasicrequirementthatallDepartments/OfficeshaveapublishedCustomerCharter,theinitiativehasbeensuccessful.

3.2.2 Date of Publication

AsnotedinChapter2,theGuidelinesforPreparationofCharterssuggestthattheChartershouldincludethedateofpublication.Figures3.1and3.2showthedatesoftheCharterswherethishasbeenpublished.OnlyeightDepartmentsandeightOfficesgiveadatefortheirCharters,eveninthosecasesthedateisnotalwayspartoftheactualCharterbutisshownonthelinkfromthewebsite.

Figure 3.1: Customer Charter Existence and Year of Publication - Departments.

Department Number of charters Year of publication

AgricultureandFood

Arts,SportandTourism

Communications,MarineandNaturalResources

Community,RuralandGaeltachtAffairs

Defence

EducationandScience

Enterprise,TradeandEmployment

Environment,HeritageandLocalGovernment

Finance

ForeignAffairs

HealthandChildren

Justice,EqualityandLawReform

SocialandFamilyAffairs

Taoiseach

Transport

1

1

1

1

1

1

1

1

1

1

1

1

1

1

2

2005

Not specified

Not specified

Not specified

2004

2004

2004

2004

2004

Not specified

2004

2005

2004

Not specified

Not specifiedSource:AnalysisofWebsites/CustomerCharters


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3.3 “Visibility” of Customer Charters on Websites TheGuidelinesforPreparationofCustomerCharterscorrectlyemphasisetheimportanceofaccessibilityofCharters.Publicawarenessoftheirexistenceandcontentsisafundamentalpre-conditionofthemhavinganydirectbeneficialeffectoncustomerservice.Theycouldofcoursestillhaveanindirectoneviaimprovingtheorganisation’sownperformance.

TheGuidelinesstatethat“theCustomerChartershouldbeprominentlydisplayedontheorganisation’swebsite,ataminimumalinktotheCustomerCharterfromthehomepageandanyotherpagefocusedoncustomerservice”.Figures3.3and3.4showtheirvisibilityofChartersonwebsites.ForDepartments,sixhavehighvisibilityinthesenseofdirectlinksfromthehomepage,fourhavemediumvisibilitywithlinksvia“CustomerService”,andfivehavelowvisibilitywithnoobviouslinksandrequiringsearchesofthewebsites.ForOffices,fourofthe15havehighvisibilitywithdirectlinks,sixhavemediumvisibilitywithlinksthroughpublicationsor“CustomerService”,andfourhavenodirectlinks.

Figure 3.2: Customer Charters Existence and year of Publication - Offices

Office Number of charters Year of publication

CentralStatisticsOffice

CourtsService

PublicRegistrationOffice

AttorneyGeneral

ChiefStateSolicitor’sOffice

HousesofOireachtas

DirectorofPublicProsecutions

OfficeofPublicWorks

RevenueCommissioners

OrdnanceSurvey

PublicAppointmentsService

StateLaboratory

StateExaminationsService

ValuationOffice

OfficeofRefugeeApplicationsCommissioner

1

1

2

2

1

4

1

1

1

1

1

1

1

1*

2

2005

2004

Not specified

Not specified

Not specified

2006

2004

Not specified

Not specified

2006

Not specified

2004

2005

2004* A “Ratepayers Charter”.

Source:AnalysisofWebsites/CustomerCharters


47

SomeCustomerChartersarealsodifficulttoopenontheinternetasthedocumentsareverylargeduetoinclusionofphotographs,graphicsetc.

SomeDepartmentsandOfficeshavenowembeddedtheirCustomerChartersintheirCustomerServiceActionPlans,thusreducingitsseparatevisibilityandprofile.

AsdescribedinChapter4,manyorganisationsalsopublicisetheirChartersinotherways,e.g.inreceptionareas.Nevertheless,giventhelikelihoodthatmanycustomersmaynotvisitofficespersonally,andtheimportanceandpotentialofwebaccess,thelevelofdirectvisibilityonhomepagesislow(lessthanhalfofDepartmentsandone-quarterofOffices).

Figure 3.3: Customer Charter “Visibility” on Websites – DepartmentsDepartment Web Access Comment

AgricultureandFood




Defence

EducationandScience



Finance

ForeignAffairs

HealthandChildren



Taoiseach

Transport

Low

High

Medium

High

High

Low

Medium

High

Low

Medium

Medium

High

Low

High

Low

No link from home page

Direct link on home page

Home page link to “Customer Service”







Home page link to “Services to Public”





No link from home pageSource:AnalysisofWebsites/CustomerCharters


4�

3.4 Structure and Content of Published Charters

3.4.1 Common Topics

AsnotedinChapter2,theGuidelinesforPreparationoftheChartersemphasisedthatChartersshouldbetailoredtothecircumstancesandcustomerbaseoftheDepartment/Office.ItshouldnotseektocovereverythingdonebyaDepartment/Officebutfocusonwhatisimportanttocustomers.Accordingly,theGuidelinesdeliberatelyleaveconsiderablescopeforflexibilityamongtheChartersofDepartmentsandOffices.

Figures3.5and3.6giveanoverviewofthenature,structureandcontentofChartersandindicatethesimilaritiesanddifferencesbetweenthem.Thetablesshowawide,butnotuniversallevelofreferencetothetwelveQCSPrinciplesi.e.QualityServiceStandards,Equality/Diversity,PhysicalAccess,Information,TimelinessandCourtesy,Complaints,Appeals,ConsultationandEvaluation,Choice,OfficialLanguagesEquality,BetterCo-ordinationandInternalCustomer.

Figure 3.4: Customer Charter “Visibility” on Websites – Offices Office Web Access Comment


CourtsService


AttorneyGeneral


HousesofOireachtas(3separateChartersforPoliticalStaff,MembersandStaff.AfourthCharterforthepublicwillbelaunchedin2007)


OfficeofPublicWorks


OrdnanceSurvey


StateLaboratory


ValuationOffice


Low

High

Medium

Medium

Medium

High

Low

Low

High

Medium

Low

Medium

High

Low

Medium



Home page link to “Publications”

Home page link to “Quality Customer Service”

Home page link to “Quality Customer Service”

Home page link to “Publications”, however documents may not open due to

large size (colour pictures).









Home page link to “Customer Service”Source:AnalysisofWebsites/CustomerCharters


49

ThereisalsoalargeareaofcommonalitybetweentheCharters,especiallyamongtheDepartmentsinthe“KeyCommonTopics”listedintheupperhalvesofthetables.AlmostallDepartmentalCharterscontainanintroductorymissionstatementanddealwithcontacts/communicationswithcustomers,provisionofinformation,Irishlanguageservices,complaintprocedures,equality/diversityandconsultation.ThiswouldappeartoreflectboththeindicationsgiveninthisregardintheGuidelines,andalsoinassociatedtraining.

WhilemostOfficescoverthesametopics,thereislesshomogeneitythaninthecaseofDepartments.Inparticular,RevenueandtheStateLaboratoryhavetakendifferentapproaches.InthecaseoftheStateLaboratory,theyhaveadoptedatotallydifferentapproachtotheirCharterusinginternationalstandards,accreditationandServiceLevelAgreementswithcustomers.ThisapproachappearsappropriatetothedistinctserviceandcustomerbaseoftheLaboratory.InthecaseoftheRevenueCommissioners,thereasonsfordeparturereflectpracticesthatithaddevelopedpriortothepublishedGuidelines.MostotherDepartmentsandOfficesbroadlyappeartofollowtheGuidelinessuggestions.

3.4.2 Other Topics

ThelowerhalfofFigures3.5and3.6,headed“SelectedOtherTopics”,giveasenseofthewiderangeofotheritemsthatarereferredtoinindividualCharters.Anumber(DepartmentsofTaoiseach;Environment;ForeignAffairs;Justice;Transport;theAttorneyGeneral’sOffice;andtheHousesoftheOireachtas)haveincludeddefinitionsoftheircustomerbase.Thisisanissuewhichmaymeritgreaterattentioninthefuture.

Inthisregard,thedecisionsoftheValuationOfficetonameitsChartera“Ratepayers’Charter”andoftheDepartmentofAgricultureandFoodtoproduceaseparate“CharterofRightsforFarmers”indicatetheirviewsastowhoaretheirmaincustomers.

DepartmentshavebeenmoreforthcominginDefiningCustomersandinSubmittingApplicationsandClaims.OthertopicssuchasMediaServices,FreedomofInformation,PolicyDevelopmentandImplementationandCo-ordinationwithDepartmentsandAgenciesreceiveoccasionalmentionandcouldnotbeconsideredessentialelementsofmostCharters.TimelinessandCourtesyisastrongfocusforOffices,withalesseremphasisonSpecialNeedsAccess,CustomerServiceEthos,ConfidentialityandSubmittingApplicationsandClaims.


50

Figure 3.5: Summary Of Content Of Charters - Departments

TOPICS Taois

each

DAF

DAST

DCMN

R

DCRG

A

DoD

DES

DETE

DEHL

G

DoF

DFA

DHC

DJEL

R

DSFA

DoT

Key Common Topics

Introduction/Mission 4 4 4 4 4 4 4 4 4 4 4 4 4 4 4

Contact by Telephone 4 4 4 4 4 4 4 4 4 4 4 4 4 4 4

Written Correspondence 4 4 4 4 4 4 4 4 4 4 4 4 4 4 4

Visits to Offices 4 4 4 4 4 4 4 4 4 4 4 4 4

General Information 4 4 4 4 4 4 4 4 4

Websites 4 4 4 4 4

Service through Official Languages 4 4 4 4 4 4 4 4 4 4 4 4 4

Complaints and Appeals 4 4 4 4 4 4 4 4 4 4 4 4 4 4 4

Equality and Diversity 4 4 4 4 4 4 4 4 4 4

Consultation and Feedback 4 4 4 4 4 4 4 4 4 4 4

Evaluation and Reporting 4 4 4 4 4 4 4 4 4

“Help Us to Help You” 4 4 4 4 4 4 4 4 4 4

Contact Details 4 4 4 4 4 4 4 4 4 4 4 4 4 4

Selected Other TopicsDefinition of Customers 4 4 4 4 4

Customer Service Ethos 4 4

Policy Development and Implementation 4

Timeliness and Courtesy 4 4 4 4 4 4 4 4 4

Media Services 4

Special Needs Access to Services 4 4 4 4 4

Meetings 4 4

Freedom of Information 4 4 4

Security and Confidentiality 4

Submitting Applications and Claims 4 4 4 4 4

Co-ordination with Departments and Agencies 4

Source:AnalysisOfWebsites/CustomerCharters.


51

Figure 3.6: Summary Of Content Of Charters - Offices

TOPICS CSO

Cour

ts Se

rvice

Publi

c Reg

istrat

ion Au

thori

ty

AG CSSO

Hous

es of

Oirea

chtas

DPP

OPW

Reve

nue

OSI

Pub A

ppts

Comm

State

Lab

State

Exam

s Com

m

Valua

tion O

ffice

Refug

ee Ap

plica

tions

Comm

Key Common Topics

Introduction/Mission 4 4 4 4 4 4 4 4 4 4 4

ContactbyTelephone 4 4 4 4 4 4 4 4 4 4

Written Correspondence 4 4 4 4 4 4 4 4 4 4 4

Visits to Offices 4 4 4 4 4 4 4 4

General Information 4 4 4 4 4 4 4 4 4 4 4 4 4

Websites 4 4 4 4 4 4 4 4 4 4 4

Service through Official Languages 4 4 4 4 4 4 4 4 4

Complaints and Appeals 4 4 4 4 4 4 4 4 4 4 4 4 4 4 4

Equality and Diversity 4 4 4 4 4 4

Consultation and Feedback 4 4 4 4 4 4 4 4 4 4 4

Evaluation and Reporting 4 4 4 4

“Help Us to Help You” 4 4 4 4 4 4 4

Contact Details 4 4 4 4 4 4 4 4 4 4 4 4

Selected Other TopicsDefinition of Customers 4 4 4 4 4

Customer Service Ethos 4 4 4 4 4 4 4 4 4 4

Policy Development and Implementation

Timeliness and Courtesy 4 4 4 4 4 4 4 4 4 4 4 4 4 4

Media Services

Special Needs Access to Services 4 4 4 4 4

Meetings 4 4 4

Freedom of Information 4

Security and Confidentiality 4 4 4 4 4 4 4 4 4

Submitting Applications and Claims 4 4 4 4

Co-ordination with Departments and AgenciesSource:AnalysisOfWebsites/CustomerCharters.


52

3.4.3 Length of Charters

TheGuidelinesareverystrongontheneedforbrevityinCharters,indeeditisseenasoneoftheirdefiningfeatures.Chartersaretypically1-3pagesinlength.TherangevariesconsiderablyfromasinglepageinthecaseoftheValuationOfficeandStateLaboratorytofourhighquality40pagebookletsproducedbyTheHousesoftheOireachtas.

Layouthasamajorimpactonlength,withsomeusingplaintextandothersincludingalargeamountofartwork/photographs.AlsosomeChartershavetheirEnglishandIrishversionsonthesamedocument(e.g.DepartmentofForeignAffairsandHousesofOireachtas)whichincreasesapparentlength.

3.5 What the Charters Typically Contain (under Main Headings)

WhilethereisaconsiderablevarietyintheCharters,theytypicallycontainthefollowingcontents.

Introduction/Mission Statement–whattheorganisationdoes(andinsomecaseswhatitdoesnotdo)intermsofmainfunctionsandacommitmenttocustomerservice.

Contact Details–coveringtelephones,correspondenceandpersonalcallersincludinginmostcasestargettimesforresponses.Mostorganisationsincludetargetsforresponsetimesforcommunications.(ThesearelookedatingreaterdetailinFigure3.7below).

Website–whatthewebsitedoesforcustomers.

Official Languages–commitmenttodealwithbusinessinIrishandtomeetrequirementsoflegislation.TheOfficeoftheRefugeeApplicationsCommissionerspublishestheirCharterinEnglish,Irish,French,RussianandArabic.

Complaints and Appeals–howtomakeacomplaintorappealwithcontactdetails.InmanycasesthisincludesdetailsofhowtocontacttheOmbudsman.

Equality/Diversity–commitmenttomeetrequirementsoflegislation.

Consultation, Feedback, Evaluation and Reporting-generalreferencestoproceduresfortakingaccountoftheviewsofcustomersandtomonitoringprogressandreportingonresults.Invitationtosubmitfeedback/suggestionsforimprovedservice.Thereiswidevariationinthisarea.

Help Us to Help You–explanationofwhatcustomerscandotoassistorganisationstoprovideaqualityservice,e.g.provideclearinformationincludingreferencenumbers,followproceduresandtreatstaffwithrespect.

Contact Details–addressesofheadquarters,localoffices,telephone/Lo-Callnumbers,emailaddressesandwebsites.Insomecasesthistakestheformofareferencetoawebsiteforcontactdetails.

Timeliness and Courtesy–generalcommitmenttodealwithcustomersinatimelyandcourteousmanner.

Special Needs Access–referencetoprovisionofaccesstofacilitiesforpeoplewithdisabilities.

Freedom of Information–crossreferencetoFOIprocedures.


53

Security and Confidentiality–referencetoarrangementstoensuresecurityandconfidentialityofcustomers’information.

Applications and Claims –informationonhowtosubmitapplicationsandclaimsandacommitmenttodealwithcomplaintsfairlyandpromptly.

Legal Disclaimer–inaminorityofcasesastatementisincludedthattheCharterisnotlegallybindinganddoesnotconveyadditionallegalrightsonthecustomer.

Asnotedalready,inamajorityofcasesChartersdonotexplicitlyidentifywhotheyregardtobethecustomerstowhomthesecommitmentsaremade.TheprincipalexceptionsaretheHousesoftheOireachtaswhichhasproducedfourCharters,theAttorneyGeneral’sOfficewhichproducestwoChartersandtheDepartmentofTransportwhichalsoproducestwoCharters,oneforeachcustomergroup.WereturntothisissueinChapter7.

3.6 Evaluation and Reporting

3.6.1 Overview

EvaluationisemphasisedintheGuidelines.ItisalsooneofthetwelveQCSPrincipleswhichstatethat“intheirdealingswiththepublic,CivilServiceDepartmentswillensuremeaningfulevaluationofservicedelivery”.

EightDepartmentsandfourBodiesrefertoEvaluationandReportingintheirpublishedCharters.Thesereferencestendtobegeneralstatementssuchas“Wewillcontinuetomonitorourperformancedirectlywithourcustomersinavarietyofways”.ThisisarguablyanareaofweaknessinthepublishedCharters.WhilecognisantoftheneedtokeepChartersbrief,thereisacasethattheyshouldcontainanexplicitcommitmenttoregularevaluations,includingpublicationoftheresults.ThisisnomorethanisrequiredinAnnualReports.ThisislookedatagaininChapter5,whichexaminesevaluationandreportinginpractice,withparticularreferencetoAnnualReports.Therethesituationissomewhatbetterinpractice,soChartersarguablyundersellthemselvestoanextentinthisregard.


54

Figure 3.7: Customer Charter Quantified Targets – DepartmentsDepartment Do Targets

Exist?Targets Quantified

AgricultureandFood




Defence

EducationandScience



Finance

ForeignAffairs

HealthandChildren



Taoiseach

Transport(TwoCharters)

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Yes

Reply to correspondence within 20 working days.

5 separate targets for responses to communica-tions.

3 separate targets for responses to communica-tions.

4 separate targets for responses to communica-tions and complaints.

2 separate targets for responses to written cor-respondence.

7 separate targets for responses to communica-tions and complaints.

3 separate targets for responses to communica-tions and 5 separate targets for provision of

services e.g. Redundancy Payments, Work Permits.

3 separate targets for response to communications

and complaints.

Respond to correspondence within 15 working days.

Response to correspondence within 20 working days. Issue passports within 10 working days via

Passport Express, otherwise 20 working days.

2 targets for responses to communications.

Target for response to correspondence and response to complaints.

Target of answering all telephone calls in 30 seconds.

11 separate targets relating to response times, publications on website, papers for meetings, zero

complaints on equality/diversity grounds.

Separate targets for responses to communications and complaints.



55

Figure 3.8: Customer Charter Quantified Targets – OfficesOffice Do Targets

Exist?Targets Quantified


CourtsService

PropertyRegistrationAuthority

AttorneyGeneral(TwoseparateCharters)


HousesofOireachtas


OfficeofPublicWorks


OrdnanceSurvey


StateLaboratory


ValuationOffice


Yes

Yes

Yes

Yes

Yes

No

No

Yes

No

Yes

Yes

No

Yes

Yes

Yes

Answer 90% of phone calls within 20 seconds. Reply to letters within 5 working days. Reply to emails to [email protected] within 2 working days.

Reply to letters within 15 working days. Reply to emails within 7 working days.

7 separate targets are included all related to timeliness of delivery of service.

Acknowledge correspondence within 3/5/7 working days. Respond to requests for advice within 7 working days. Respond to written requests for information on progress within 10 days. Voicemail replies within 24 hours.

New items to be assigned within 3 working days.

Acknowledge correspondence within 7 working days.

Acknowledge all written enquiries and give comprehensive reply to 95% within 20 working days. Respond to issues on website within 20 working

days.

Targets in separate documents.

10 separate targets relating to response times for contacts, orders and complaints.

Phone calls to be answered promptly (within 10 seconds). Acknowledge all written enquiries within 3 working days and reply within 10 days.

Operate within a documented quality system (ISO/IEC 17025) and obtain and hold accreditation from the Irish National Accreditation Board (Ref. no.

146T). Agree standards of service with customers (Service Level Agree-ments) including targets for sample turn around times.

Answer 90% of telephone calls within 30 seconds. Answer 90% of cor-respondence within 15 working days and send an interim reply/explanation

to others within 15 working days

Where telephone and personal caller queries cannot be answered im-mediately, there will be a call back within 2 working days. Routine written

requests will be answered within 10 working days. Non-routine requests will receive an interim reply within 5 working days with a target response date.

Complaints will receive a response within 10 working days.

Acknowledge complaints within 5 working days and full response within 20 working days. Similar targets for complaints.



56

3.6.2 Quantified Targets

AllDepartmentsandmostBodiesincludequantifiedtargetsintheirCharters.Tables3.7and3.�summarisethetargetsthathavebeenadopted.Inmostcasesthetargetsareforresponsestocommunications.Inasmallnumberofcasestheyrelatetotheactualprovisionofservicesbytheorganisation.Theseare:

DepartmentofEnterprise,TradeandEmploymenthassetfiveseparatetargetsforpaymentofRedundancyPaymentsandInsolvencyPayments,forissuingofWorkPermitsandforImportandExportLicences.

DepartmentofForeignAffairshastargetsforissueofPassports.

DepartmentoftheTaoiseachhas11servicetargets.

StateLaboratoryoperatestoexternallyassessedqualitystandardsandalsoagreesstandardsofservicewithcustomers.

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Figure 3.9: Customer Charter Target Response Times: Telephone – Departments

Department Target Response Time Seconds

Comment

AgricultureandFood




Defence

EducationandScience



Finance

ForeignAffairs

HealthandChildren



Taoiseach

Transport

Not specified

90% within 15 seconds

20 seconds

20 seconds

Not specified



10 seconds average

Not specified

Not specified

20 seconds

Not specified

30 seconds



Voicemails will be returned within 1 working day






57

Targetsforprovisionofservicestocustomersarelikelytobeofgreatersignificanceforcustomersthantargetsfortimesforrespondingtotelephonecalls.Mostexternalcustomersmightregardthelattertobenomorethanpartofnormalday-to-dayoperationsoftheorganisationsandnottobeworthyofbeingasoletargetinaCustomerCharter.

Figure 3.10: Customer Charter Target Response Times: Telephone – Offices

Office Target Response Time Seconds

Comment


CourtsService


AttorneyGeneral


HousesofOireachtas


OfficeofPublicWorks


OrdnanceSurvey


StateLaboratory


ValuationOffice



Not specified

Not specified

Not specified

Not specified

Not specified

Not specified

Not specified

Not specified

25 seconds

10 seconds

Not specified


Not specified

Not specified

Replies to voicemail within 1 day

Targets in separate documents

Charter says “as quickly as possible”Source:AnalysisofWebsites/CustomerCharters


5�

3.6.3 Target Response Times

Theprincipalquantifiedtargetsrelatetoresponsetimesfortelephonesandcorrespondence.Figures3.9and3.10showthetargetresponsetimesfortelephones.ThetargettimesspecifiedinpublishedChartersvaryfromaminimumof10secondstoamaximumof30seconds,with20secondsbeingthemostfrequentlyadopted.AstandardisationofresponsetimesacrossthePublicServicemightseemdesirable,butasallofthetargettimesappearreasonablyprompt,impositionofacommonstandardmightnotbringsignificantbenefitsforcustomers.Indeed,withincreasingautomationofpublictelephoneresponsesystems,coupledwithgrowingusageofvoicemailandrelianceonwebsites/e-mail,theemphasisontargetsfortelephoneresponsetimesisopentoquestion.Also,someresponsetimesrelateonlytotelephonesbeing“pickedup”,nottothesubstantiveissuebeingaddressed.

Figure 3.11: Customer Charter Target Response Times: Correspondence – Departments

Department Target Response Time Days Comment

AgricultureandFood




Defence

EducationandScience



Finance

ForeignAffairs

HealthandChildren



Taoiseach

Transport

20 working days where possible

95% within 20 working days

20 working days


15 working days where possible.

15 working days for letters and emails


15 days for letters and emails


20 working days

15 days

20 working days

Not Specified

15 working days for letters and emails

Letters 90% within 15 working days. Emails 90% within 12 working days

Otherwise interim reply










Will keep informed of prog-ress should delay arise.






59

Figures3.11and3.12showthetargetresponsetimesforcorrespondence.AllDepartments(excepttheDepartmentofSocialandFamilyAffairs)andtenofthe15Officeshavepublishedresponsetimes.

Fortheorganisationsthathaveadoptedtargets,thereisarangefromaminimumoftwodays(exceptional)toamaximumof20days.Thelargemajorityfallintherange10-20workingdays,andmostChartersaddacaveatthatwhereafullreplycannotbeissuedinthetargetperiodaninterimresponsewillissue.Again,whileastandardresponsetimemightseemdesirable,aresponseperiodof10-20daysdoesnotappearunreasonable.Asthecomplexityofissuestobedealtwithvarieswidely,somevariationinresponsetimesisnotunreasonable.

Figure 3.12: Customer Charter Target Response Times: Correspondence – Offices

Office Target Response Time Days Comment


CourtsService


AttorneyGeneral


HousesofOireachtas


OfficeofPublicWorks


OrdnanceSurvey


StateLaboratory


ValuationOffice


Letters 5 working days. Emails to [email protected] 2 working days.

Letters 15 working days. Emails 7 working days

Not Specified.

Acknowledgement within 3/5 working days.

Acknowledgement of letters/emails within 7 working days.

Not Specified.

Not Specified.

95% within 20 working days.

Not Specified.

10 days.

10 days.

Not Specified.

90% within 15 working days.

10 days for routine requests for letters and emails.

20 working days.

Otherwise reply with date of reply.

Otherwise interim reply.

Target times given for searches etc.

Targets in separate documents.


Including faxes and emails.


Otherwise interim reply within 5 days.



60

Chapter 4: The Customer

Charter Process in Practice


62

4. The Customer Charter Process in Practice4.1 IntroductionThisChapterdescribestheprocessofCharterpreparation,formulationandimplementationwithinthe30GovernmentDepartmentsandOfficesincludedwithinthescopeoftheevaluation.Astandardchecklistofissueswassenttoeachorganisation,andfeedbackwasreceivedthroughamixofcompletionbytheorganisationorbytheconsultantsbasedondiscussionwiththeorganisation.TheChapteraddresseseachissuethematicallyinturn.Assuch,thefollowingsectionsdescribe:

theoriginalprocessofCharterpreparation;

thenatureoftargetsandcommitmentsmade;

theevaluationprocess;

targetsandindicatorsinpractice;

reportingcommitmentsandprocesses;

linkstootherprocesses;and

challengesandfuturedevelopments.

ResponsesgenerallyreflecttheviewsofQCSOfficers,typicallyinconsultationwithcolleagues.Thelatterwasespeciallyapplicablewhereoriginalpersonnelhadchanged.

4.2 Original Preparation Process

4.2.1 Origins of the Process

Themajorityofthe30Departments/OfficesdraftedandpublishedtheirChartersin2004/2005.ThreeorganisationshadrelevantChartersinplacepriortothis(theRevenueCommissioners,whichhadaCharterinplacesince19�9,theDepartmentofAgricultureandFood,whichhadaFarmer’sCharterinplacesince1996,andthePublicAppointmentsService,whichhadpublishedafirstCharterin2000).ThemostrecentlypublishedCharterwasthatoftheOfficeoftheHousesoftheOireachtas,whichpublisheditsfirstCharterinMay2006.

Thecentrally-ledCharterprocessprovidedtheimmediateimpetusfornearlyalloftheorganisations.AminorityoforganisationsfeeltherewasalsoasignificantinternalimpetusbehindtheirpreparationofCharters:

theDepartmentsofTransportandForeignAffairs,bothofwhichreportthattherewasstronginternalawarenessthatsomepolicycommitmentsandimprovementstocustomerstandardswereneeded,particularlyintheir(smallnumberof )customer-facingactivities;

theRevenueCommissioners,whichhadalong-standingprocessofcustomerserviceimprovementunderway,andaCustomerCharterdatingfrom19�9;and

thePublicAppointmentsService,whichhadbegunamajorprocessofcustomerserviceimprovementin2000.

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63

OtherissuesthatgaveimpetustothepreparationprocessmentionedbytheorganisationswerecommitmentsunderSustaining ProgressandintheirownSustainingProgressActionPlansand,(inthecaseoftheDepartmentofCommunications,MarineandNaturalResources)therestructuringoftheDepartmentin2002.

4.2.2 Organisational Features Relevant to the Process

AnumberofinternalstructureswereestablishedtooverseethepreparationofCharters,themostcommonbeing:

Sub-groupsoftheorganisation’sPartnershipCommittee;

QCSLiaisonPanels/OfficerNetworks/Committees;

SteeringCommittees,orad-hocWorkingGroups;and

Cross-divisionalWorkingGroups.

Amongthe23suchstructuresofwhichdetailsweregiven,14remaininplace,while9weredissolvedordisbandedfollowingthepublicationofCharterswiththeiractivitiesnolongerconsideredrequired,orelsesubsumedintotheresponsibilitiesofotherdivisionsorstructures.

4.2.3 Type of Charter Chosen

FormostorganisationstheformtheCharterwouldtakewasastraightforwarddecision,withmostselectingasimple,shortdocument,reflectingtheGuidelinesonCharterpreparation,andwithoutsignificanttailoringofstandardsorcommitmentstospecificcustomertypesorserviceusers.Indeed,manystatethatadoptingsuchagenericformatwasnecessarygiven(a)thewideanddiverserangeofactualandpotentialcustomersoftheorganisation,(b)theneedtomaketheCharterremainrelevantovertimewithoutneedforregularupdating,and(c)theneedtomakethedocumentshortandsuccinct.Inrelationtopoint(b)itshouldbenotedthat,whileallowingforthepossibilityofalong“shelf-life”,theCharterGuidelinesdonotparticularlyemphasisethisanddorecommendregularreview.

Asmallnumberoforganisationsdepartedfromthisgeneralapproach:

theDepartmentofTransport,whichdecidedtoprepareseparateChartersfortwodistinctcustomergroups(roadhauliersanddrivertestingcustomers);

thePropertyRegistrationAuthority(previouslytheLandRegistry),whichoptedtoprepareseparateChartersforcustomersoftheLandRegistryandtheRegistryofDeeds;

theOfficeoftheHousesoftheOireachtas,whichoptedtopreparefourseparateCharters,forOireachtasMembers,forthepoliticalstaffofMembers,forstaffoftheOfficeitself,andforindividualsworkingwith,visitingorcontactingtheOireachtas.

Twoorganisationsfeltthedocumentshouldnotnecessarilybecalleda“CustomerCharter”intheircase:

theOfficeoftheDirectorofPublicProsecutions,whichfeltthename“QualityServiceCharter”wasmoreappropriate,inthatitworksonbehalfofallcitizensofthestate,butdoesnotandcannotworkonbehalfofindividual“customers”whenfulfillingitsremitofprosecutinglegalcases;and

theValuationOffice,whichfelttheterm“RatepayersCharter”wasmoreappropriategivenitsactivitiesandcustomers.

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64

4.2.4 Steps in the Charter Preparation Process

WeaskedQCSOfficerswithinthe30organisationstodescribethenatureoftheCharterpreparationprocess.Thefollowingspecificmethodsandprocesseswerecited:

preparationsanddiscussionsatthelevelofPartnershipCommittee(orasub-committeethereof )featuredinapproximatelyonequarterofcases;

externalcustomersurveyswerecitedinjustoverhalfofthecasesthatgavedetails,spreadquiteevenlyacrossDepartmentsandOffices;

internalconsultationwithstaff,throughsurveys,focusgroups,QCSliaisonofficernetworksandpanels,andothermeanswerementionedinmostcases;

useofformalstaffsurveyswascitedinfourcases;

theuseofexternalcustomerfocusgroupswerementionedspecificallyinfivecases;

theuseofweb-basedconsultationchannelswasmentionedinfourcases;

thepublicinvitationofsubmissionswascitedinthreecases;

thecommissioningofanexternalconsultancytooverseetheprocessaswellasundertakesurveysandinquirieswascitedinthreecases;and

theundertakingofspecificstafftrainingincustomerservice,throughCMOD,wasmentionedinthreecases.

Othermethodsusedincludedtheexaminationofinternationalpracticeofsimilarbodies,non-specificinvitationsforstaffinput/comments,directmeetingswithcustomersorclientsoftheorganisation,andmeetingswithotheragenciesthatcomeundertheaegisofaDepartment/Office.Formalandinformallinkswithcolleaguesincounterpartbodiesabroadaidedthefirstofthese.Manypublicbodies,especiallymoretechnicalorspecialistones,havecloseprofessionalcontactwithcolleagueselsewhereintheEUandmorewidely.EU,OECDandotherinternationalforaareanaspectofthis.

TheGuidelinesforthePreparationofCustomerChartersplayedacentralroleinthepreparationoftheCharters.Allbodiesreportusingtheseguidelines,andmanydrewheavilyfromtheminpreparingtheirownCharter.

ManywerealsoverycomplimentaryabouttheirqualityandvalueinassistingthepreparationoftheirownCharters.Ineightcases,theQCSOfficersrecalledtheirhavingbeenstrongbutnottotalrelianceon(norcompliancewith)theGuidelines,withtheevaluationofpriorandexistingcustomerinitiatives,surveys,andprocessesplayinganequallyimportantpart.Inevitably,thosealreadyhavinghadChartersalsodrewlessheavilyontheGuidelines.

4.2.5 Initial Research

Whilethe30organisationsrevieweddifferverywidelyintermsoftheirsizes,remits,activities,customerbasesandextentofdirectcustomerinteraction,preparationprocessesandmechanismsdonotappeartohavebeenaffectedbythesedifferencesallthatmuch.However,somepatternsareapparent.

ExternalcustomersurveyswereundertakenbybothOfficesandDepartmentswithlargedirectcustomerbases(e.g.theDepartmentsofSocialandFamilyAffairs;EducationandScience;and

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65

Environment,HeritageandLocalGovernment)aswellasDepartmentsthathaverelativelylittleinteractionwithindividualcustomersandthathavemoreofapolicythanacustomer-facingrole(e.g.theDepartmentsoftheTaoiseach;Finance;Transport;ForeignAffairs;Justice,EqualityandLawReform;Arts,SportandTourism;andDefence).Similarly,theorganisationsthatdidnotmentioncustomersurveysaspartofpreparationsalsospanthoseforwhomdirectinteractionwithlargenumbersofcustomersisrelativelyhigh(e.g.theDepartmentsofAgricultureandFood,andtheOfficeoftheRefugeeApplicationsCommissioner),andthoseforwhomsuchdirectinteractionislikelytobelow(e.g.theStateLaboratory).

Thetypesofsurveysusedandtheidentificationofsurveytargetpopulationsdoappeartohavebeeninfluencedbytheroles,functionsandclientgroupingsoforganisations.Manythatundertooksurveystargetedspecificgroupsofcustomersoftheorganisation.Examplesincludethefollowing:

theDepartmentofEducationandSciencewhichfocusedonteachers;

theDepartmentoftheEnvironment,HeritageandLocalGovernment,whichtargeted,interalia,localauthorities;

theDepartmentofForeignAffairs,whichtargetedpassportapplicants;

theCourtsServicewhichtargetedbarristers,solicitors,anGardaSiochána,thePrisonService,theProbationandWelfareServiceetc;

thePropertyRegistrationAuthority,whichtargetedfinancialinstitutions,solicitorsandlawsearchingagencies;

theDepartmentoftheTaoiseachwhichtargetedsocialpartnersandotherstakeholderrepresentatives.

Theothertypeofresearchcarriedoutbysomeorganisationswas“mysteryshopping”.However,thiswasonlydoneinaminorityofcases.

4.2.6 Other Consultations

OtherconsultationprocessesadoptedinthepreparationofChartersappeartohavebeenreasonablyextensive.Inpracticallyallcasestheyinvolvedsomelevelofcustomerconsultations(bywayofeithersurveys,focusgroupsand/orinterviews)andstaffconsultations(bywayofsurveys,internalpanelsandworkshops,requestsforstaffcomments,discussionpanelsand/orQCSOfficerliaisonmeetings).Furtherconsultativeprocesseswerecarriedoutbymanyincludinginvitationstothepublicforcomment(throughpressadvertising),theuseofcommentcardsatkeyofficesandlocations,onlinefeedbackthroughorganisationwebsites,consultationwithotherGovernmentDepartmentsandpublicbodiesinIreland,andconsultationwithagenciesandofficesundertheaegisoftheDepartmentororganisationinquestion.

ConsultationimpactedonthedraftingofChartersinnearlyallcases,andalmostallorganisationsconfirmedtheirhavingasignificanteffectonfinalCharters.Examplesofthisincludedhighlightingkeyissuesandconcerns,subsequentlyreflectedinthedraftingoftheCharter,including:

theimportanceofofficeopeninghoursandtheprovisionofrelevantdetailsforcustomers(theDepartmentofAgricultureandFood);

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theimportanceofestablishinganddetailingaformalcomplaintsprocedure(theDepartmentofTransport);

theneedtoestablishmeaningfulQCStargetsandindicators(theDepartmentoftheEnvironment,HeritageandLocalGovernment);

theoverallimportanceofspeedyresponsestoinquiries(theStateExaminationsCommission);

theneedforacorrespondencetrackingsystem(theDepartmentofEnterprise,TradeandEmployment);

theproblemsofphysicalaccesstobuildings,thepoorqualityofbuildingsthemselves,andthepoortelephonesystem(theCourtsService);

staffconcernsabouttheneedtoconsidertheimpactofdecentralisationoncustomerservicegenerally(variousorganisations).

Limitedavailabilityofbase-linedatanecessaryforestablishingtimeframesandforcheckingsubsequentimpact(seeChapter5)suggeststhattheextentofsystematicsurveyworkdoneinthepreparatoryphasemaybemorelimitedthanresponsestoourquestionssuggest.

InaveryfewcasesdidQCSOfficersfeelthatconsultationshadnotaffectedthefinalChartercontentsubstantially:

theDepartmentofForeignAffairs,wheretheywerefelttohavegenerallyconfirmedtheDepartment’spriorbeliefsregardingcustomerservicepriorities;

theDirectorofPublicProsecutions,forwhomtheconsultationsaffirmedtheorganisation’sviewthattheChartershouldbequitegenericandrelatetoprinciplesofQCSforastateprosecutionservice;and

theValuationOffice,whofeltcustomersgenerallytooktheopportunitypresentedthroughconsultationstoairdissatisfactionwiththelevelsofvaluationsandthesubsequentfinancialburdenonratepayers.

4.3 Nature of Commitment Achieved

4.3.1 Creating Consensus/Commitment

VariousprocessesforachievinginternalconsensusandcommitmenttotheCharterwereadoptedbypracticallyallorganisations.Whiletheformalconsultationprocessesthatinputtedintotheirpreparationaredeemedtohaveassistedconsensusandcommitmentbuildinginallcases,arangeofotherprocesseswereadoptedandareconsideredtohavecontributedtoensuringongoingconsensusandcommitment,includingthefollowing:

usingtheorganisation’sPartnershipCommitteeasthemostappropriateentityforapprovingtheCharterandmonitoringitsachievement;

involvingalldivisionsandbusinessunitsinpriorconsultations,andhavingeachreportonprogressinquarterlyreportsandbusinessplans;

byincludingqualitycustomerservicedeliveryaspartofinductiontrainingfornewstaff,andCustomerServicetrainingforexistingstaff;

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byincludingQCSaspectswithinroleprofilesandcompetenciessetoutinformalperformancemanagementsystems;

byhavinghadseniorandwidelyrepresentativesign-offontheChartersbyPartnershipCommittees,ManagementAdvisoryCommitteesandQCSLiaisonCommittees;

byprovidingbriefingsessionstodivisionsandunitsonsurveyresultsandperformanceachievements;

throughholdinginternal“launches”oftheCharter(atboththeleveloftheoverallorganisationandindividualdivisionsandbusinessunits);

byhostinginternalpresentations,seminarsandfamiliarisationsessions;

byallstaffbeinggivencopiesofChartersandCustomerActionPlans;and

byensuringhighinternal“visibility”oftheCharter,forexamplethroughuseofpostersinpublicandprivateofficeswithintheorganisation.

Theprocessofcreatingconsensusaround,and(atleastostensible)commitmentto,theChartersisnotfelttohavebeenparticularlydifficultorchallengingbyanyorganisation.Indeed,manyhaveremarkedthatstaffingeneralgave,andgive,highprioritytocustomerservice,areinmanycasesawareofareasinwhichimprovementsareneeded,andwelcometheadoptionofstandards,commitmentsandprocedurestheprocessformalised.

Manyinformantswouldacknowledgethechallengeofmaintaininginitialcommitmentlevels,whatonepersoncalledhavingtheCharter“livingratherthanlaminated”.WereturntothisimportanttopicinthefinalChapter.

4.3.2 Evidence of Commitment

Ingeneral,mostorganisationsfeelcommitmenttotheCharterishigh,althoughasmallernumberelaboratedontheevidenceofthisthanthosethatconfirmeditspresence.Severalorganisationsthatdidperceivehighcommitmentcitedsubjectiveevidenceandothersconcededalackofempiricalevidence.Amongthetypesofevidenceofhighcommitmentcitedwere:

thatdivisionalreportingonQCSachievementsandprogresstakesplace;

thatmeetingQCSandChartercommitmentsformanintrinsicpartofdivisionalreportingandbusinessplanningthroughouttheorganisation;

theperceivedcommitmentwithwhichtheprocesswasembracedbystaff;

highoveralllevelsofcustomersatisfaction(confirmedinChapter5);

positivestafffeedbackandthepositiveeffectsofcustomerfeedbackonstaff;

perceivedheightenedawarenessoftheCharterandQCSstandardsbystaff;and

alackofresistancetotheprocess.

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4.3.3 Current and Ongoing Commitment

MostorganisationsgavefeedbackconcerningthelevelofcurrentandongoingcommitmenttotheCharters,andalmostallofthesefeltitremainedhigh.Themajorityreferredbacktotheprocessesandachievementsalreadymentioned,suchas:

theprovisionofspecificQCSmodulesininductionandongoingstafftraining;

thewidespreadvisibilityoftheCharter(e.g.onpublicdisplayanddistributedtostaff );

theinclusionofarticlesoncustomerserviceinstaffpublicationsandmagazines;

thecommitmentstoongoingmonitoringandevaluation;

theinclusionofQCScommitmentsandtargetsindivisionalbusinessplanning;

thedeliveryandreportingofCAPobjectivesandachievements;

theinclusionofQCScommitmentsinthePMDS;and

theuseofmonitoringsystems,suchastelephoneresponseandcorrespondencetracking.

Twoorganisationscommentedthattheimpendingdecentralisationprocesshadcreatedanongoingchallengeintermsofmaintaininghighlevelsofawarenessandcommitment,whileafurthertwocommentedthattheyfeltawarenessofandcommitmenttotheCharterspecificallywasprobablylow,howeverthecommitmenttocustomerservicewasfelttobehigh.

FourorganisationshadupdatedtheirCharter:

theRevenueCommissionershadalreadyupdatedtheirearlier19�9Charterin2004;

thePublicAppointmentsServiceupdatedtheirCharterin2004tocomplementtheirnew(2004-07)CAP;

theDepartmentofJustice,EqualityandLawReformupdatedtheirChartertoincludechangesinofficelocationsandcontactpoints;and

theValuationOfficemadesmallcosmeticchangestotheirCharteraspartofareview.

Theremaining26organisationsindicatedtheCharterhadnotbeenupdatedalthough:sixindicatedtheywouldbeupdatedin2007;twoindicatedtheywouldbeupdatedin200�;severalindicatedtheywouldbeupdatedwithoutindicatingwhen;oneindicatedtheCharterwascurrentlybeingreviewed;onesaiditwouldbereviewedandupdatedfor200�-10;oneindicatedtheresultsofarecentcustomersurveywereawaited,butareviewwouldthentakeplace;andoneindicatedthattheoriginalCharterhadbeenreviewed,butthatnochangestoitwereconsiderednecessary.

PlanstochangeordeveloptheCharterprocesshavenotgenerallybeenspecifiedoragreedasyetfororganisationsthathavenotupdatednorreviewedtheirCharters,althoughseveralQCSOfficershadtheirownthoughtsonhowprocessesmightchange.Inmanycasestheorganisationsareawaitinganumberofdevelopmentsbeforereviewingtheprocess,including:

thewiderreviewofCAPs;

theresultsofrecentorimminentcustomersurveys;

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theresultsofmoreformalevaluations;

the“beddingdown”ofnewtechnologiesandprocessesforservicedelivery;

theresultsofthiscentralreviewoftheCustomerCharterprocess;

decentralisationprocessesandthepotentialforfunctionalchangestoDepartmentsfollowingthe2007generalelection;

thecurrentworkofoutsideconsultantsinreviewingorganisationalandservicedeliverystructures;

theworkofrecentlyformedmonitoringandQCSliaisongroupsandunits;and

theresultsfromrecentlyimplementedmonitoringsystems(e.g.telephoneandcorrespondencetracking).

ExamplesofnewissuesthatarefeltlikelytofeatureinthefuturereviewofCharterswere:

adesiretodevelopfurtherfunction-andoffice-specificCharters(whichwasmentionedbytheCourtsService,whichalreadyhasanumberofsuchspecificCharters);and

aneedanddesiretobringforwardnewcommitmentsinrelationtotheservicesprovidedtothevictimsofcrime(andpossiblyaVictim’sCharter),whichwasmentionedbytheOfficeoftheDirectorofPublicProsecutions;

adesiretoupdateandclarifytelephoneresponsetargets(mentionedbyafeworganisations).

Thefirstoftheseoptionshasalotofmeritinlargemulti-functionorganisations.AsinglestandardCharterinsuchcircumstancesinevitablyequateswithaquitegenericoneinthesecircumstances.AsmallnumberofDepartmentsandOfficeshavealreadygonedownthisroute,e.g.theHousesofTheOireachtas(seeCaseStudyinAnnex3).

4.4 Evaluation Processes

4.4.1 Evaluation Commitments within Charters

Whileemphasisingtheimportanceofevaluation,theCharterGuidelinesdonotenvisageitnecessarilybeingincludedinpublishedCharters.

InapproximatelyhalfofallcasesthepublishedChartersdonotreferexplicitlytoevaluation.However,inasmallnumberofthesecasestheymakecommitmentsinrelationtomonitoringperformance,andinothercasestheyactivelyseekfeedbackonaspectsoftheirperformance.ManysuchorganisationsdealwithevaluationofcustomerservicequalityinCAPs.

Amongthosethatdomakeevaluationcommitments,approximatelyhalfarequitenon-specific,suchas“wewillevaluateourperformanceandreportachievementsinourAnnualReport”,andhalfaremorespecificmentioningparticularevaluationmethods(e.g.surveys,feedbacksystems,monitoringspeedofresponses,etc)andcommittoreportingperformance.

4.4.2 Other Evaluation Commitments

Mostorganisationsindicatedthattheyhadcommitmentstoevaluatecustomerservicegenerally,aswellasthespecificmeetingofCharterobjectives,containedwithinpoliciesandreportsotherthanthe

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CustomerCharter.CAPswerecitedmostfrequently,withmostcontainingfurtherdetailsonevaluationcommitments,methodsandprocesses,alongwith“ActionPoints”or“PerformanceIndicators”.

AnumberoforganisationsalsocitedevaluationcommitmentsrelatingtoModernisation/ActionPlansaspartofthePerformanceVerificationprocess.IntermsoftheCivilServicetheseactionplansaresubmittedtotheCivilServicePerformanceVerificationGroup(CSPVG).Thisprocesscontinuesunderthenewagreement,Towards 2016.

Suchwidercommitmentsincludetaskssuchassurveys,provisionofcommentcards,trackingcomplaints,measuringspeedofresponse,internalconsultations,customerconsultations,annualreviews,andestablishingservicelevelagreementswithkeyclients.

4.4.3 Evaluation in Practice

Thefeedbackconcerningwhatevaluationhastakenplaceinpracticeisquitemixed.Approximatelyhalfoftheorganisationsreportthattheyhavecarriedouttheircommitmentsinrelationtoevaluation.Follow-upcustomersurveyshavebeenundertakeninapproximatelyhalfofthesecases,whileothercommitmentssuchasinternalmonitoring,internalreportingandotherprocessesaresaidtohaveoccurred.Othersinthiscategoryhavemetcommitmentssuchasmonitoringfeedbackandcomplaints,consultingcustomersonanongoingbasis,andreportingonactivitiesandprogress.

Ofthosethatindicatedthatnotallevaluationcommitmentshadyetbeenachievedorundertaken(alsoaroundhalfoftheorganisations),aroundonethirdindicatedthatformalevaluationsystemshadnotyetbeenestablished(althoughinsomecasestargetswereknowntobemet),anotherthirdhadundertakensomeevaluationexercises(e.g.“MysteryShopping”)butthatothermethods(e.g.surveyspreviouslycommittedto)hadnotyetbegun,andothersindicatedthatsurveysorotherprocesseswerecurrentlybeingcarriedoutandtheirresultsawaited.Severalorganisationsindicatedthattheinternalsystemsfortelephoneresponsetimeandcorrespondencetrackingwerenotyetinplace,sothatevaluationcouldnotyettakeplace.

Therewouldthereforeseemtobeaneedformorefocused,systematictrackingoftargets,particularlythosebeyondtelephoneandcorrespondenceresponsetimes.Thisalsoneedstobedoneonabasisthatallowsconsistent,andthuscomparative,trackingoftrendsovertime.

Chapter5considerstheresultofevaluationsdonesofarinthecontextoftheimpactoftheCharterprocess.

4.4.4 Evaluation Outcomes and Effects

Approximatelyhalfoftheconsultedorganisationsdescribedtheresultsofevaluations,andmanygaveexamplesofwheretheresultshavegivenrisetochangeinpractices.Mostconveyedrelativelyhighlevelsofcustomersatisfactionindicatedinsurveys,lowlevelsofcomplaints,andthemeetingofQCStargets,whileseveralalsogaveexamplesofthechangesarising.Examplesincludethefollowing:

theDepartmentofAgricultureandFoodfounda“highsatisfactionrating”initscustomersurvey,andthatfeedbackhadpointedtotheneedforimprovementsinitsonlineservices,aswellastheneedtodevelopSMSservicesprovidedtomobilephones,bothofwhichwerebeingdeveloped.ItalsoreportedthatsurveyshadindicatedthatthepreferredmethodofcontactingtheDepartmentamongstfarmerswasthroughtheregionalofficenetwork,andthatitwouldthereforecontinueassuch;

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theDepartmentofCommunications,MarineandNaturalResourcesreportedthatitssurveyhadbeen“relativelypositive,althoughfurtherimprovementswereneededinordertoachievelevelsofcustomerserviceexcellence”.Itstatedthattherecommendationsofitsexternallycommissionedcustomerserviceinquirywerebeingimplementedwherepossible;

theDepartmentofDefenceindicatedthatitssurveyhadshowna“96%rating”ofservice,aratingthatwas6%higherthanthepreviousyear,reflectinganimprovedtelephoneservice;

theDepartmentofTransportreportedthatsurveyshadgenerallygiven“highmarks”,andhadindicatedincreasingawarenessoftheCustomerCharteramongcustomers.Italsoreportedthatfeedbackhadpointedtoaneedtoimproveitswebsite,andthattheprocessofrevampingthesitehadstarted;

theDepartmentofEducationandSciencereportedthattargetsfortelephoneresponsetimeswerebeingmetatagenerallevel,althoughswitchboardoperatorshadsomedifficultymeetingthematpeaktimes.Italsoreportedthatcustomercommentsweregenerallypositive,andthatcomplaintswereacteduponwherenecessary;

theDepartmentoftheEnvironment,HeritageandLocalGovernmentpointedtotheissueraisedbylocalauthoritieswhensurveyedoftheneedtoprovideallcircularselectronically,andthatanonline“Sharepoint”systemhadbeendevelopedforthatpurpose;

thePropertyRegistrationAuthorityreportedthatmosttargetshadbeenmet,withtheexceptionofthoserelatingtomappingsearches,butthatanewdigitalmappingservicehadbeenintroducedwhichwouldhopefullyimprovesuchservices;

theOfficeoftheDirectorofPublicProsecutionsreportedthattheirevaluationprocesseshadindicatednomajorshortcomings;

theOfficeoftheRefugeeApplicationsCommissionerreportedthatitscustomersurveyshadgenerallybeenverycomplimentary.TheORAChasactedonsomeoftheissuesraisedinthesurvey,includingrefurbishmentofReceptionarea.Themostrecentsurvey(carriedoutintheORAC’swaitingarea),whileagainpositive,includedsuggestionsthatwaitingareascontainTVs,musicandvendingmachines,andthesesuggestionswillbeconsidered;

theStateExaminationsCommissionindicatedthatitstelephoneresponsetargetshadnotbeenachievedinthemostrecentfullyearmeasured,butthattargetsrelatingtoresponsestocorrespondencehadbeenmet.Itstatedthatarenewedfocushadbeengiventoachievingspeedoftelephoneresponsetargetsasaresult;

theRevenueCommissionersreportedthatallofitssurveysandevaluationresultsfedintoitsoverallcustomerservicepolicy.Examplesofwherechangeswereresultingincludedthe2004SurveyofPAYETelephoneServiceswhichledtotheestablishmentoftheCustomerContactProject,andtheongoingimplementationoftheVoIPTelephoneServicewhichhadreachedthepointwhere�5-100%ofcallswereanswered(foraservicethatreceivedupto10,000callsperday),andthatthenewsystemhadenabledtherolloutofsophisticatedselfservicetelephoneservicesavailable24hrsperdayandsevendaysperweek.

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4.4.5 Future Plans Regarding Evaluation Process

Eightorganisationsindicatedthattherewereplanstochangeordeveloptheevaluationprocesswithintheirorganisations.Afurthertenindicatedsuchchangeswouldoccuriftheoutcomesofplannedoractivesurveys,oroverallCharterorCAPreviewspointedtosuchaneed.Twelvereportedtherewerenofirmplansasyet.

Examplesofspecificchangesplannedincludethefollowing:

theDepartmentofDefenceindicateditsintentiontointroducenewcustomerfocusgroups;

theDepartmentofEducationandSciencereportedthatanewsystemforcorrespondencetrackingwasplanned,andthatareviewofapplicationformsinusewasunderway;

theOfficeoftheDirectorofPublicProsecutionsindicatedthatanewcasedocumentmanagementandfiletrackingsystemwasindevelopment,thatwouldprovideanintegratedsystemformanagementofprosecutionfilesacrosstheorganisationandwouldthereforebebeneficialinassistingitinevaluatingservices;

theDepartmentoftheTaoiseachindicatedconsultantswouldconduct2007CustomersurveysandmysteryshoppingtoensureresultscanwithstandexternalscrutinyandprovideassurancethatcommitmentsofChartersarebeingmet;and

thePublicAppointmentsServiceindicatedthatitintendedtoconductanewonline“BilingualCandidateSurvey”.

Mostoftheorganisationsthatreported“noimmediateplans”tochangetheevaluationsystem,suggestedthattheneedforsuchchangeswouldbecomeapparentfromsurveysunderwayorplanned,orfromoverallreviewsofcustomerservices,ChartersandActionsPlans.

Overallinthisarea,therewouldappeartobealotofreportedevaluationactivity.Nevertheless,itseemsdifficultinpracticetolocateexamplesofsystematictrackingovertimeofcustomersatisfaction-specificlevelsatorganisationsorservicelevel.Availabilityofsuchdataseemstostillremaintantalisinglyoutofreach,evenatthispointfouryearsintotheCustomerCharterInitiative,andtenyearsintotheQCSInitiative.

4.5 Targets/Indicators in Practice

4.5.1 Performance Indicators

MostpublishedChartersdonothavesections,headingsorcontentstitled“PerformanceIndicators”,howevermostdocontaintargetsamenabletomeasurementandquantification.

OrganisationsmayofcoursehavenoservicetargetsintheirCharterbuthavethemelsewhere,eithertheirCAPorinanotherdocument.TheRevenueCommissioners,forexample,publishestargetsinitsseparate“CustomerServiceStandards”leaflet.

Chapter2containsanoverviewofthequantifiedindicatorsincludedineachorganisation’spublishedCharter.Themostcommonlyusedquantifiedindicatorsrelatetotelephoneandcorrespondenceresponsetimes,andinmanycasesthesearetheonlyquantifiedindicators.Howeverexamplesofotherindicatorsincludedare:

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thespeedofissuingapplicationforms;

thespeedofacknowledging/dealingwithcomplaints;

thespeedofissuingformaldocumentsfollowingapplication(e.g.passportsinthecaseoftheDepartmentofForeignAffairs,LicencesinthecaseoftheDepartmentofEnterprise,TradeandEmployment);

thespeedwithwhichofficevisitorswillbemet/greeted/collectedfromreception(e.g.theCSO);

thepercentageofpublicofficesaccessiblebypeoplewithdisabilities(e.g.theDepartmentofSocialandFamilyAffairs);

technicalservicedeliverytargets(e.g.thespeedofperformingmappingsearchesandthespeedofissuingcopyfoliosinthecaseofthePropertyRegistrationAuthority);and

thespeedofproductdispatch(e.g.mappingproductsdispatchedfollowingcompleteapplication,inthecaseofOrdnanceSurveyIreland).

4.5.2 Quantitative Data Collected

Thepictureregardingactualdatacollectedislessclear,asthisisnotnecessarilyputinthepublicdomain.Severalorganisationsidentifytheirsurveyworkasthekeyquantifieddatacollectionsystem,whileothershavesophisticatedsystemsinplaceformonitoringmanyindicators(e.g.Revenue,thePropertyRegistrationAuthority,theOfficeoftheDirectorofPublicProsecutionsandthePublicAppointmentsService).

Telephoneandwrittencorrespondenceresponsetimesappeartobecollectedinamajorityofcaseswheresuchtargetsexist.Howeverinseveralorganisationstelephonesystemsdonotyetfacilitatesuchmeasurement,andinternalcorrespondencetrackingsystemsarenotinplace.Insomeinstancesalsocorrespondencetrackingisdoneforsomecorrespondencebutnotforothers.

Anumberoforganisationshavecompletedorbegun“MysteryShopping”exerciseswherebyexternallycommissionedprofessionals(orQCSOfficersandstaff )makeanonymouscallsandinquiriesmeasuringthespeedofresponse,howeverinmanysuchcasesthesewereinformalexercisesandresultswerenotavailable.

Mostorganisationsrecordnumbersofcomplaints,buttheseareofteninsingledigitsoverthecourseofayearandrequirenosignificantcollection“system”.

Theirverylownumbersalsomakesthemoflimitedvalueasatrendindicator,andthelownumberitselfisopentodifferentinterpretations.Itmayreflecthighlevelsofsatisfaction,andsurveyswouldindeedconfirmthis.However,lackofawarenessofproceduresandlackofoptimismaboutpotentialresultscouldalsohelpexplainverylownumbersofcomplaints.Customersmayalsoresorttoalternatives,suchaspoliticalrepresentation,PQsortheOmbudsman.

Thebetterroleofawell-functioningcomplaintssystemisasasourceofpracticalfeedbackthatcanhelptoimproveservicequality.ThisisanareawhereCustomerChartershavehelpedtomoveQCSon.Nextstepsnowincludeinstitutionofbettersystems,andpotentiallyalinktoredresssystems.WereverttothisissueinChapter7.

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4.5.3 Views Regarding “Best” QCS Indicators

WeaskedQCSOfficersfortheirviewsonwhatwouldconstitutethebestindicatorofservicequalityintheirorganisation.

Inrelationtothebestcurrentindicatorsofqualitycustomerserviceprovision,relativelyfewsuggestionsweremadebeyondtheexistingindicatorsanddatainuse.Customersurveysandotherformsofcustomerfeedbackwerefrequentlymentioned,aswerethenumbersofcustomercomplaints.

Othersuggestionsincluded:

theachievementofISOorotheraccreditationrelatingtocustomerservicegenerally;

theextentofpositivefeedback;

thenumbersofmeetingsdealingwithcustomerserviceissues;

variousstatisticsmeasuringtheeffectivenessoftheorganisationindeliveringitscorefunctions;

follow-upsurveysofcustomersthathavehadrecentdealingswiththeorganisation;and

thenumberanddiversityofcustomersorclientorganisationsemployingtheorganisation’sservices.

4.6 Reporting on ChartersAmajorityofChartersmakecommitmentstoreportoncustomerserviceperformanceinAnnualReports,althoughfewsetoutwhatinformation,specifically,willbereportedupon.AmajorityoftheorganisationsprovideinformationinAnnualReports.Thenatureandtypeofinformationdependsontheactivitythathasbeenmeasured,whethersurveyshavebeencompleted,andtheothercustomerserviceinitiativesandactivitiesundertakeninanygivenyear.SeveralorganisationsfulfilChartercommitmentstopublishsurveysonwebsites.

ManyorganisationsindicatedthatreportingtakesplaceatseverallevelsotherthaninAnnualReports,althoughChartersthemselvesdidnotmentionsuchcommitments.Examplesare:

reportstotheCivilServicePerformanceVerificationGroup;

Towards 2016actionplansandreports;

divisionalandbranchbusinessplansandprogressreports;

reportstoandofQCSLiaisonPanels;

reportstoOperationsManagers;

reportstoPartnershipCommittees;

reportstoManagementAdvisoryCommittees;

reportstoBoardsofDirectors.

Chapter5returnstotheissueofreportinginsofarasthisactuallyaidsassessmentofCharter(andQCS)impact.

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4.7 Links to other Processes

4.7.1 Customer Action Plans (CAPs)

PracticallyallorganisationsindicatedtherewereclearlinksbetweentheCharterandtheCAP,andinthefewcasesweretherewerenot,thiswaslikelytochangewiththefinalisationofnewCustomerActionPlans.TheperceptionthatCAPscontainthedetailedcommitmentsandplansthatgivepracticaleffecttotheCharteranditscommitmentsiswidespreadamongtheorganisations.

4.7.2 Strategy Statements

MostorganisationsalsoindicatedtherewerelinksbetweentheCharterandtheorganisation’sStrategyStatement/Plan.Thestrengthoftheselinksappearstovaryhowever,withsomeStrategyStatementsreferringtoeachChartercommitmentandtarget,somecross-referringtotheCharter,andsomeStrategyStatementsincludingperformanceindicatorssuchas“meetingtheChartercommitments”.Inonecase,thelinkwasdescribedasexistingatthelevelofseniormanagementwhichsignsoffonboththeCharterandtheStrategyStatement.

4.7.3 Performance Management Development System (PMDS)

SimilarlymostorganisationsindicatedtherewereexplicitorstronglinksbetweenChartersandthePMDS,withcustomerservicehavingbeenestablishedasacorecompetencywithinPMDSroleprofileswithinmostorganisations,aswellascustomerservicesectionsbeingcontainedwithindivisionalandorganisationalbusinessplans.

4.7.4 Civil Service Performance Verification Group (CSPVG)

ApproximatelyhalfoftheQCSOfficersconsultedwereawareoflinksbetweentheChartercommitmentsandthePerformanceVerificationprocesswithintheirorganisation,specificallytheCSPVG.MostoftheothersindicatedtheywereunawareofanylinksorwereunfamiliarwiththeCSPVGreportingframework.

4.7.5 Other Processes/Sectoral Strategies

OnlytwoDepartments/Officespointedtolinkswithotherprocessesorsectoralstrategies:

theDepartmentofAgricultureandFoodpointedtolinkstotheAgrivision2015Strategy;and

theDepartmentofForeignAffairspointedtothemajorstrategycontainedwithintheWhitePaperonIrishAidashavingmajorimplicationsforcustomerservicedelivery(althoughdirectlinkswereunknown).

GiventhewiderangeofsectoralstrategiespublishedbyDepartmentsmoreexplicitlinkagesmightbeexpected,sincetheseStrategiesarealldesignedultimatelytoimprovepublicservices,whetherdirectlyorindirectly.Absenceofsuchperceivedlinkssuggestsapossiblelackofjoined-upthinking,andatendencytocompartmentaliseQCSasaseparatecategoryfrominvestmentandsectoraldevelopment.ExamplesofrecentlypublishedStrategieswhereamoreexplicitlinktocustomerservicemighthavebeenpossibleare:

theNationalDevelopmentPlan2007-13,wheremuchoftheplannedinvestmentwithinthepublicsectorisintendedtoimprovePublicServicequality;

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TRANSPORT 21whereclearerpublictransportservicestandardsareanobviousnextstepinpolicydevelopment;

theRuralTransportInitiativewhichaimstoimproveactualtransportservicesinruralareas,buttodateinvolvesnoexplicitstatementofservicecommitment;

theStrategyforScience,TechnologyandInnovationwillinvolvehugepublicinvestmentbytheDepartmentsofEnterprise,TradeandEmploymentandEducationandScienceandtheiragenciesinpublic,thirdlevelandbusinessresearch.

4.7.6 External Quality Assurance

Twentyorganisationsgavefeedbackinrelationtotheachievementofexternalstandardsoraccreditation,whetherinplaceorplanned:

sevenindicatedthatsomeorallofitsactivities/serviceswereexternallyaccredited,citingISO,QMark,ExcellenceThroughPeople,O2AbilityAwards,andCrystalMarkaccreditations;

sevenindicatedthattheywerecurrentlyinvestigatingexternalaccreditation;and

sixindicatedtherewerecurrentlynoplanstoseekexternalaccreditation.

Organisationsnotrespondingclearlyonthisissuecanbetakentoalsohavenoplansinthisregard.

Whilethemeritsorotherwiseofexternalaccreditationisamatterforeachindividualcase,somedegreeof“external”inputintothesettingandmonitoringofsomestandardsisdesirable.Thisbringsanelementofbothprofessionalismandexternalvalidationwhichareabsentinpurelyinternalprocedures.

4.8 Views on Challenges and Future Developments

4.8.1 Challenges to Date

Manyresponsesweregivenregardingthemainchallengesintheprocesstodate,includingthefollowing:

keepingstaffandothergroupsinterestedintheprocess,maintaininghighstaffawareness,maintainingcommitment,maintainingongoing“buyin”,maintainingfocusontheachievementoftargetsandhighstandards,broadeningthebaseofawareness,andaperceivedlackofrelevancetostaff(togethermentionedin9cases);

evaluationdifficultiesandchallenges(mentionedin4cases);

highstaffturnoverinsomecases(mentionedin3cases);

adaptingtheinitiativetoourownuniqueservices(mentionedin2cases);

themulti-functionandevolvingremitoftheDepartment(mentionedin2cases);

keepingthedocumentassimpleaspossible;

implementingtheOfficialLanguagesAct;

ensuringequalityanddiversityissuesareimplemented;

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achievingcontinuedimprovementinservice;

staffturnoverwithincustomerservicedivision;

meetingtelephoneresponsetargets;

generallyaneedtoconsolidateratherthaninitiatenewthings;

havingtocommunicatenegativemessagestostaff;

settinggenerictargetsforanextremelydiversesetofactivities;

compilinginformationfromdifferentunits;

inability/lackofreadinesstosetspecificstandards;

minimisingtheneedforregularrevisionofthedocument;

gettingcustomerfeedback;

over-reliance/emphasisoneasilymeasurabletargets(e.g.responsetimes);and

keepingcommitmentsrelevanttoclients’needs.

4.8.2 Future Challenges

Mostorganisationsfeltfuturechallengeswerethesameorsimilartochallengesthusfar.However,anumberofspecificfurtherchallengeswereidentifiedforthefutureoftheprocess,includingthefollowing:

theissueofthedecentralisationprocess,bothasanopportunityandasakeyconsiderationinmaintenanceofservicestandards;

keepingabreastofnewideasincustomerserviceandachievingandmaintainingexcellence;

achievingaccreditation;

tailoringtheCharterorestablishingnewChartersfordifferentoffices,functionsandcustomergroupsoftheorganisation;

ensuringappropriatemulti-lingualdeliveryofservices;

ensuringresourcesarecommittedsothattargetsareachieved;

establishingmorecustomerdialogue;

thegrowthinthenumberofagenciesbeingcreated(e.g.Regulators);

theorganisationalandproceduralimpactofnewlegislation;and

tomakequalitycustomerserviceautomaticandingrainedwithinthecultureoftheorganisation(andtheCivilServicegenerally).

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4.8.3 Procedural Changes

Feworganisationsmadesuggestionsregarding(oridentifiedchangesrequiredwithin)eithertheirownproceduresaroundCustomerChartersorprocedureswithintheCharterinitiativegenerally.Amongthefewissuesraisedconcerninginternalprocedureswere:

ensuringtheprocessremainsrelevantandinlinewithbestpractice;

continueddevelopmentoftheprocess;

introducingnewperformanceindicators;and

creatingacloselinktoorganisationalstrategicplanning.

CommentsmadeinrelationtotheCharterprocessintheCivilServiceandproceduresincludedthefollowing:

continued(external)supporttotheprocess;

increased(external)supporttotheprocess;

lessemphasisonquantitativeissuesandmoreonqualitativeissues;and

assistanceinmaintainingmomentum.

4.8.4 Central Support/Co-ordination

Mostorganisationswerecomplimentaryofthecentralsupportandco-ordinationprovidedtotheprocess,withtheoriginalGuidelines,theQCSOfficersNetwork,onlinesupportthroughtheDepartmentoftheTaoiseachandwww.bettergov.ie,andtrainingcoursesprovidedallbeingspecificallycommended.Amongthesuggestionsforimprovedcentralsupportandco-ordinationwerethefollowing:

considerationofageneric“CivilServiceCharter”withindividualorganisationsthenfocusingoneithertheirowntailoredChartersortheCAPs;

moreregularupdatingandcirculationofcontactdetailsforQCSOfficers;

moretailoredsupporttoDepartmentsandOffices;

assistancewithestablishingappropriateevaluationandmeasurementprocesses,designingquestionnairesetc;

improvedweb-supportandexchangeofgoodpracticeandexperience;

somerationalisationofoverlappingprocessesandreportingrequirementsintheQCSandwiderPSMarea.

OurrecommendationsforcentralactioninChapter7incorporateanumberoftheseproposals.

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Chapter 5: Impact of

Customer Charters


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5. Impact of Customer Charters5.1 Introduction ThisChapterexaminestheimpactoftheCustomerCharterprocesstodateontheQCSinitiative.Itdoessobyreferencetoanumberofkeysources:theviewsonimpactoftheconsulteesinthe30DepartmentsandOffices,asreflectedinresponsestoourchecklist;viewsofotherconsultees;thecentralcustomersurveyscarriedoutbytheDepartmentoftheTaoiseach;organisation-specificsurveysandotherevaluationsreportedbyindividualDepartmentsandOffices;andourwiderconsultationsregardingtheprocess.

5.2 Views of QCS Officers

5.2.1 Overall Level of Impact

Aspartofourconsultationprocess,weaskedtheQCSOfficerineachDepartment/OfficetoindicatewhethertheyfelttheimpactoftheCharterprocesshadbeen“high”,“medium”or“low”intheircase.Responseswereasfollows:

nineindicatedithadbeen“high”;

themajority,sixteen,indicatedithadbeen“medium”;and

fiveindicatedithadbeen“low”.

Some“medium”and“low”ratingswereexplainedtousintermsofimpactsoftheCharterbeinglessapparentthantheimpactofwidercustomerserviceinitiativesoroftheCAP.Otherswereexplainedwithreferencetocustomerservicestandardsalwayshavingbeenamajororganisationalpriorityalready,andthattheCharterprocessthereforebroughtrelativelylittlesignificantchange.

Manypointedtosignificantdifficultyinevaluatingorratingitsdistinctimpact,bothinitsownrightandinisolationfromotherprocessesaimedatimprovingstandardsofcustomerservice.Indeed,someindicatedthattheir“medium”ratingwasprimarilyduetoalackofevidencethatwouldsupporteitherahighorlowrating.

5.2.2 Main Impacts Perceived

Theraising(orre-raising)ofawarenessofcustomerservicestandardsisthemostfrequentlycited“main”impactoftheCharterprocessamongtheorganisations.Ofthe22QCSOfficersthatidentifieda“main”impactwhichtheyfelttheCharterprocesshadachieved:

fourteenmentionedincreasedawarenessofstandards(amajorityofwhichreferredtointernalawarenessamongstaff,withaminoritymentioningbothinternalandexternalawarenessofstandards,and3suggestingthiswasfilteringdowntoimprovedcustomerservice);

fourindicatedthatthemainimpactwastheformalestablishmentofwrittenstandardswherenonehadpreviouslyexisted;

oneindicatedthatimprovedresponsetimeshadprobablybeenthemainimpactsofar;

onereferredtoarangeofmajorimprovementsincustomerserviceoveraprolongedperiod;

onereferredtoanoverallimprovementinthecustomerserviceethosoftheDepartment;and

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�1

onereferredtothefocustheprocessgavetotheorganisation’spriorcustomersurveyactivityasthemainimpact.

5.2.3 How Impact has Occurred

PerceptionsofhowthemainimpactsoftheCharterprocesshavecomeaboutwithinorganisationsfallintothefollowingmaincategories:

insixinstances,organisationsreferredtostafftrainingand/orthelinkingofcustomerservicestandardstothePMDS;

infiveinstances,referencewasmadetothehighlevelsofstaffinvolvementintheoverallpreparationandroll-outoftheprocess;

inthreeinstances,organisationsreferredtoimpactshavingoccurredduetocustomerfeedbackhavingbeenactedupon;

inafurtherthreecases,referencewasmadetotheestablishmentofanoverallcustomerserviceethosthrougharangeofinitiatives,and/oroveralongperiod;

intwocases,theorganisationsreferredtoallaspectsoftheprocesshavingcreateditsoverallimpact;

inonecaseanorganisationreferredtothesupportwhichisprovidedtostaffinimplementingcustomerservicepoliciesandstandardsashavingcreateditsoverallimpact.

5.2.4 Internal and External Impact

Thirteenoftheorganisationsrespondingfelttheimpacthadbeenbothinternalandexternal.

SixorganisationsindicatedthattheyfeltthemainimpactoftheCharterprocesswasinternal.Thesewere:theDepartmentofSocialandFamilyAffairs;theDepartmentofTransport;theDepartmentofArts,SportandTourism;theOfficeoftheDirectorofPublicProsecutions;theValuationOffice;andtheOfficeofPublicWorks.

Onlytwofelttheimpactwaspredominantlyexternal–theDepartmentofAgricultureandFood,andtheCourtsService.

5.2.5 Evidence of Impact as Reported

Whenaskedforevidenceofimpact,21Departments/Officeselaboratedontheevidenceoftheimpactoftheprocess:

fivepointedtopositivecustomerfeedback;

threepointedtoalackofcustomercomplaints;

threereferredtoincreasedstaffawarenessandcommitment;

threesaidtheirviewsregardingimpactwereinformal,andbasedlargelyonanecdotalevidence.

Evidencecitedbyoneorganisationineachcasewas:theorganisation’sexternalaccreditationachievements;customersdemandhighqualityservice;evidencediscussedatmeetingsofCustomerServiceOfficerLiaisonPanels;themeetingoftargetsasevidenceofimpact;linkageswiththePMDSasevidenceofimpact;thecarryingoutofsurveysistheevidenceofimpact;andrewardsreceivedand

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theevidenteffectivenessoftheorganisationindeliveringitsmandate,wheresucheffectivenessisdependentonexcellentcustomerrelations.

5.3 Results of Overall Customer Surveys

5.3.1 Overview

Inthelast12months,theDepartmentoftheTaoiseachhaspublishedtwosurveyswhichgiveanindicationofthelevelofexternalpubliccustomerserviceprovidedinGovernmentDepartmentsandOffices.Theseare:

theCustomerSatisfactionSurveyfortheIrishCivilService(1,300interviews);

theBusinessSatisfactionSurveyfortheIrishCivilService(300interviews).

Thesewereprofessionallyundertaken,usingindependentmarketresearchcompanies.ThekeyfindingsofbothofthesesurveysareprovidedinSection5.3.2andSection5.3.3below.

5.3.2 General Public Survey 2006

TheCustomerSatisfactionSurveyfortheIrishCivilService(i.e.theDepartments/Offices)wascommissionedbytheDepartmentoftheTaoiseachandpublishedinMarch2006,anditprovidesafollow-uptoprevioussurveyspublishedin1997and2003.

Thesurveyhasfoundthatthegeneralpublic’slevelofcontactwiththeCivilServiceisincreasing,and46%ofpeoplenowhavesomeformofcontactwiththeCivilService.Thiscomparesto2�%ofpeoplein2002and32%ofpeoplein1997.ThemostregularlycontactedofficesaretheDepartmentofSocialandFamilyAffairs(17%),theRevenueCommissioners(16%),theDepartmentofEducationandScience(�%)andtheDepartmentofHealthandChildren(7%).About40%ofpeoplefeelthattheyarefamiliarwiththeworkingsoftheCivilService,comparedto34%in2002and35%in1997.

OverallsatisfactionlevelswiththeCivilServicearehigh–justunder�0%.Thisisinlinewiththeresultsforthe2003survey.However,therehasbeenasmallincreaseintheproportionofpeople“verysatisfied”withtheserviceprovided,from39%in2002to42%in2006,whiletheproportionofpeoplewhoare“dissatisfied”withtheserviceprovidedhasincreasedsignificantly,from9%in2002to15%in2006.Otherinterestingresultsinthisregardareasfollows:

57%ofpeoplehaveafavourableopinionofthewayinwhichtheCivilServicemeetstheneedsofthegeneralpublic,comparedto47%in2002and59%in1997;

62%ofpeoplefeelthattheCivilServiceisefficient,comparedto5�%in2002and62%in1997.

Ahighlightofthesurveyresultsisthehighlevelsofsatisfactionwithstaffresponsibleforfrontlinedelivery.Forservicebyphone,highlevelsofsatisfactionwererecordedforthehelpfulnessofstaff(�4%),thecourtesyofstaff(��%),theknowledgeofstaff(�1%)andthemannerinwhichstaffexplainedissues/information(�2%).Ontheotherhand,therewasarelativelyhighlevelofdissatisfactionwiththeamountoftimepeopleareleftholdingoncalls(31%).ThisisdespitetheemphasisplacedonthisoverallissuebytheCharterprocess.Levelsofexpectationmayofcourseberising.

Highlevelsofsatisfactionwerealsorecordedforservicereceivedinperson,especiallythehelpfulness,courtesyandknowledgeofstaff.Furthermore,about�0%ofpeopleindicatedthattheyweresatisfiedwiththeclarityofresponse,thequalityofresponseandthespeedofresponsewhichtheyreceivedforwrittencorrespondence.

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Thisincludesahighlevelofsatisfactionfore-mailcorrespondence,whileserviceusingtheInternetalsoscoredhighlyforeaseofaccess,qualityofinformation,qualityofpresentation,speedofresponseandefficiencyofservice.Theroll-outofservicedeliveryviaInternetande-mailhasalsoprovedpopularwithpubliccustomers,with20%havingusede-mailtocontacttheCivilServiceand13%usingtheInternet(muchhigherthanin2002or1997).

Over75%ofthosewhohadcontactwiththeCivilServiceintheprevious12monthswouldrecommendtheservice,comparedtojust65%in2002.Whilestaffattributesplayanimportantrolehere,otherimportantserviceattributesthathavecontributedtothehighlevelsofsatisfactionincludeperceivedimprovementsincustomerfocuswithintheserviceandtheavailabilityofproceduresformakingcomplaints.BothoftheseareofcoursedirectlyrelevanttotheCharters.

5.3.3 Business Survey 2006

TheBusinessSatisfactionSurveyfortheIrishCivilServicewascommissionedbytheDepartmentoftheTaoiseachandpublishedinJune2006,anditfollowsupapreviousstudycarriedoutin2002.

Unlikethesurveyofthegeneralpublic,thissurveyhasfoundthatthebusinesslevelofcontactwiththeCivilServicehasreportedlyfallenslightly,with�1%ofbusinesseshavingsomeformofcontactin2006comparedto�6%in2002.

ThemostregularlycontactedOfficesaretheRevenueCommissioners(45%),theDepartmentofEnterprise,TradeandEmployment(2�%),theCSO(20%),theDepartmentoftheEnvironment,HeritageandLocalGovernment(19%),theDepartmentofFinance(19%),theDepartmentofSocialandFamilyAffairs(17%),andtheDepartmentofAgricultureandFood(16%).

OverallsatisfactionlevelswiththeCivilServiceareatjustover�0%,whichisaconsiderableincreaseonthereported2002levelofabout70%.Thenumberofbusinessessayingtheyaredissatisfiedwiththeserviceprovidedhasdecreased–albeitmarginallyfrom16%in2002to14%in2006.

Satisfactionwiththestaffprovidingservicedeliveryatthefrontlineisagainhigh.Forservicebyphone,veryhighlevelsofsatisfactionwererecordedforthehelpfulnessofstaff(93%),thecourtesyofstaff(96%),theknowledgeofstaff(�4%)andthemannerinwhichstaffexplainedissues/information(�3%).Forserviceinperson,9�%weresatisfiedwiththecourtesyofstaffand�3%weresatisfiedwiththehelpfulnessofstaff.

Table 5.1: General Public Views on the Irish Civil Service

FamiliaritywithCivilService

Incidenceofcontact

Overallsatisfactionwithservice(%satisfied/verysatisfied)

ImpressionofCivilServiceefficiency(%whothinkitisefficient)

Favourability(%favourabletotheCivilService)

RecommendingtheCivilService

1997

35%

32%

n/a

62%

59%

n/a

2002

34%

28%

79%

58%

47%

65%

2006

40%

46%

78%

62%

57%

76%Note:“n/a”=notavailable.

Source:IrishCivilServiceCustomerSatisfactionSurvey2006


�4

Therearealsohighlevelsofsatisfactionwiththeservicereceivedinwriting,with�7%ofbusinessessatisfiedwiththeclarityandlanguageusedinwrittencorrespondence,though20%ofrespondentsweredissatisfiedwiththespeedandefficiencyofresponsetowrittenqueries.E-mailcorrespondencealsoscoreshighly,andtherehasbeenanobviousincreaseinthenumberofbusinessesusingthismethodofcommunication.WhileInternetcontactwasonlyusedbyabout13%ofbusinesses,satisfactionwithservicelevelsherewassimilarlyhigh.

About�0%ofbusinesseswouldrecommendtheCivilServiceonthebasisofthequalityofservicereceived,comparedto66%in2002.

5.4 Reporting on Charters by Departments and Offices

5.4.1 Overview

ThissectionexaminesfeedbackonevaluationsfromindividualGovernmentDepartmentsandOffices.ThesectiondrawsonareviewofAnnualReportsfor2004and2005,andonotherinformationobtained.Thisisdividedintoanumberofsub-sections:

resultsfromgeneralcustomersatisfactionsurveysandotherfeedbackmechanisms;

resultsontelephoneenquiries,whichisafrequentquantifiedcommitmentwithinCustomerCharters;

resultsonwrittencorrespondence,whichisanotherfrequentChartercommitment;

developmentsincomplaintsproceduresandcomplaintshandling,animportantaspectofmanyCharters.

5.4.2 Surveys and General Feedback

TheCustomerCharterprocesswithinsomeGovernmentDepartmentsandOfficesisstillinitsearlystagesand,inmostcases,Chartershaveonlybeenadoptedandpublishedsince2004/5.Thismakesanassessmentofimpactlimited,giventheshorttimeframeinvolved.Nevertheless,resultsfromfeedbackgatheredfromanumberofDepartmentsandOfficeshelptogiveanindicationofcurrentcustomerservicequality.This,inturn,maygivesomeguidanceonthecurrenteffectoftheChartersinpromotingbettercustomerservice.

RecentresultsfromsurveysandothergeneralfeedbackgatheredbyselectedDepartmentsandOffices,whichmostlyrelatesto2005,isprovidedinTable5.2.Inoverallterms,theseresultssuggestthattheseDepartmentsandOfficesareseenasdeliveringhighstandardsofcustomerservice,withcustomersatisfactionlevelsinmostcasesreaching90%ormore.

Someofthesurveysandfeedbackisafollow-uptopreviousresearchcarriedoutin2003and2004,andtheresultsinseveralofthesecasessuggestthatcustomerservicelevelshaveimprovedsinceCustomerCharterswereintroduced.Thisisnotableinthefeedbackprovidedto:theDepartmentofCommunications,MarineandNaturalResources;theDepartmentofDefence;theDepartmentoftheTaoiseach;theDepartmentofTransport;andtheValuationOffice.

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Table 5.2: Selected Evidence of Customer Service Quality – TrendsDepartment/Office

Year Description

Communications, Marine and Natural Resources

2005 Overall customer service rated as “reasonably good”

28% of customers surveyed indicated that service had improved over the previous 18 months (rising to 55% for marine sector customers)

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Defence 2005 Overall service provided by the Department rated as either “good” or “excellent” by 96% of customers (compared to 90% in 2004)

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Environment, Heritage and Local Government

2005 95% of customers are happy with the service provided by the Department, 98% of customers feel that staff are courteous and helpful, and 83% of customers feel that services are provided in a timely manner

90% of customers feel that information provided by the Department is easily accessible, meaningful and accurate

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Health and Children 2004 95% of comment cards returned to the Department expressed favourable views about the services provided by the Department

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Taoiseach 2005 98% of customers find staff to be courteous, efficient and friendly

89% of customers agree that the Department provides a quality service (compared to 81% in a previous pre-Charter survey)

83% of customers agree that the Department actively listens to its customers (compared to 65% in a previous pre-Charter survey)

80% of customers agree that the Department provides its services fairly and equitably

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Transport 2005 68% of the general public expressed satisfaction with their most recent contact with the Department (compared to 64% in 2003)

63% of business customers expressed satisfaction with the quality of service received (though this represents a drop on 2003 results)

47% of business customers feel that customer service in the Department has improved since 2003

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Office of Public Works

2005 90% of customers regard the OPW as “always” or “usually” meeting the promises in its Mission Statement regarding service delivery

Ratings of 80%-90% for ease of access to key contacts, clarity of information provided, format of information provided, quality of information provided

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Valuation Office 2005 Average satisfaction level among customers across a range of service criteria was 84% (com-pared to 80% in 2004)

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Table 5.3: Departments’ Progress Against Charter Commitments – Telephone Response

Department Target Progress Achieved Reporting Year

Progress v. Target

Agriculture and Food No Charter only launched in 2005, and there was no reporting against progress for that year

■ - Not available

Arts, Sport and Tourism Yes 2005 Annual Report notes that telephone surveys are carried out every six months to monitor compliance with Charter commit-ments, but results have not been reported

■ - -


Yes No reporting made against Charter commitments in either 2004 or 2005

■ - -

Community, Rural and Gaeltacht Affairs


■ - -

Defence No Satisfaction rating of 90%+ for time taken to answer telephone calls, politeness and courtesy of call answering, time taken to reach the person being contacted, time taken to answer a telephone query, and time taken to return a telephone message

■ 2005 Not available

Education and Science Yes 80% of calls answered within 20 seconds■ 2004 Above target

Enterprise, Trade and Employment

Yes 98% of calls answered within 20 seconds■ 2005 Above target



■ - -

Finance No No reporting made against Charter commitments in either 2004 or 2005

■ - Not available

Foreign Affairs No No reporting made against Charter commitments in either 2004 or 2005

■ - Not available

Health and Children Yes No reporting made against Charter commitments in either 2004 or 2005

■ - -

Justice, Equality and Law Reform

No Charter only launched in 2005, and there was no reporting against progress for that year

■ - Not available

Social and Family Affairs Yes Call answering service across the main scheme areas shows an average call answer within 9.6 seconds from July-December 2004

■ 2004 Above target

Taoiseach Yes Sample surveys show that 100% of telephone calls are answered within 15 seconds


Transport Yes Average response time to a telephone call measured at 4.4 seconds■ 2005 Above targetSource:AnnualRepoers


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Theseresultsdonot“prove”adirectcausallinkbetweentheimpactofCustomerChartersandthelevelsofcustomerserviceinGovernmentDepartmentsandOffices.However,theydoprovideanindicationthattheintroductionoftheChartersmaybehavingapositiveeffectoncustomerservice.

Thereis,however,scopeforsuchsurveystobemoreregular,detailed,consistentandcomparableover

timeandorganisations.

5.4.3 Telephone Enquiry Handling

AspartoftheCharterprocess,theparticipatingDepartmentsandOfficesareexplicitlyrequiredtoreportonprogressmadeagainsttheirChartercommitmentsintheirAnnualReports.ThereareonlyafewinstanceswhereDepartmentsandOfficeshavequantifiedtargetsfortheircommitments.Howtheyrespondtotelephoneenquiriesisonesuchcase.

Some10ofthe15GovernmentDepartmentshavequantifiedtargetsintheirChartersforservicelevelsindealingwithtelephoneenquiries,withtargetsmainlyrelatingtohowpromptlycallswillbeanswered.Itshouldbenotedsomemayhavesuchtargetselsewheree.g.intheirCustomerActionPlans.

Resultstodateontheimpactoftheseservicecommitmentsarepatchy,mainlybecausealimitednumberofDepartmentshavebeensystematicallyreportingprogresstodate.However,thismaybepartiallyattributabletotherelativelyrecentdevelopmentoftheCharterprocessinmanyDepartments.Whereresultshavebeenreported,ontheotherhand,thefeedbackappearspositive,withseveralDepartmentsreportingthattheyareeithermeetingorexceedingtheirChartertargets(seeTable5.3).

ProgressinreportingChartercommitmentsfortelephoneenquiriesisslowerinGovernmentOffices,andfewerOfficeshavequantifiedtargetsforsuchcommitments.InsomecasesthereareOfficesthatdonotmakeanycommitmentontelephoneenquiriesbecausethenatureoftheservicesprovidedinvolvesrelativelylittlesuchcontact.Whereresultshavebeenreported,however,theyareeithermeetingChartercommitmentsorslightlybelowthesecommitments(seeTable5.4).

5.4.4 Handling of Written Correspondence

WrittencorrespondenceisanotherareawherecommitmentsarecommonlymadeinCustomerCharters.Allbuttwoofthe15GovernmentDepartmentshavequantifiedtargetsinotherCharters.Again,itshouldbenotedsomemayhavesuchtargetselsewheree.g.inCAPs–whichmainlyrelatetohowquicklyDepartmentswillreplytoallwrittencorrespondencereceived.Todate,however,thelevelofreportingontheseChartercommitmentshasbeenpoor,withonlyafewDepartmentspostingresultsforeither2004or2005.

Whereresultshavebeenposted,theyshowthatservicestandardsarebelowChartercommitments(seeTable5.5).However,ineachofthesecasestherelevantDepartmentsareveryclosetoachievingtheirChartertargets,andtheymayindeedhavesurpassedthemin2006.


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Table 5.4: Offices’ Progress Against Charter Commitments – Telephone Response

Office Target Progress Achieved Reporting Year

Progress v. Target


Yes Charter launched August 2005. No commitment to report in 2005. However, telephone response survey in 2005 showed 93% responses within 20 seconds.

■ - Not available

CourtsService No No reporting made against Charter commitments in either 2004 or 2005

■ - Not available


No Charter does not contain specific commitments on telephone enquiries

■ - Not available

AttorneyGeneral No Charter does not contain specific commitments on telephone enquiries

■ - Not available


No Charter only launched in 2005, and there was no reporting against progress for that year. Report of 2006 survey being prepared

■ - Not available

HousesoftheOireachtas


■ - Not available



■ - Not available

OfficeofPublicWorks

No Customer survey indicates that all calls are “always” or “usually” answered promptly


RefugeeApplicationsCommissioner

Yes Survey of the quality of call answering was conducted, which delivered a positive response from customers that meets Charter targets



Yes 47% of PAYE “1890” calls answered with 79% of all other calls answered within 30 seconds (in 2007 over 90%)

■ 2005 Below target

OrdnanceSurveyIreland

Yes No reporting made against Charter commitments in 2004, no information available for 2005

■ - -


No 64% of calls are answered in less than 10 seconds, while 79% of calls are answered in less than 20 seconds


StateLaboratory No Charter does not contain specific commitments on telephone enquiries

■ - Not available

StateExaminationsCommission

Yes 66% of all calls answered within 30 seconds, with 87% of these calls answered within 10 seconds


ValuationOffice Yes No reporting made against Charter commitments in either 2004 or 2005

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Table 5.5: Departments’ Progress Against Charter Commitments – Correspondence

Department Target Progress Achieved Reporting Year

Progress v. Target

AgricultureandFood

Yes Charter only launched in 2005, and there was no reporting against progress for that year

■ - -


Yes Acknowledgements issue to all Ministerial correspondence within two working days, with a full reply issuing to 89% of queries within 20 working days




■ - -



■ - -

Defence No Satisfaction rating of 90%+ with the time taken to respond to queries, the clarity of the reply and the accuracy of the information provided


EducationandScience


■ - -


Yes Work has been ongoing on the development of a correspondence tracking system, with completion due in 2007

■ - -



■ - -

Finance Yes Full reply issued to 72% of all written correspondence within 15 working days


ForeignAffairs Yes No reporting made against Charter commitments in either 2004 or 2005

■ - -

HealthandChildren


■ - -



■ - -


No Charter does not contain specific commitments on written cor-respondence

■ - Not available

Taoiseach Yes No reporting made against Charter commitments in either 2004 or 2005

■ - -

Transport Yes No reporting made against Charter commitments in either 2004 or 2005

■ - -



90

IntheGovernmentOffices,thelevelofreportingonwrittencorrespondencetargetsisalsolow,eventhough11of15OfficeshavequantifiedtargetsintheirChartersinthisarea.Inthefewcaseswhereresultshavebeenreported,however,theyshowthattherelevantOfficesareeitherclosetomeetingorareexceedingtheirChartercommitments(seeTable5.6).

Table 5.6: Offices’ Progress Against Charter Commitments – Correspondence

Body Target Progress Achieved Year Progress v. Target



■ - -

CourtsService Yes No reporting made against Charter commitments in either 2004 or 2005

■ - -


No Charter does not contain specific commitments on written correspondence

■ - Not available

AttorneyGeneral Yes Charter launched in 2005, and no reporting in 2005 Annual Report Customer Panel Report 2005.

■ - -



■ - -

HousesoftheOireachtas


■ - Not available



■ - Not available

OfficeofPublicWorks

Yes Customer survey indicates that over 90% of written correspon-dence is dealt with promptly


RefugeeApplicationsCommissioner

Yes Survey of written correspondence conducted in December 2005 indicates that most correspondence replied to within target times

■ 2005 On target


Yes 82% of all written correspondence processed within 20 work-ing days


OrdnanceSurveyIreland


■ - -



■ - -

StateLaboratory No Charter does not contain specific commitments on written correspondence

■ - Not available

StateExaminationsCommission

Yes 90% of all written correspondence answered within 15 work-ing days


ValuationOffice Yes No reporting made against Charter commitments in either 2004 or 2005

■ - -



91

5.4.5 Results of Complaints Procedures

IntroductionoftheCustomerCharterprocesshasputanaddedfocusonthematterofcomplaintswithinGovernmentDepartmentsandOffices,includinghowtheyarehandled.Between2004and2005,anumberofDepartmentsandOfficeshavereportedintheirAnnualReportsoncomplaintsproceduresandtheiroutcomes.Insomeinstances,thisreportinghasmerelynotedthatnewcomplaintsmechanismshavebeenputinplace(whichisitselfawelcomedevelopment).Inothercases,whereDepartmentsandOfficesreportonthevolumeandoutcomeofcomplaints,theresultsgenerallyprovideapositiveviewofcomplaintshandlingprocesses–levelsofcomplainthandlingappeartomeetChartercommitments,whilecustomersatisfactionwiththequalityofcomplaintshandlingisalsoreasonablygood(seeTable5.7).

Table 5.7: Selected Evidence of Progress on Complaints Handling Department/Office Description

Arts, Sport and Tourism New complaints procedure cleared with the Office of the Ombudsman and put in place

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Education and Science Customer comments and complaints systems now in place, with only four complaints received in 2004 (all resolved satisfactorily)

■

Enterprise, Trade and Employment All complaints monitored through a formal complaints procedure, with no complaints received in 2005

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Environment, Heritage and Local Government 45% of customers agreed that their complaints were handled effectively, while 17% disagreed

■

Social and Family Affairs Charter commitment to answer all complaints within 15 working days is being complied with across all main scheme areas

■

Transport 54% of business customers are either “very satisfied” or “fairly satisfied” with the quality of complaints handing (compared to just 19% in 2003)

■

Property Registration Authority New complaints procedure published in December 2004. Eight complaints received and dealt with successfully during 2005

■

Office of Public Works 80% satisfaction rating with the handing of complaints, but nearly 90% have limited or no awareness of the OPW’s complaints procedures

■

Refugee Applications Commissioner Customer complaints procedure was reviewed in consulta-tion with staff and members of the Office’s Customer Liaison Panel

■

Revenue Commissioners 100% of complaints received handled impartially within 20 working days (both in 2004 and 2005)

■

Source:SelectedGovernmentDepartmentsAndOffices


92

5.4.6 Reporting of Other QCS Survey Results

Section5.3abovereportedthefindingsoftheoverallCivilServicewidecustomersatisfactionsurveycommissionedbytheDepartmentoftheTaoiseach,asabarometerofoverallsatisfactiontrendsintheCivilService.

AnumberofindividualDepartmentsandOfficesalsocarryoutoccasionalsurveysandalso“mysteryshopping”exercises.However,caseswherethesearecarriedoutonaconsistentbasisovertimeseemtobequiterare.Also,thesehavenonecessarydirectlinkwiththeCharterprocess,relatinginsteadtotheCustomerActionPlanasawhole.Also,Chartersdonotcontainanytargetsforcustomersatisfactionlevels.Thisisprobablyappropriateasthesearetheproductofarangeofaspectsofcustomerservice,andnotjusttheCharters.WheretherearecustomerservicetargetsinCustomerActionPlansthesearereportedinAnnualReports.ThePublicAppointmentsServiceisacaseinpoint(seecasestudyinAnnex3).

Resultsof“mysteryshopping”exercises,wherethesehaveoccurred,arenotreportedinAnnualReports.Theyaregenerallyundertakentotestresponsetimesratherthanaswidertestsofservicequality.Fiveorganisationsreportedhavingcarriedoutsomesuchexercises–DepartmentsofCommunications,MarineandNaturalResources;TransportandtheTaoiseach,andalsotheCourtsServiceandCSO.

5.5 Wider Consultations

5.5.1 Introduction

Aspartoftheevaluation,weconsultedarangeofindividualsandorganisationsrelevanttotheCharterprocessbutbeyondourformalconsultationswiththe30Charterorganisationsthemselves.Thesefellintoanumberofgroups:

asmallnumberofseniorpublicservantswithanoverallknowledgeofandperspectiveonChartersandQCSacrossthePublicServiceasawhole;

anumberofpublicsectoragencieswith“horizontal”rolesrelevanttocustomerservice;

tradeunions,othersocialpartnersandconsumerrepresentativebodies.

Thissectionsummarisestheirperspectives,withparticularreferencetotheimpactoftheprocess.

5.5.2 Views of Senior Civil Servants

SeniorCivilServantsexpressedviewsontheCharterprocesscomparedwiththeirinitialexpectationsofit.ThoseexpectationsweregenerallythatitwouldenliventheQCSInitiative,placingaparticularemphasisontargetsandonmeasurementofperformanceagainstthese.Assuch,Charterswereoneelementonamenuofpossiblemechanismsthatcouldhavebeeninitiatedatthetime.OneoftheCharters’attractionswasseenastheirabilitytoalloworganisationstonominatetheirowntargetsratherthanhavingtheseimposed.

Theprocesswasseenashavingbroadlyachieveditsobjective.Inparticular:

itdidgiveanewfocustoQCS;

targetswereestablishedandprogressmeasured;

thereishighlevelbuy-in(i.e.amongconsultees’peers),althoughtheextentoffocusnaturallydependsonorganisations’proximitytocustomers.

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Thegeneralchallengeremaining,intheviewofconsultees,istoembedtheCustomerCharterandQCSconceptsinDepartmentsandOfficesatalllevels.Therewassomeconcernthatitmaystillbesometimesseenasabolt-on,ratherthanasabasicpieceofgoodmanagement.AreaswhereCharters,QCSandothernewPSMinitiativesareseenasburdensomewilltendtobethosewheregoodbasicorganisationalmanagementarenotyetroutine,andviceversa.

Therewasgenerallyawishtoseeongoing,dynamic,continuousdevelopmentandimprovementintheChartersandQCS,butawishtoavoidanymajornew“initiative”inthisregard.Thelatterwasseenastoosoon(afterCharterlaunch),potentiallydistracting,andindangerofcausing“initiativefatigue”.

Forthefuture,areaswithpotentialtoprogressmattersfurthercitedwere:

anemphasis(orre-emphasis)onthebasicsofgoodcustomerservice,andtheneedtotrainnewentrantstotheCivilServiceinthese;

scopetoreaffirmsomegoodpracticesthatmaybefallingaway,e.g.provisionofnamewhenansweringcallsorsigningcorrespondence;

aneedforindividualorganisationstothinkmoredeeplyabout“whatbusinesstheyarein”,whotheircustomersareandtotailorservicesandtargetstothis;

recognitionofboththeimportanceandalsothelimitationsofe-Government.Itisofmajorimportance,butisnotapanacea,andproblemsaboutacceptability,securityetc.remain.Telephonewillremainthemostattractivemeansofcommunicationinmanyinstancesforsomecustomers;

theneedformoreandbetter“listening”tocustomers,andadangerthatthesystemstilltendstodowhatitwantsratherthanwhatcustomersactuallywant.Moreuseofcustomerpanelsandofintermediary/advocacybodieswasemphasised,aswasthedesirabilityoffindingwaystomoresystematicallyaccessthevaluableknowledgeofcustomerandcitizenissuesofthepoliticalsystem,e.g.analysingPQs,surveyingprofessionalofficestaffinpoliticaloffices.

ThedesireforChartersandCAPstobeseenaspartofthesameholisticprocesswasalsoexpressed,withbothonthesametime-lineandasmanifestationsofthesameefforttoimproveservices.

5.5.3 Other Government Bodies

Partofthewiderconsultationsforthisevaluationhaveinvolveddiscussionswithotherpublicorganisations,i.e.theOfficeoftheOmbudsman,theEqualityAuthority,andtheNationalDisabilityAuthority.Inoverallterms,thesediscussionssuggestthatsuchorganisationshaveabroadlypositiveviewoftheCustomerCharterprocessanditsimpactoncustomerserviceintheCivilService.Inparticular,anumberofkeypointsofnoteweremade:

ithasbeengenerallyacknowledgedthatcustomerserviceintheCivilServicehasimprovednoticeablyinrecentyears,andGovernmentDepartmentsandOfficesappeartobemoreconsciousaboutcustomerserviceissuesthantheywerepreviously;

inthisregard,theCharterprocessisgenerallywelcomedasaworthwhileinitiativethatcontributestoimprovingthecustomerserviceethosintheCivilService.ThisincludestheemergingintroductionofformalcomplaintsandappealsmechanismswithintheCivilService.Between1999and2005,forexample,thenumberofvalidcomplaintsmadetotheOfficeoftheOmbudsmanabouttheCivilServicehasfallenby30%(seeAnnex4);

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itwasalsonotedthatitisdifficulttoisolatetheimpactoftheCharterprocessfromitswiderPublicServiceModernisationcontext.ThedropinthenumberofvalidcomplaintsmadetotheOfficeoftheOmbudsman,forexample,hasactuallytailedoffsince2002(seeAnnex4);

notsurprisingly,discussionssuggestedthatsomeGovernmentDepartmentsandOfficesareperceivedasprovidingasuperiorcustomerservicetoothers.Thisappliesbothtocustomerservicegenerallyandtoservicegearedtospecificissues,e.g.disability;

finally,somekeyinformantssuggestedthatthegeneralpublic’sawarenessoftheCustomerCharterscouldbemuchimproved.

TheCharterprocess,therefore,isacknowledgedasbeingastepforwardinimprovingcustomerservicewithintheCivilService.Thechallengethatkeyinformantsthinkliesahead,however,istofullyembedthecustomerserviceethoswithintheorganisationalculturesofGovernmentDepartmentsandOffices,i.e.DepartmentsandOfficesshouldmakesuretobe“livingtheCharters,notlaminatingthem”.

OrganisationswithanadvocacyrolealsoexperienceddisappointmentthatthefocusofChartersismainlyonthelessproblematicsectors,andcannotbeseenasasubstituteforaddressingtherealweaknessesinsomekeyserviceareassuchashealth,educationandsocialservices.

5.5.4 Trade Unions and Representative Bodies

Discussionswithotherkeyinformantsoutsidethepublicsector(e.g.IBEC,theConsumersAssociationofIreland,unionrepresentatives)weregenerallypositiveaboutrecenttrendsincustomerserviceintheCivilService,suggestingthattherehasbeenaconsiderableimprovementincustomerservicesincethemid-1990s.Whilesomefeelthatthishasbeenmoreevidentthroughsomeofthemajorstrategicinitiativesdevelopedinthatperiod,e.g.theRevenueOnlineService,othersalsoacknowledgeanoticeableimprovementinthelevelofcustomerserviceprovidedbyfront-linestaffintheCivilService.TheConsumersAssociationofIreland,forexample,believesthatcomplaintsthatithasreceivedaboutcustomerserviceintheCivilServicehavedeclinedby50%-60%inthelastfiveyears.

Othersalientpointsmademirrorthecommentsofkeyinformantsinthepublicsector.Forexample:

introducingCharterswithinthepublicsectorisagoodidea,asitsetsabenchmarkforcustomerservicecommitments;

experienceofcustomerserviceappearstobebetterinsomeDepartmentsandOfficesthanothers(which,admittedly,isprobablysimilartotheprivatesector);

furthermore,despitethegeneralimprovementsincustomerserviceacrossGovernmentDepartmentsandOffices,somekeyinformantsfeelthatawarenessoftheCustomerChartersremainslow.

Keyinformantswouldalsobekeentoseethatthemomentumforimprovedcustomerservice,whichhasbeenbuiltupbytheCharterprocess,bemaintained.Again,thismirrorstheconcerntoensurethattheCharterprocesshelpstoembedacustomerserviceethoswithintheCivilService.Inthisregard,therewouldbesomeconcernsthatsomemomentummightbelostthroughthechangesarisingfromwiderCivilServicedevelopments,suchasdecentralisation.

Furthermore,inordertoincreaseawareness,itwassuggestedthataworthwhileinitiativewouldinvolveacknowledgingandhighlightingsomeofthepositiveexamplesofimprovedcustomerserviceintheCivilService,wherethesehaveemerged.

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with Customer Charters


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6. Other Experience with Customer Charters6.1 Introduction ThisChapterlooksatusageandtrendsinCustomerCharters(andequivalentstatements)intworelevantsettings:

thepublicserviceinternationally,especiallyotherEnglishspeakingcountries;

theIrishprivatesector.

Theseareeachofcoursepotentiallyverylargetopicsintheirownright.Theyhavebeenlookedatonlyrelativelybrieflyhere,andlargelyasadesk-basedexercise.

6.2 Public Sector Experience in Other English-speaking Countries

6.2.1 Charter Concept

CustomerCharterswereoriginallydevelopedandusedinthepublicsectorinanumberofotherEnglish-speakingcountries,includingtheUKandAustralia.NotalladministrationshaveusedCharterswidely.TheyarenotextensivelyusedinNewZealandforexample,althoughitisgrapplingwiththesameservicechallenges(seeBox1).

AsevidencedintheCustomerCharterGuidelines,developmentofCustomerChartersinIrelandhastakenaccountoftheexperienceinthesecountries,andtheChartersdevelopedhaveanumberofsimilaritieswiththeChartersdevelopedelsewhere.Forexample,thefollowingstatementprovidesadescriptionofCustomerChartersfromthePublicSectorManagementOfficeoftheStateGovernmentofWesternAustralia:

“ACharterisaveryclearexpressionofwhatanagencyprovides.Chartersareusuallyproducedasaneasy-to-readpublicationinthestyleofabrochure.ACustomerServiceCharterenablescustomerstochecktheirexpectationsagainstwhatisofferedandprovidesamechanismforgivingfeedbackifexpectationsarenotmet.Italsoenablestheorganisationtodescribethewayitallocatesitsresourcesandexplaintocustomerstherealisticlevelofservicetheymayexpect”.

ThisdescriptionisclearlyverysimilartowhatCustomerChartersintheIrishPublicServiceaimtoachieve.

Intermsofcontent,ChartersdevelopedinotherEnglish-speakingcountriesarealsocomparablewithChartersinIreland,andtypicallyinclude:

acommitmenttoservice,whichgivesexplicitrecognitionofthepriorityplacedonservicestocustomersandwhichinvolvesacommitmentfrombothmanagementandemployees;

alistofproductsandservicesoffered,sothatitiscleartocustomerswhatservicesareavailable;

anidentificationofthekeycustomerswhouseorneedanagency’sservices,andinputsfromthesecustomersaboutservicerequirements;

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BOX 1: CUSTOMER CHARTERS IN NEW ZEALANDNewZealandwasintheforefrontofthe“re-invention”ofGovernmentinthe19�0s,instigatingapublicsectorreformationthatsubstantiallyreducedthedirectroleofGovernmentintheprovisionofarangeofservices.ReducingtheState’sfootprintintheeconomywasseenasthefirststepinthisreformprocess.Intheyearssincethisinitialre-shaping,thefocushasbeenmorestronglyplacedonadministrativereformofcorestatefunctionsandmakingthesemoreresponsivetotherequirementsofthepublicwhomtheyserve.

AverysmallnumberofNZGovernmentagencies1haveCustomerCharters-theyarenotmandatory.Reflectingthis,CustomerChartersdonotfeatureintheofficialpoliciesoftheStateServicesCommission(SSC)–theGovernmentbodychargedwithservicestandardswithinthePublicSector.However,measuringcustomersatisfactionlevelsandsatisfactionwithaccesstopublicservicesisanareaofgrowinginteresttotheSSC.Inparticular,whileCustomerChartersdonotfeature,assessingcustomersatisfactionispartofarelativelynewpublicmanagementprogrammeofworkassociatedwiththeSSC’s“DevelopmentGoalsfortheStateServices”.Theoverallgoalistoattain“asystemofworldclassprofessionalStateServicesservingtheGovernmentofthedayandmeetingtheneedsofNewZealanders”.Withinthis“OverallGoal”therearesix“DevelopmentGoals”-eachwithasetoftargetsandindicators–thataredesignedtosupporteachotherandworkcollectively.The“Goals”arenotintendedtooutlinewhatoutcomestheStateServiceswillachieve–amatterforGovernmentpolicy–butratherareaspirationsforhowtheseServicesgoabouttheirwork.AllsixgoalsultimatelyimpactonservicetocustomersofStateServices,withgoalsCandEparticularlyrelevanthere:

Goal C Networked State Services–thisgoalrelatestotheuseoftechnologytotransformprovisionofservicesforNewZealanders;

Goal E Accessible State Services–thisgoalisaboutenhancingaccess,responsivenessandeffectivenessandimprovingNewZealandersexperienceofStateServices.ItisfocusedonimprovingtheattentionthatStateServiceagenciespaytoNewZealander’sexpectationsandexperienceofservicedelivery.

AprogressreportontheDevelopmentGoalswaspublishedin2006andisanattempttoestablishaplatformforunderstandingperformanceacrosstheStateServicesandwillbeusedtomonitorprogressinrelationtoDevelopmentGoals.Itisexpectedthattheinitialreportingmethodsandthesetofprogressindicatorsusedwillberefinedandimprovedovertime.Inaddition,theSSCundertookanextensivepilotstudyinRotoruaareatoexploreaccessibilityandresponsivenessinthatDistrictandfurtherresearchwillbeundertakenduring2007.The2007ResearchProgrammeincludesaprojectleadingtotheadaptionofCanada’sCitizenFirstcustomersurveyinitiative(seeBox3)thisisseenbytheSSCasasuccessfulmethodtheCanadianshaveusedtobenchmarktheirPublicServices.

1 AmongthosethathaveCustomerChartersareTheACVM(AgriculturalCompounds,VeterinaryMedicinesandContaminants)whoareresponsibleformonitoringtheimportandmanufactureofACVMs,whileanumberofwatercompaniesalsohaveCustomerCharters.AtabroaderlevelallagenciesthatprovideStateServicespublishannualreportsorstatementsthatrecordtheir“Mission”,statutoryobjectives,howtheyhavegoneaboutachievingtheseanda“StatementofIntent”forfuturedevelopment.

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astatementofguaranteeonservicedelivery,includingwell-definedandmeasurablestandardsofservicedelivery.Standardsmustaddressthemainareasofconcerntocustomers,buttheymustalsobeachievable;

suggestionandcomplaintsprocedures,includinginformationaboutcomplaintshandlingprocessesandentitlementtoredresswherestandardsarenotmet;

feedbackmechanisms,whichcanfacilitateregularmonitoringofwhetherstandardsofservicedeliveryarebeingmet.

6.2.2 Overall Experience to Date

ExperienceinotherpublicsectorsalsoemphasisestheimportanceofviewingCustomerChartersasaprocess.Inanumberofcases,forexample,promotersofChartershavestressedtheimportanceofregardingtheCharterasa“livingdocument”,whichwillberegularlyreviewedinlightoffeedbackfromcustomers,staffandstakeholderstoensurethatitaccuratelyreflectspriorities.Inthisregard,therefore,introducingaCharterisnotsimplyaproject–itisinstead,ideally,anewwayofdoingthingsonadailybasis.

ThisinturnhasafewimportantimplicationsfortheintegrityofaCustomerCharterprocess.Firstly,itstressestheneedforconsultationasacorecomponentoftheCharterbuildingprocess.Thismeans(a)consultingbothcustomersandstaffinparticularand(b)usingthevarietyofconsultationtechniquesthatarealreadyoutlinedintheCustomerCharterGuidelinesinIreland.However,italsonecessitatesacommitmenttoconsultationonaconsistentandongoingbasis,notjustonanintermittentand“adhoc”basis.

Secondly,itrequiresastrongcommitmenttoevaluationandmonitoringofhowwellChartercommitmentsarebeingmet.IntheIrishcase,thevarioustoolsandtechniqueshavebeenoutlinedintheCustomerCharterGuidelines.However,theimplementationoftheevaluationandmonitoringhasbeenpatchy,anditwouldneedtobecomemorecomprehensiveandconsistentifitistomatchbestpracticeinothercountries.Thismayincorporatemoreformalandstructuredmechanismsforbothassessingcustomerneedsandmeasuringcustomersatisfactiononacontinuousbasis.

Finally,buthighlyimportant,gainingthecommitmentofmanagementandotherpersonnelinanorganisationisobviouslycrucialifaCustomerCharteristobecomealivingdocument.Thechallengehereinvolvesgettingmanagementandemployeestoactivelyengageandparticipateintheprocess.GoodpracticeinotherpublicsectorshasthereforestressedtheneedformanagersandemployeestotakeownershipoftheCharterprocess,andtheneedtoempoweremployeesinmakingtheCharterhappen.ThecriteriafortheCharterMarkstandardintheUK,forexample,placesastrongemphasisonthisbyencouragingemployeestocomeforwardwithpossibleinitiativestopromotebettercustomerservice.This,however,alsorequiresmanagementtobegenuinelyopenandreceptivetoemployees’ideasandinputs.

TheCharterMarkintheUK(seeBox2)isaninterestingexampleofhowapproachesto,andstandardsin,customerserviceexcellencecandevelop.Inparticular,ithasestablishedabrandforcustomerserviceinpublicsectororganisationsintheUK.Furthermore,inordertogaintheCharterMark,publicsectororganisationsintheUKneedtomeetabroadrangeofcriteria,whicharestronglyorientedtowardsembeddingcustomerserviceasaholisticprocessintheorganisation,andnotjustasadocumentora“stand-alone”dimensionofactivity.Theassessmentforaccreditation,forexample,investigateswhetherconsultationwithstaffandcustomersisembeddedintheorganisation,notjustin

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BOX 2: UK CITIZENS’ CHARTER/CHARTER MARKTheGovernmentofUKPrimeMinisterJohnMajorfirstintroducedtheconceptof“Citizens’Charters”intheUKin1991-92.Thiswasseenasafirststepontheroadtomakingthepublicservices“offer”clearerandalsoagreaterfocusontheneedsofcitizens.Thismissionwasitselfinfluencedbytheattitudesatthetimetowardspublicservicereformgenerally,improvementofpublicservicedelivery,andintroducingaspectsofprivatesectorpracticesintothis.However,theapproachhassincebecomefundamentallyembeddedinUKthinkingandisnowacceptedbyallmajorpoliticalparties.

ThisUKinnovationisprobablytheoriginofsimilarprocessesthroughouttheEnglish-speakingworld,andindeedinothercountries.TheCitizens’Charterwas,akintotheCustomerChartersinIreland,awrittensetofcommitmentsonthepartofGovernmentDepartmentsandAgenciesregardingtheir“offer”tothecustomer,i.e.adescriptionofwhatthecustomercouldexpectinapproachingthem.Hence,useoftheterm“Charter”wasdesignedtoreflectadegreeofformalcommitment.

IntheinterveningperiodthethinkingunderlyingtheChartershasevolvedconsiderably.TheuseofformalwrittenChartersassuchhasitselflessenedinfocus.Theexpectationnowisthatorganisationswillhavesomesuchstatement,butthisisnotnecessarilycalledaCharteranditmaynotnecessarilybephysicallydisplayedandusedinthesameway.However,theprocesswhichitrepresentshasbeenmoredeeplyembeddedandnowalsoincludesstandardsofserviceinagreementsbetweenagenciesandtheTreasury,andisseenasbeingattheheartofwhatthepublicserviceisdoing.

Thecurrent“CharterMark”hasitsoriginsintheCitizens’Charters,andwasoriginallyawayofrecognisingorganisationswhichperformedwellagainsttheirCharter.Itsubsequentlyevolvedintoaqualityassurancemark,i.e.ithasbecomeastandardratherthananaward.1Therearecurrentlyabout1,500holdersoftheCharterMark(thisrepresentsabout10%ofUKservicedeliveries).Participationintheschemeisvoluntary.

TheCharterMarkschemehasbeenreviewedonanumberofoccasionssinceitwasestablishedin1992.Inparticular,thestandardsandexpectationsareraisedoneachoccasion,reflectingacombinationoftherisinglevelsofservicequalityexpectedbythepublic,andalsotheservicelevelsavailablefromtheprivatesector.

ThemostrecentreviewoftheCharterwascarriedoutin2006andthishasmadeanumberofrecommendationswhichhavebeenacceptedbytheUKGovernment.2Theintentionisthat:

theschemeberevampedandremodelled;

itbere-branded(atthetimeofwritingitsnewnamehasnotyetbeendecided);

morefocusisplacedontheactualdriversorcomponentsofcustomersatisfaction;

anumberofkeyareastobeprioritised-health,education,localgovernmentandcriminaljustice.

1 CabinetOffice,CharterMark,CharterMarkStandard,www.chartermark.gov.uk2 BernardHerdan,TheCustomerVoiceinTransformingPublicServices:IndependentReportfromtheReviewoftheCharterMarkSchemeand

MeasurementofCustomerSatisfactionwithPublicServices,June2006.

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itscustomerservicearrangements,whileacommitmenttocontinuousdevelopmentandimprovementinanorganisationisalsoassessed.TheCharterMarkalsoplacesanemphasisondeliveringvalue-for-moneyasapriorityandon“goingtheextramile”(e.g.byencouragingstafftoexceedratherthanjustmeetservicedeliverystandards).

WehavenotrecommendedtheCharterMarkapproachbeadoptedinIrelandatthisjuncture.ThemainreasonisthattheChartersthemselvesarearelativelyrecentinitiative,andanothermajorinitiative(suchasaCharterMark)isprobablypremature.1

Finally,internationalthinkingandpracticesuggestthatChartersneedtobewellpromoted,sothattheyarevisibletobothexistingcustomersandpotentialcustomers.2Ifthisisnotthecase,itislikelythatmostcustomerswillnotbeawareoftheservicecommitmentsbeingmadeandthelevelofservicethattheycanexpect.Chartersthereforeneedtobemadeknowntocustomers,bereadilyavailablethroughvariousmeans,andbeeasilyunderstoodbycustomers(hencetheneedforshortstatementsineasy-to-readlanguage).

6.2.3 Establishing and Assessing Customer Needs

Withregardtoincreasingandmeasuringlevelsofsatisfaction,theUK,NewZealandandsomeothercountriesarecurrentlylookingtoCanadianpractice,whichhasplacedaparticularemphasisonidentifyingwhataffectscustomers’satisfactionlevels,andhowthisisdevelopingovertimeandacrossorganisations.Thisinvolvesperiodicnationalsurveysintheseriesof“CitizensFirst”(seeBox3).Thegeneralapproachofamajornationalsurveywithasufficientlylargesampletoallowexaminationofpatternsacrossservices,organisations,regions,etc.hasalotofattractions.Welaterpropose(inChapter7)thattheexistingoccasionalsurveysundertakeninIrelandbeextendedinthisdirection.

1 ThiswasalreadyexaminedinHumphreys,ButlerandO’Donnell,AQCSMarkfortheIrishPublicService,CPMRResearchReportNo.4,IPA,2002.2 ThisisevidentfromthecriteriasetoutintheCharterMarkStandard.Seealso“DevelopingCustomerServiceCharters:APracticalGuide–Im-

provingCustomerServiceandQualityintheWesternAustraliaPublicSector”,PublicSectorManagementOffice,WesternAustralia,June1994.

Asnotedinthemaintext,the“CharterMark”criteriaascurrentlyestablishedgowellbeyondanynarrowdefinitionofcustomerserviceandrelatetomanyaspectsoftheorganisationanditsperformance.Whileadistinctionisstillmadebetweencustomerserviceanddetailedtechnicaloutcomesassuch(e.g.medicaloutcomesinthehealthservice)thecriteriagowellbeyondimmediateinterfacesintothenatureandperformanceoftheorganisationandthequalityofserviceprovided.

Intermsofactualimpactoncustomerservices,evidenceismixed.Thereisaviewthatthequalityofserviceandcustomersatisfactionwiththesehaveimprovedinanumberofareas,e.g.primaryeducationandout-patientwaitingtimes.Otherareasarestillseenasproblematic,e.g.levelsofsatisfactionwithservicesprovidedbylocalgovernment.


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BOX 3: CANADA: INSTITUTE FOR CITIZEN- CENTRED SERVICE/CITIZENS FIRST

TheCanadianInstituteforCitizen-Centredresearchisanon-profitorganisationresponsibleforpromotingmorecitizen-focusedservicesacrosstheCanadianpublicservice.Asreflectedinitsname,aparticularfocusinCanadaisontheroleofthecitizen,reflectingitsmulti-ethnicnatureandthepresenceofmanylargeimmigrantcommunities.

AlsochallenginginCanadaisthelargegeographicalscaleofthecountry,andtheco-existenceoffederal,provincialandmunicipalgovernmenttiers.Thereisalsotheviewthattheconfidenceofcitizensinthestateisaffectedbytheirexperienceofdealingwithstateservices.Canadaisoverallseenasa“trendsetter”intheareaofpublicservicecustomers,andisrankedfirstinthe2006AccenturereportonLeadershipinCustomerService.1

Oneoftheprincipalinitiativesforpromotingmorecustomer-orientedserviceisthe“CitizensFirst”surveys.Thesearelargenation-widesurveysconductedeveryfewyearswhichprovidedetailedanalysisoftheattitudestowardspublicservicesacrossthecountry.Theresultscanbebrokendownindetailbyregion,bytypeofservice,etc.Individualparticipatingorganisationscanalsoobtainresultsrelatedtotheirownperformance,andbenchmarktheseagainstnationalperformances.Thefirstsurveywasundertakenin199�anditwasrepeatedin2003,2004and2005.Thenextone(CitizensFirst5)willrelateto2007.

Akeyelementoftheinitial199�surveywasidentificationofthefactorswhichdrivecitizensatisfactionlevels.Thiswasdoneonthehypothesisthat,tobothunderstandandimproveoverallsatisfactionlevels,itisimportanttoknowwhatdrivesthese.Thatsurveyidentifiedfivesuchdrivers,andthesehaveremainedrelativelyconsistentthroughoutsubsequentsurveys.Thesekeydriversare:

timeliness;

knowledgeandcompetenceofstaff;

fairness;

courtesyandcomfort;

outcome.

Forothercountriesdevelopingqualitycustomerserviceswithaviewtoincreasingcitizensatisfaction,thekeyinsighthereisthatitisnecessarytounderstandwhatdrivesthatsatisfactioninthefirstplacebeforeservicescanrespondfullytoit.ThereisotherwisethepitfallthatthedrivetowardsQualityCustomerServicestillinvolvesaninbuiltpresumptionthattheserviceprovidersknowwhatthecitizenwants.Otherinterestedcountries,includingtheUK,arecurrentlylookingtothisaspectoftheCanadianmodelandtoitscommonmeasurementtools.[forfurtherdetailsseewww.iccs-isac.org]

1 ThisisevidentfromthecriteriasetoutintheCharterMarkStandard.Seealso“DevelopingCustomerServiceCharters:APracticalGuide–ImprovingCustomerServiceandQualityintheWesternAustraliaPublicSector”,PublicSectorManagementOffice,WesternAustralia,June1994.

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6.3 Citizens/Customer Charters in the EU

6.3.1 Source of Information

Section6.2hassummarisedtheresultsofashortdesk-basedexaminationofformalPublicServiceCustomerCharters,andrelateddevelopments,inselectedcomparableEnglishspeakingcountries.

Practiceoutsidethisareaisclearlyapotentiallywide-rangingtopic,andestablishingdevelopmentsalsofacesgreaterbarriersoflanguage,interpretationanddifferentpublicpolicysettings,e.g.asbetweenamorelegaloradministrativeemphasisinpublicadministrations.

In2006,theEuropeanPublicAdministrationNetwork(EPAN)carriedoutanadhocsurveyofthe2�EUMemberStates(then25plus3accessioncountries)regardingtheiruseof“CitizenCharters”.RespondentswereNetworkmembersineachcountry,sothesurveyreflectstheirassessmentofthesituationintheirowncountries.This,andthecomplexnatureofnationalandsub-nationaladministrations,maygiverisetosomeambiguitiesorinconsistenciesintheresponses.Somequestionsaskedwerealsothemselvesalittleambiguous,e.g.“clearstandardsbasedoncitizeninvolvement”couldbeinterpreteddifferentlybydifferentrespondents.Explanatorycommentswerealsoprovidedbyeachrespondent.

6.3.2 Prevalence of Charters

Theresultsareinformativeonoverallpatterns.Asshowninthefinalcolumn,elevenMemberStatessayuseofCitizenChartersis“considerable”.CountriesreportingconsiderableuseofChartersaremainlythemoredevelopedMemberStateswithareputationforhigherqualitypublicservices.ThisgroupincludesDenmark,Netherlands,Norway,SwedenandtheUK.Afurthernine(whichincludesIreland)indicatedusebutregardedthisas“limited”.

SevencountriessaidtheydonothaveanyCitizenCharters(andPolandwouldalsoappearnottohave).ApartfromBelgium,(whichreportsuseofChartersatregionallevel),thislattergroupareallnewMemberStatesinCentralEurope.

Intermsoflevelsofcustomersatisfaction,theCitizensFirstsurveyshowsthatCanadiansfeelthequalityofspecificpublicservicestheyhaveexperiencedatallthreelevelsofGovernment(federal,provincialandmunicipal)isimproving.Between199�and2005,substantialimprovementshavebeennotedacrossCanadainavarietyofpublicservices,including:healthcardapplicationsandrenewal;huntingandfishinglicences;vehicleregistration;drivinglicences;andapplicationsforsocialassistance.

Ratingsofpublicservicesgenerally.However,overallratingsareusuallylowerthanthoseofspecificservices.AsanexplanationforthistheauthorsoftheCitizensFirst4reportnotedthat“whenratingGovernmentservicesingeneral,citizensmaydrawonarangeofopinions,experiencesandreferencegroupinfluencesthattendtobemorenegative.Themyththatall,orevenmany,publicservicesareofpoorqualitystillexists,yetwhenonegetspastthemythicalrhetoricandanecdotalexamplesofpoorexperiences,manyGovernmentservicesrateratherwell.2

2 ThePhase5ConsultingGroup,CitizensFirst,page13,ReportforInstituteofCitizenCentredServicesandtheInstituteofPublicAdminis-trationofCanada,November2005.


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Table 6.1: Reported Prevalence Of Citizens Charters in EU Member States

Country No Charter

Use

Limited Charter

Use

Consider-able

Charter Use

Clear Standards/

Citizen Inolved

Exten-sively

Communi-cated

Redress/Compen-

sation

Clear Com-

plaints Procedures

Continued Improve-

ment/ Evaluation

Austria 4

Belgium 4

Bulgaria 4

Cyprus 4

Czech Republic 4

Denmark 4

Estonia 4 4 4

Finland 4 4 4 4 4

France 4

Germany 4 4 4

Greece 4

Hungary 4

Ireland 4

Italy 4

Latvia 4

Lithuania 4

Luxembourg 4

Malta 4 4 4 4 4

Netherlands 4 4 4 4 4 4

Norway 4 4 4

Poland 4 4 4

Portugal 4

Romania 4

Slovakia 4

Slovenia 4

Spain 4 4 4 4 4 4

Sweden 4

UK 4 4 4 4 4

Total (28) 7 10 11 8 8 3 6 5Source:EuropeanPublicAdministrationNetwork,AdHocSurveyOfNationalAuthorities2006.


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6.3.3 Charter Content

IntermsofChartercontentboth“clearstandardsbasedoncitizeninput”and“extensivecommunication”ofChartersisreportedbyjusteightMemberStates,clearcomplaintsproceduresbysix,andcontinuousimprovement/evaluationbyfive.

“Compensation”systemsarereportedasexistingbythreecountries(Estonia,NetherlandsandSpain).ThisismuchlowerthanthenumberofcountriesstudiedintherecentlypublishedMcCannFitzgeraldreport,Redress for Civil Service Customers – International Approaches.Thegapmaybeexplainedeitherbyreportinginadequaciesinthesurvey,bydifferencesofinterpretation,orbydifferencesincoverage,e.g.theMcCannFitzgeraldreportcoverslegalaswellasadministrativeredress.

6.4 Private and Commercial Sector PracticeExamplesofCustomerChartersintheprivateorcommercialsectors,mainlyfromIreland,havebeenlookedataspartofabriefreview.Theexamplesidentifiedcoveranumberofsectors,includingbankingandfinancialservices,electricitysupply,insurance,telecommunicationsandtransport.

InanIrishcontext,however,itwouldappearthatformalCustomerChartersareonlyadoptedinaminorityofprivatesectorfirms.AnInternetsearchforprivatesectorChartersinIreland,forexample,providesevidenceofChartersinthefollowingsectors:

energy–Chartershavebeenpublishedbycommercialsemi-StatebodiessuchastheESBandbysomesmalleroperatorssuchasVayu(anindependentproviderofnaturalgastotheIrishbusinessmarket);

ICT –VodafoneandO2haveadoptedaCharter,ashaveotherbusinessessuchasNTL/Chorus,iQonTechnologies(anindigenousPCmanufacturer),WebExpress24andSwitchMedia(Internetserviceproviders);

financial services–thereanumberofwell-knownfinancialservicesfirmsinIrelandthathaveadoptedCharters,includingAllianzDirect,FirstActive,QuinnDirect,AngloIrishBank,IIBHomeloansandPermanentTSB(whichhasadoptedaCustomerComplaintsCharter);

transport–companiestoadoptChartersinthissectorincludeRyanair,theNationalCarTestingService,theDriverTheoryandTestingService,Veolia(whichoperatestheLuasinDublin)andallthreeofthepubliclyownedbutcommerciallyoperatedcompaniesinCIÉ(i.e.BusÉireann,DublinBusandIarnródÉireann;

others–includingBordBia,Coillteandsomeconsultingfirms(e.g.EAPConsultants,BrightwaterSelection).

TheseCharterstakeavarietyofforms,andincludesinglepagestatementswithverylittledetailandgeneralstatementsofcommitment(e.g.O2,AngloIrishBank,IIBHomeloans,iQonTechnologies)orlongerdocumentswithmorespecificstatementsofcommitment(e.g.FirstActive,DublinBus,).

Inmanycases,CustomerChartersforprivatesectororganisationsmakethesamekindsofcommitmentsthatarefoundinCharterspreparedintheIrishPublicService.Thisincludescommitmentsontelephoneresponse,writtencorrespondence,contactthroughwebsitesorcomplaintshandling,

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forexample,aswellascommitmentstoregularlyreviewandmonitorcustomerserviceperformance.CommitmentstoconfidentialityarealsoanimportantelementofmanyprivatesectorCharters,andseveralChartersalsohighlightprofessionalism,honestyandintegrityaskeyelements.

Inaddition,Charterscanmakemorespecificcommitmentsonserviceaspectsthatareparticulartoafirm’sindustryorbusiness.3Theseinclude,forexample:

servicecommitmentsonopeningofaccounts,oronapplicationofratesofinterestandcharges,forfinancialservicesfirms(e.g.FirstActive);

howinsuranceproviderswilldealwithinsuranceclaims(e.g.QuinnDirect,AllianzDirect);

commitmentsontheaccuracyofinformationprovidedandtheaccuracyofbillingarrangements(e.g.ESB,someInternetserviceproviders);

servicepunctualityandreliability,particularlyinthecaseoftransportservices(e.g.theCIÉcompanies,Ryanair);

commitmentsoninstallation,disconnectionandfaultservicingbyutilitiesproviders(e.g.NTL/Chorus);

commitmentsonserviceaccessibilityandequality(e.g.transportproviders);

commitmenttoprovidingstaffwiththetrainingnecessarytodeliverqualitycustomerservice;

commitmenttomakingstaffresponsibleandaccountableforthequalityoftheirwork(e.g.WebExpress24);

insomeinstances,acommitmenttocontinuouslyimprovecostcompetitivenessandtobepricecompetitive(e.g.Ryanair).

Privatesectororganisationsalsofacemanyofthesamechallengesasthepublicsectororganisationsintryingtodevelopandmaintain“livingandbreathing”Charterprocesses.Giventheimportanceofgoodcustomerserviceinmanyprivatesectorbusinesses,itiscrucialthatprivatesectororganisationsseektomeetthesechallenges.Indeed,meetingthesechallengescanmakethedifferencebetweendevelopingaCharterthatisagenuinecustomerservicetoolratherthanonethatissimplyamarketingtool(whichcaninturnbecomedamagedintheinstanceofpoorcustomerservice).

Therefore,thecommonchallengesfacedbyprivatesectororganisationsindevelopingCustomerChartersinclude:

gettingthecommitmentofallmanagementandstaffinanorganisation,sincetheCharterwillinpracticeonlybeasstrongasthiscommitment.Privatesectororganisationswillequallyhavetostrivetomakesurethatcustomerserviceistheresponsibilityofeveryoneintheorganisation,givingindividualandcollectiveresponsibility;

establishingameansofgettingfeedbackfromcustomersandstaff,whichiscarriedoutonaregularbasis,whichprovidesacontinuousreviewtobenchmarkprogress,andwhichhelpstocontinuouslydevelopandimproveservicelevels.

Aninterestingdevelopmentinrecentprivatesectorexperienceistheemergenceoffinancial3 ThisequallyappliestoGovernmentDepartmentsandOfficesinIreland.Forexample,theDepartmentofSocialandFamilyAffairsmakesspecific

commitmentsonhandlingsocialwelfareclaimsandpayments,whiletheDepartmentofForeignAffairsmakesspecificcommitmentsonitspassportservice.

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compensationasatooltoimprovecustomerservice.ThisiswhereaprivatesectororganisationholdsitselfaccountablefinanciallyifitfailstomeetChartercommitments,andpayscompensationtothecustomerincaseswhereitfailstomeetcommitments.Thisisintendedtoactasaspurtocompeltheorganisationtorectifybreachesofservicestandardsifsomethinggoeswrong.

AAMI,forexample,isoneofAustralia’sleadingprovidersofmotorinsurance.IthasoperatedaCustomerChartersince1996,includingprovisionforfinancialcompensationtocustomerswhenitfailstomeetChartercommitments.Inthisregard,AAMIpaysaA$30penaltytocustomersifitfailstomeettheservicecommitmentsoutlinedinitsCustomerCharter.Asaresult,thecompanyhaspaidoutmorethan6,000penaltypaymentsinthelast10yearsforbreachesofitsCustomerCharterpromises,leadingtototalpaymentsofmorethanA$200,000.Furthermore,morethan90%ofthesepaymentswereinitiatedbyAAMIstaffratherthanbeingafollow-uptocustomercomplaintsaboutbreachofChartercommitments.

ThisapproachhasnowalsoemergedinanIrishcontextinoneofIreland’scommercialsemi-statebodies.TheCustomerCharterforESBNetworks4,forexample,makes12serviceguaranteesforelectricitynetworksupply,whichcover:networkrepair;plannedsupplyinterruption;mainfuseinterruption;meterconnection;connectionquotation;newconnection;voltagecomplaintinvestigation;voltageproblemresolution;appointments;refund;ELCOMsettlement;andpayments.Foreachoftheseguarantees,ESBNetworksmakesaclearandmeasurablecommitment,andeachguaranteealsoincludesfinancialcompensationlevelsofbetween€35and€130,shouldthecompanyfailtomeetitscommitments.Formostoftheseguarantees,paymentofcompensationforbreachofcommitmentswillalsobeinitiatedbythecompanyratherthanthecustomer.

Theprivatesectorexamplescitedhereare,however,exceptionalones.InthespecificareaofCustomerChartersandsimilarcommitments,usageintheprivatesectorisprobablystilltheexceptionratherthantherule.Levelsofclarityaboutcommitments,andofassociatedservice,canoftenbequitelowintheprivatesector.Also,emphasisonpricecompetitionhasinsomesectors,low-costairlinesbeingahighprofileexample,probablyloweredcustomerservicestandards(althoughRyanairdoesmakequitespecificnon-pricerelatedcommitmentsinitsCharter).

Thereare,ofcourse,anumberofmajorreasonstowhythepublicandprivatesectorsaredifferentinthiswholearea,andwhyChartersareactuallymoreimportantintheformerthaninthelatter:

forsomepublicservicesthecustomerhasnochoicebutto“consume”them,(e.g.theRevenueCommissioners),inmostprivatecompaniestheconsumerhasdiscretionaboutusage;

formostpublicservices,thePublicServicebodyisamonopolyprovider,thecustomerhasnoalternativeprovider,andthesupplierhasnocompetitor.Thisismostclearlythecasewithtraditionalnationalmonopoliessuchastaxcollection,securityandpolicing;

privatesectorservicesuppliesareoftengovernedbylegislationdesignedto“automatically”setminimumstandards.Thisisespeciallysoinregulatedmarketsbutalsoincreasinglysooutsidethem;

thePublicServicealsohasanobligationtoserveall‘citizens’and,assuch,cannottargetspecificordesirablemarketsorgroups.

AlsoevidentintheprivatesectorisanemphasisonICTasasubstituteformorecostlyface-to-faceservice.Thisisagainevidentinsectorssuchasairlines,hotelbookings,thebanksandotherfinancialinstitutions.

4 ESBNetworksisthedivisionofESBresponsibleforbuildingandmaintainingthetransmissionanddistributionnetworksforelectricitysupplythroughoutIreland.

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Chapter 7: Key Issues,

Conclusions and Recommendations


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7. Key Issues, Conclusions and Recommendations7.1 Introduction

7.1.1 The Evaluation

ThisreporthasevaluatedexperienceoftheCustomerCharterprocessintheCivilServicesinceitwasinitiatedinJune2003.TheCustomerCharterprocessisacomponentofthewiderQualityCustomerServices(QCS)Initiative,itselfakeyelementoftheoverallPublicServiceModernisation(PSM)process.ReflectingthescopeoftheChartersInitiative,wehavereviewedtheexperienceacrossthe30centralDepartmentsandOffices.

Previouschaptersoftheevaluationhavesetouttheoverallpurposeandfocusoftheevaluation(Chapter1),theCustomerCharterprocess(Chapter2),thenatureofthepublishedCustomerCharters(Chapter3),implementationtodate(Chapter4),itsimpactandlikelyimpact(Chapter5),andthewiderexperienceofCustomerCharters(orsimilarstatementsofcommitments)inthepublicsectoroverseasandintheIrishprivatesector(Chapter6).

ThisChaptersetsoutthekeyissuesidentified,andourconclusionsandproposalsregardingthewayahead.ThestructureoftheChapterisasfollows:Section7.1re-presentsthestudyTermsofReferenceandanumberofthekeyparameterswhichhaveaffectedboththeworkprogrammeandtheconclusionsandrecommendations;Section7.2summarisesthekeyfindingsofthestudy,withreferencetothespecificissuesraisedintheTermsofReference;Section7.3setsoutourproposalsontheoverallfuturedirectionoftheCharterprocessandtheinternalandexternalfactorswhichwillaffectthis;Section7.4setsoutourspecificrecommendationsgroupedaroundthefourstepsintheCharterprocess,i.e.“consultation”,“commitment”,“evaluation”and“reporting”.Finally,Section7.5setsoutaseriesof“nextsteps”.TheseareintendedasimmediateactionswhichcanbeinitiatedattheleveloftheDepartmentoftheTaoiseach,theQCSResearchGroupandtheQCSOfficers’Network.

7.1.2 Terms of Reference of the Evaluation

TheTermsofReferencefortheevaluationhaveformedthebasisoftheresearchcarriedout,andofthisreport.ItsetoutsixspecificrequirementsoftheEvaluationasfollows:




evaluate to what extent the Charter Initiative is fulfilling its objectives and in particular, identify the benefits (if any) that accrue to the customer and Departments and Offices as a result;

assess the usefulness of any related and relevant developments, in both the private and public sectors, nationally and internationally, that may add value to the Charter process;

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7.1.3 Key Parameters of the Evaluation

Aspreviouslysetout,thefocushasbeenontheCustomerCharterprocess,andonthe30centralGovernmentDepartmentsandOfficesthatarepartoftheoverallCustomerCharterInitiative.Thisgroupcomprisesthe15GovernmentDepartments,togetherwithafurther15OfficesoperatingwithinthecentralCivilService(seeAnnex1foralistoftheorganisationscoveredbythereview).

Thustheevaluation:

isareviewprimarilyoftheChartersandnotofthewiderQCSInitiativeasawhole,exceptinsofarasaspectsofQCSaredirectlyCharter-related.TheintendedfocusisonthespecificroleandaddedvalueoftheCustomerCharters.Itmaynot,therefore,reflecttheentiretyoftheworkgoingoninthe30organisationsinthecustomerservicearea;

covers30organisationswithinthecentralCivilService.Whileincludingsomelargeandkeyserviceagencies(notablytheDepartmentofSocialandFamilyAffairsandRevenue),doesnotencompassdirectservicedeliveryacrossthewiderpublicsectorasawhole,includingsuchlargeserviceareasashealthcare,justice,educationandlocalGovernment;

focusesontheexternally-orientedCustomerCharters.ItdoesnotdealwithinternalCustomerCharters,wheretheseexist.

Aseriesofotherparametersofthestudyhavealsobeenimportant,bothtocarryingouttheevaluationandtoitsconclusionsandrecommendations.Theseare:

the30organisationsvarywidelyintermsoftheirsize,structureandfunctions;

fromaspecificallycustomerandcustomerserviceperspective,the30organisationsencompassarangeofdirectservicedealingswiththepublic,aswellasvariousdealingswithmultipleothercustomersandstakeholders;

servicesrangefromtheprovisionofpureinformationontheonehand,toprovisionofdirectaddedvalueservicesontheother,withmoretransaction-typeservicesinbetween;

thenumbersofdifferentclientcategoriesalsovarieswidelyandencompassesnotjustthegeneralpublic,butalsospecialistsectorssuchastheprofessions,aswellasotherarmsofthePublicServiceandofGovernment;

whiletheprocesswasinitiatedin2003,asmallnumberofCharterswerenotpublisheduntil2005sothatexperiencewiththeCharterspostpreparationandpublicationis,insomeinstances,stillrelativelyshort.

7.2 Summary of Key Findings

7.2.1 Overview

Thissectionpresentsasummaryofthekeyfindingsoftheresearch.Whilethesearedrawnfromtheearlierchapters,thefindingsarepresentedhereagainstthesixissuesintheTermsofReference(see

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Section7.1.2above).Therefore,individualsectionsbelowmaydrawonresearchinmorethanoneoftheearlierChapters.

7.2.2 Analysis of Published Customer Charters

Chapter2ofthereportpresentedananalysisoftheChartersaspublished,bothhardcopyandonwebsites.Keypositivefindingsare:

atthetimeofthisevaluation(November2006-March2007)all30organisationshadpublishedaCustomerCharter.Inaverysmallnumberofcases,aslightlydifferenttitlewasused.So,usingthisbasicbenchmark,theprocesshasbeensuccessful;

mostChartershavebroadlyfollowedthepublishedGuidelinesforCharterpreparation,bothintermsofpreparatoryprocessandofbroadstructure;

itisevidentfromtheChartersandfromassociatedbackgrounddocumentationthatanimpressivelevelofworktypicallywentintothepreparatoryprocessinDepartmentsandOffices,andthatorganisationsenteredintothespiritaswellastheletteroftheprocess;

byandlarge,theChartersarerecognisablysimilarandcoverasimilarrangeoftopics.

Intermsofareaswithpotentialforimprovement,anumberoffindingsare:

giventhediverserangeoforganisationsandsituationsinvolved,manyCharterstendtobesomewhatstandardisedandnotreallyallthatreflectiveof,ortailoredto,thespecificcircumstancesandservicesoftheindividualorganisations;

manyChartershavenotbeenparticularlygood(eitherinpreparationorpublication)atdefiningthedifferentcategoriesofcustomeranddifferentservicesprovidedtothese,i.e.theyaretypicallywritteninasomewhatgenericstyleacrosstheorganisationsasawhole,althoughinmanycasestheorganisationsarequiteheterogeneousinternally.TherearenotableexceptionstothiswhereorganisationshaveseparateCharterstailoredtoindividualaudiences,e.g.DepartmentofTransportandtheOfficeoftheHousesoftheOireachtas,orhavesub-sectionswithintheiroverallCharterdealingwithaspecificservicearea(e.g.passportapplicationsinthecaseoftheDepartmentofForeignAffairs).Theseexamplespointinthedirectionofgreaterdifferentiationinthefuture;

Chartersaretypicallyatthelowerendofthescaleintermsofambition,whilegenerallyincompliancewiththeGuidelines.AspecificdimensionofthisisthatquantitativetargetsaspublishedinChartersaregenerallylimitedtolevelsofinteraction,generallyresponsetimestocommunications.ThereisthusscopeformoreambitioninanynewCharters;

theaccessibilityandexternalvisibilityoftheCharterswouldappeartobeaweakness,againwithnotableexceptions.Theyaretypicallydisplayedinreceptionsandoffices,andaregenerallyavailableonwebsites.However,inamajorityofcasestheyarenotdirectlyaccessiblefromwebsitehomepages.ThereisalsoingeneralalackofproactivityintermsofmakingthepublicorcustomersawareoftheexistenceofCharters,againwithnotableexceptions,e.g.thePublicAppointmentsServicehasitsCharteronrollingvideoinitsreception.LevelsofexternalawarenessoftheexistenceofChartersisthereforelikelytobelow.

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7.2.3 The Customer Charter Guidelines as a Tool in Ensuring Consistency and Robustness

TheGuidelines,publishedatthecommencementoftheprocessin2003,setouttheoverallnature,conceptandcontentofCustomerCharters,andalsoprovidedpracticalillustrationsoftheprocessestobeundertakenintheirpreparationandsubsequentevaluation.

TheroleoftheGuidelineshasbeenverypositive.Thisisevidencedby:

theGuidelines(inparticularthefirstsection)provideashort,simpleandarticulateexplanationoftheroleandpurposeofCharters,inthespecificcontextoftheIrishPublicService.Itconstitutesaverygoodbasicwrittenguide.Itsonlylimitationinthisregardisthat,arguably,itiswritteninsuchtightlyeditedtermsthatitiseasyforreaderstomisssomeoftheimportantpointscontainedinit;

inspectionoftheChartersaspublishedindicatesmanymanifestationsoftheroleandinfluenceoftheGuidelinesintermsofCharternature,length,structureandcontent;

QCSOfficersintheDepartmentsandOfficesinvolvedaregenerallycomplimentaryasfarastheGuidelinesareconcernedandacknowledgethepositiverolethattheyhaveplayed.

ThereisscopefordebateaboutthebalanceintheGuidelinesbetweenspecificityontheonehandandallowingroomforflexibilityontheother.Ononeside,over-specificitycreatesdangersofa“tickbox”orpurelycompliance-drivenapproach,whereorganisationswouldfollowtheletterratherthanthespiritoftheGuidelines.Ontheotherhand,anoverly-flexibleapproachmeansthatsometimesGuidelinescouldlacksufficientlyspecificguidanceandleavetoomuchfororganisationstofigureoutforthemselves.Inpractice,theGuidelinesprobablystruckareasonablebalanceinthisregardatthecommencementoftheprocess.AnynewGuidelinesshouldemphasisemorethedistinctionbetweena(desirable)standardisedstructureand(lessdesirable)standardisedcontent,i.e.whileemphasisingabroadlycommontemplatetheyshouldstresstheneedforpreparationandcontenttotrulyreflect“thebusiness”thatindividualorganisations(orpartsoforganisations)arein.

Withthebenefitofhindsight,therearealsoanumberofissueswithwhichtheGuidelinesmighthavedealtmorefully,andwithwhichfutureGuidelinescandeal.Theseincludethenecessitytodefinebothdifferentgroupsofcustomersanddifferentservicesbeingprovidedtothemasclearlyaspossibleandtheneedformoreexplicitcommitmentsonevaluationandreporting.

TherelationshipbetweentheChartersandtheCustomerActionPlans,whileclearindocumentterms,couldbeelaboratedonmorefullyinprocessterms.MuchofthedetailintheGuidelinesisarguablyasrelevanttotheCustomerActionPlansasitistotheCharters.ThisleadsustotheviewthatconsolidatedCharter/ActionPlanGuidelineswouldbeappropriateinthefuture,whileofcoursestilldistinguishingbetweenthedistinctroleofeachwithintheoverallQCSInitiative.

7.2.4 Implementation of the Customer Charter Initiative in Practice

Thepictureacrossthe30organisationsandsituationsisareasonablypositiveone.ItisclearthattheChartershavenotbeen“leftlying”oncepublishedandthattherehasbeenagooddealofactivityassociatedwithimplementingwhatiscontainedinthem.Specifically:

quantitativetargetshavebeenestablished(albeitgenerallylimitedtocommunicationresponse-times);

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inmostcases,atleastsomeofthesetargetsarebeingactivelymonitoredandmeasured;

aproportionofthesearealsobeingreportedon,inparticularinAnnualReports;

withintheconfinesofthelimitedevidenceavailable,itwouldappearthatquantitativecommitmentsmadeinChartersare,inmostcases,beingmet;

manyorganisationsalsohavemuchmoreextensivequantitativetargetsintheirCustomerActionPlans,particularlyinPlanspublishedaftertheCharters,andaremonitoringandreportingonthese.

Alimitationinsuchassessmentsisthatmanycommitmentsareofaqualitativenatureandthereforeestablishingwhethertheyarebeingmetornotbeingmetismoredifficult.However,generallyhighlevelsofcustomersatisfactionandabsenceofevidenceofcomplaints(oncustomerserviceprovisionatleast–theremaybecomplaintsonotherissues)providessubstancetotheargumentthatqualitativeservicecommitmentsarebeingmet.

ExamplesarealsoavailableofinstancesofChartersandassociatedfeedbackhavinginfluencedcustomerservicedelivery.While,insomeways,changesmademightbemodest(e.g.receptionsremainingopenatlunchtimes),theyarepositivedevelopments.

Onelimitingfactorinimplementation,alreadyreferredto,isthatquantitativecommitmentsandthereforetheirachievementgenerallyrelatespurelytointeractionintheformofresponsetimestotelephonesandwrittencorrespondenceratherthanthemoresubstantiveserviceprovision.Anotheristhatinsomecasescommitmentsenteredintowerenotoverlydemandinginthefirstplace,e.g.20-secondresponsetimetotelephonepick-upinaneraofautomatedtelephonesystemsisclosertoconventionalgoodpracticethantoanambitiousobjective.

Therobustnessofreportingisalsomixed.Onthepositiveside,reportingisbeingdoneinAnnualReports,asrequired,inallorvirtuallyallcases.Secondly,inmanycasesthisincludesreportingonquantitativeperformancetargets.However,thisisnotuniversalandreportinginanumberofAnnualReportsisstillsomewhatlimited.

Anotherlimitingfactortendstobeanabsenceofdatasuitablefortrackingtrends.Whiletherehavebeensome“before”and“after”surveys,orsurveyswhicharedoneannuallyorbi-annually,anduseofothertechniquesincludingmysteryshopping,theactualsamplesandmethodologiesfrequentlyappeartovary.Abilitytocomparepre-andpost-Chartersituations,ortomonitorpost-Chartersituationsovertime,isthereforegenerallylimited,outsideofthe(albeitimportant)issueofresponsetimes.Monitoringcustomersatisfactionlevelsbyorganisationorserviceandovertime,appearstostillbelackingbasedonthematerialwehaveseen.Theoccasionalcustomersatisfactionsurveyspublishedcentrally–andwhichshowbroadlypositiveresults–applytotheCivilServiceasawhole.Whilebroadlyreassuring,thisisoflimitedvalueinplanningfutureimprovements.Moreregular,rigorous,organisation-relatedandprofessionallyundertakenandvalidatedresearchisrequired.

7.2.5 Extent to which the Initiative is Fulfilling its Objectives

TherewereanumberofmotivationsbehindtheintroductionoftheCustomerCharterInitiative,including:

theviewthattheQCSInitiativeasawholeneededanewfocus;

thedesiretorespondtoEvaluations(PAandButler)whichhaddrawnattentiontopossibleweaknessesandagenerallackof“bite”intheQCS;

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relatedtotheabove,thedesiretointroducemoremeasurementintotheQCSwhileleavingindividualorganisationsfreetochoosetheirownmetrics;

theviewthatpublishingexternalcommitmentswouldhavepositiveresults,notonlyforcustomers,butalsoonserviceprovision.

TheimpactoftheChartersinpracticecanbelookedatonanumberoflevels.Firstly,thereislittledoubtthat,overthelongterm,therehasbeenasizeablepositiveshiftintheIrishPublicServicetowardsbeingmorecustomerfocusedandoutwardlookinggenerally.Secondly,broadly-basedcustomersurveysgenerallyshowverypositivefeedbackregardingtheserviceprovidedbyGovernmentDepartmentsandOfficesforthemajorityofcustomers,andtherewouldappeartohavebeenfurtherimprovementsintheperiodsincetheCharterswereintroduced.Thirdly,maintaininghighqualitycustomerserviceisnotasingleorone-offactivitybutanongoingone.ThechallengefortheQCSInitiativeisnotjusttoraisestandards,buttomaintainthemsoevenstatictrendscanbepositive.Fourthly,theCelticTigerperiodandsubsequentyearshaveseenahugegrowthintheIrishpopulationandeconomy,andhencedemandformanypublicservices.Again,maintaininghighlevelsofcustomersatisfactioninthesecircumstancesisaconsiderableachievement.Whilesystemswhichhaveexperiencedpressuretendtobehighlypublicised,publicserviceswhichhavemetgrowingdemandsrelativelyefficientlyandwithoutmajorcrises,tendtoberelatively“unsung”.Theabilityofpublicservices,rangingfromSocialWelfaretothePropertyRegistrationAuthority,tocopewithrapidchange(intheSocialWelfarebaseandinlandtransactions,respectively)arecasesinpoint.Fifthly,thenumberofthoseseriouslyunhappywiththeIrishPublicServiceappearstoberelativelylow,althoughnotinsignificant.Wecomebacktothislaterissuelaterasanareathatcustomersurveysandotherfeedbackmechanismscouldusefullyexploreinmuchmoredepth.

ManyofthetrendscitedaboveofcourserelatetotheQCSInitiativeasawhole,andmaynotconstitutespecificvalueaddedbytheCustomerCharters.However,itcanbesaidthat:

asnotedabove,servicestandardshavecontinuedtorisesincetheCharterswereintroduced;

customerperceptionshaveimprovedinanumberoftheareasspecificallyhighlightedintheCharters,e.g.thehandlingofcomplaints;

theChartersthemselvesintroducedoremphasisedanumberofnewdimensionsintotheQCSInitiativewhichmighthavebeenpreviouslylacking,e.g.customerconsultation,quantitativetargetsandtheirmeasurement,andformalcomplaintsprocedures;

thereisevidentimprovementinthequalityanddetailofCustomerActionPlanspublishedsincetheCharterswereintroduced.

Twoothermoregeneralpointscanbemadeinthiscontext.Firstly,alltheexperienceindicatesthattheCustomerCharters,oreventhewiderQCSInitiative,cannotworkaloneorintheabsenceofappropriatepre-conditions.Theseincludeleadership,strongpartnership,awell-disposedcorporateculturewithintheorganisation,clarityaboutcustomersandservices,andthenecessaryinternalsystemstomaintainhighqualitycustomerservices,e.g.highqualityICTservicesforcustomersclearlyhavehighqualityICTsystemsasaprerequisite.

Secondly,whilethe30centralCivilServiceDepartmentsandOfficesincludeanumberofmajorserviceareas–Revenue,SocialWelfareandAgriculture–thesearestillarguablysomeofthelesscomplexareasofIrishPublicServiceprovision.Theyessentiallyinvolvetransactionswithcustomerswhichare

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boundbyrules,eligibilitycriteria,etc.andarefocusedmainlyonreceiptorexpenditureofmonies.ManyofthemorecomplexandproblematicareasoftheIrishPublicServicesuchashealthcare,primaryandsecondaryeducation,policing,transport,trainingandlifelonglearning,areoutsidethedirectremitoftheCharterInitiative.Thereforeitsabilitytoimpactonthesecanatbestbeonlyindirectanddemonstrativeasmatterscurrentlystand.Wereturntothisissueinourrecommendations.

QCSOfficersgenerallyperceivetheimpactoftheCharterprocessontheexternalcustomeras“medium”.Thisratingreflectsanumberofdifferentperceptions.Somefeelthelevelofservicewasalreadyhighanyway;somefeelthattheCharterandQCSInitiativecannotbedistinguishedintermsofimpact,andsomefeelthatimpactisimpossibletodiscern.Responsesgenerallyreflectalsoperhapsalackof“bullishness”abouttheprocess,anabsenceofanyperceptionofbeingachampionofit,especiallyamongOfficerswhohavetakenovertherolefromearlierincumbents.Thislatterissueofhandoverisonetowhichwereturnintherecommendationsbelow(Sections7.4and7.5).

OurconsultationswithQCSOfficersconfirmsignificantinternaleffectsoftheCharterprocessintermsofclarity,customerfocus,andstaffbuy-in.AwarenessofstandardsisemphasisedbyQCSOfficersinthisregard.Thisisofcoursebynomeansuniversalandourconsultationsalsosuggestthatwithinandbetweenorganisationstherearestill“pocketsofresistance”wherescepticismabouttheChartersremains.Thisisprobablymoreprevalentthefurtherawayorganisationsarefromdealingdirectlywiththepublic.

Asacorollary,itisclearthattheCharters(andtheQCSInitiativeasawhole)haveprobablyhadtheirmainimpactinorganisationswheretheyhavebeenaidedbyotherfactors.ExampleshereareRevenue,wheretheintroductionofself-assessmentwasanimmediateimpetusforamuchwiderprocessofchangeinrelationtocustomerservice,andthePublicAppointmentsService,wheretheprospectof“deregulation”wasamajorstimulustochange.

7.2.6 Related and Relevant Developments in the Public and Private Sectors

Inrelationtotheinternationalpublicsector,thegeneraldirectionIrelandhastakenwiththeQCSInitiativeasawhole,includingCharters,isinaccordancewithinternationalthinkingandpractice,especiallyinthe“Anglo-Saxon”world1.Intermsoflevelsofknowledge,awarenessandoverallphilosophicalcommitment,Irelandisprobablyupwiththebetterplayersandmayhaverelativelylittletolearnatthelevelofoverallpolicyororientation.

Areaswherethereislikelytobescopeforlearningisinrelationtomechanismsforembeddingandimplementingqualitycustomerservice,andofimplementinginpracticethegoodprinciplesthatarealreadyaccepted.InternationalexampleshereincludetheUKCharterMark,whichisaninternalvoluntaryquality-standardsystemfortheUKpublicserviceandhasitsoriginsintheearlierCharters.OthercountriesdemonstratinggoodpracticesincludeAustraliaandCanada.Thelatterisdevelopingmethodologiesforbothunderstandingandtrackingcustomerattitudestowardspublicservices,andwhatdrivestheseattitudesandperceptions.Thisdemonstrates,forexample,thatperceptionsofcustomerswhohaveactuallyusedspecificservicesaregenerallymorepositivethanthepublicatlarge.2

1 Prof.C.Pollitt,InternationalexperiencesofPublicManagementReform:Lessonswhichwecanlearn?PresentationtotheDepartmentoftheTaoiseach,Dublin,19January2005.

2 Phase5ConsultingGroupfortheInstituteforCitizenCentredServiceandTheInstituteforPublicAdministrationofCanada,CitizensFirst4,2005


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Itisalsoimportantinthisregardtorecognisethatsomebestpracticemaybefoundathomeratherthaninternationally.Forexample,Revenue,particularlyinitsuseoftheinternetandSMS,isnotjustanationalbutaworldleaderamongitspeersinthisrespect.Awardsachievedatinternationalcompetitionsalsodemonstratethatexamplesofbestpracticecanbefoundathomeaswellasabroad.

Inrelationtotheprivatesector,thecontextisofcourseverydifferent.Theprivatesector,exceptinexceptionalcases,isoperatinginacompetitivemarketinwhichcustomershaveachoicebothaboutwhethertheypurchaseservicesatalland,iftheydo,fromwhichsuppliertheypurchasethem.ThiscontrastswiththePublicServicewherethereisfrequentlynochoiceaboutusingtheservice(e.g.paymentoftax)andevenifthereis,thereisgenerallynochoiceaboutwhoprovidesit.ChartersandQCS-relatedprocessesgenerallyarethereforemoreimportantinthenon-commercialpublicsectorsinceitlackstheimmediate“automatic”imperativethemarkettoresolvetheissue.

Anotherconsiderationintheprivatesectoristheincreasingprevalenceofexternallegalprovisions,includingregulators,whichgovernservicesandcustomerservicestandards,includinginIrelandwherenewcustomerservicelegislationisbeingenactedinthecontextofarecentlyestablishedNationalConsumerAgency.Thisandexistinglegislationthereforeprovidesmanycustomerswithadegreeofsanctionwhichmaybeabsentinthecaseofpublicservices.

Existenceofformalwritten“CustomerCharters”andsimilarstatementsofcommitmentsintheIrishprivatesectorareprimarilythepreserveofrelativelylargecompanies.Someofthechallengesandpracticesusedtokeepthese“alive”withintheseorganisationscanthereforebequitesimilartothosefacedinthePublicService,andmanyoftheinitiativesusedinternallyinthisregardarepotentiallydirectlytransferable,e.g.internalcompetitions,useofadegreeofinternalrivalrytostimulatebetterpractice,aswellasawardsforspecialefforts.

Alsoimportantintheprivatesectoraresomeoftheassociatedinitiativeswhichhelpimprovecustomerserviceingeneral,includinglongeropeninghourstoconveniencethosewhospendlongperiodsworkingandcommuting,andincreasedlevelsofinternetaccessibilityacrossawholerangeofservicessuchasfinancialservices,onlineshoppingandtravel.Inthepublicsectorthispointstothepotentialofthee-Governmentagendatobothreducecostsandimproveservices.

7.3 Future Direction

7.3.1 Overview

ThissectionconsidersthefuturedirectioninwhichtheCustomerCharterprocessshouldnowgoifitistocontinueitsobjectiveofhelpingtoinvigoratetheQCSInitiativeasawhole.Thesectionisstructuredasfollows:Section7.3.2summarisessomebasicdimensionsofqualitycustomerservicewhichinfluencethefuturedirectionandpotentialrecommendations;Section7.3.3summarisessomeimportantexternalchallengesandopportunitiesfacingqualityPublicServicedelivery(i.e.“external”totheserviceitself );Section7.3.4presentsrelevantchallengesandopportunitiesinternallywithinthePublicService,and7.3.5summarisesthekeychallengesfacingtheCustomerCharterprocessitselfbasedonthefindingsofearlierChapters.Sections7.3.6and7.3.7dealwithtwoothersubjectswethinkwillbeimportantlookingahead–therelationshipbetweenICTandqualityservice,andtheparticularsituationofpolicy-orientedDepartmentsregardingQCSandtheCharters.Finally,Section7.3.�setsoutaframeworkforidentifyingpriorityareasforimprovement.


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7.3.2 Overall Parameters

InplanningthefutureoftheCustomerCharterprocessanumberofunderlyingparametersneedtobeborneinmind:

theheterogeneousandcomplexnatureofmanypublicservicesmeansthatgoodcustomerserviceinthiscontextisinherentlychallenging;

relatedtotheabove,achievinggoodcustomerservicesinvolvesanongoingmulti-facetedprocess,notaone-offchange.Thereforethereisasenseinwhich“thejobisneverdone”,andcustomerexpectationscontinuetorise.Therequirement,aswasalreadyrecognisedintheCustomerCharterGuidelines,isfor“continuousimprovement”;

provisionofhighqualitycustomerservices,particularlywhereprovidedatapersonalratherthananarm’slengthlevel,iscloselyintertwinedwiththeexistenceofacustomerserviceethosinorganisations.Tothisextentitisamatterof“heartsandminds”aswellassystemsandprocedures.Minimumlevelsofcompliancewithagreedproceduresarerequired,butthesealonewillneverachievegenuinelygoodcustomerservice.Itthereforealsomeansthatitneedsacarrotaswellasastick,anditcannotbeentirelylegislatedorregulatedintoexistence.Ultimatelystaffhavetobepersuadedthatthisisgoodforthem,fortheirorganisationandforthepublic;

qualitycustomerservicealsocannotbea“bolton”toorganisationsexistingsystems,proceduresandwaysofdoingthings.Itmustbeanintegralpartofasuitablyorientedwhole.Thisisincreasinglysogiventhecloserelationshipbetween,forexample,qualitycustomerservicesandqualityICTsystems.

7.3.3 External Challenges and Opportunities

ThechallengeofprovidingaqualitycustomerserviceintheIrelandof2007andbeyondisheightenedbyaseriesoffactorsexternaltothePublicServiceitself:

inthegeneralsocio-economicenvironmentthereisrapidpopulationgrowth(givingrisetodemandsforhighervolumesofservices),increaseddiversity,anincreasingrangeofalternativesuppliersinsomesectors,e.g.privateeducationatsecondaryandthird-levelisoneexample;

customersthemselvesarealsochanging,theyareprobablyworkingharder,theyhavelesstimetointeractwithserviceproviders,theyneedtointeractoutsideconventionalbusinesshoursandtheyareprobablygenerallymoredemanding.

Opportunitiesarealsoavailableintheformof:

ICTsystemswhichcanrevolutioniseserviceprovisionandconceptsinmanysectors;

availabilityofinformationonbestpracticewithinandoutsideoftheIrishPublicService.

7.3.4 Challenges and Opportunities within the Public Service

ChallengesalsoexistwithinthePublicServiceitselfinthecontextofprovidingbetterqualitycustomerservice.Thesechallengesinclude:

institutionalorstructuralchange,whichcangiverisetouncertainty,tochangesofroles,tostaffchanges,etc.

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adangerof“initiativefatigue”wherepublicservantsfeel(justifiablyorotherwise)thattheyarebeingaddressedbymultipleandpossiblyoverlappinginitiativesacrossarangeofaspectsofPublicServiceModernisation,includingtheQCSInitiative;

relatedtotheabove,thereisanissueofcompetingprioritieswhereissuessuchasqualitycustomerservicescomeonandofftheradarscreenandmay,shortlyaftertheirinitiation,appeartobedisplacedinpeople’smindsbyanewpriorityofanothernature;

dangersperhapsofcomplacency,ofbelievingthatwearedoingevenbetterthanweare,andofmovingintherightdirection,butatapacethatisslowbythestandardsoftherestoftheeconomy.3

Opportunitiesinclude:

availabilityoflevelsofresourcesundreamtofinearlierdecades.Theearlymoversonservicequalityinthe19�0swouldhavefoundthecurrentpostCelticTigereradifficulttoimagine;

theconsiderableprogressalreadymadeisabasisonwhichtobuildanddrawlessons.Manyinstancesshowwhatcanbedone;

structuralandinstitutionalchangesaffectingorganisations;

awidespreadacceptanceatmostlevelsinthePublicServiceoftheconceptandrequirementsofamore“customerfacing”approach,andconsiderableexperienceandtangibleprogresswithimplementingthis;

ICToffersgrowingscopeforimprovedpublicservices.

7.3.5 Challenges for the Charter Process

Followingfromthesechallengesandopportunities,andthepresentstateofplayintheCharterprocessasitemergesfromthisevaluation,anumberofcentralchallengesnowarise:

sharpeningthenatureandextentofanalysisofdifferentexternalcustomergroupsandoftheservicesbeingprovidedtothem;

keepingitalive,maintainingmomentumandavoiding“fatigue”orevenassociatedcynicism;

improvingandclarifyingtherelationshipwiththeQCSInitiativeasawhole,andemphasisingthattheCharterprocessisanintegralpartofQCS,notdifferentfromit;

creatingclearandconstructivelinkageswithotherprocesses,includingStrategyStatements,BusinessPlans,PMDS,thePerformanceVerificationprocess,AnnualOutputStatements,OrganisationalReviewsetc;

thechallengeofconstructivemeasurementonthebasisthat,asstatedintheGuidelines,“whatgetsmeasuredgetsmanaged”;

theneedforin-depthunderstandingofcustomers’needsandpreferencesregardingservicesandhowtheseareaccessed;

exploringandaddressingunsatisfiedminorities,i.e.thatminorityproportionofpeoplewhicharisesinsurveysasbeingdissatisfiedwithspecificaspectsofservice.

3 Onthislatterissue,the2006AccentureLeadershipinCustomerService:BuildingtheTrust,reportplacesIreland’spublicservice15thoutof21leadingcountriesinits“LeadershipinCustomerService”ranking,andaspartofagroupof9countriesclassedas“followers”asdistinctfromthe“trendsetters”(Canada,US)andthe“challengers”(Denmark,Singapore,Australia,France,Japan,NorwayandFinland).Forfullreportseewww.accenture.com/global/services/by_industry/government/R_and_I/buildingthetrustES.htm

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7.3.6 Issues in Policy Departments

Organisationswhichare,orperceivethemselvestobe,relatively“distant”fromthefinalcustomer,includingsomeofthemainDepartments,presentparticularchallengesindevelopingQCSgenerallyandCustomerChartersinparticular.

ItmightbearguedthatthesearealsolessimportantintheQCScontextthanotherorganisationswithinandoutsideofthe30centralDepartmentsandOfficeswhichpredominateindirectserviceprovision.Inourconsultationswefoundthatmanymayseethemselvesthisway,withaconsequenttemptationto“letthemselvesoffthehook”inregardtoQCS.Againstthat,however,itmustbesaidthat:

mostDepartmentsandOfficeshavesomeinteractionwithexternalpubliccustomerse.g.theDepartmentofFinance,whilelargelyapolicyDepartment,alsoadministersPublicServicepensionsandtheDepartmentoftheEnvironment,HeritageandLocalGovernment,whiledeliveringitsservicesprimarilytolocalauthorities,isalsothehomeoftheHeritageandWildlifeService;

servicesoperatedbylargerpolicyDepartmentscanbestillcriticaltothosewhomayoccasionallyusethatservice,e.g.mostadultsinIrelandwillapplyforapassportonafewoccasionsduringtheirlife;

thereisadangerthat,ifleadershipandcommitmentisnotovertatthislevel,implementingagenciesreportingtoDepartmentsmightthemselvesalsohavelessenthusiasm;

similarly,ifcentralDepartmentsarenotthemselvesseenasleadersintheQCSfield,theirabilitytoleadandencouragetheirexecutiveagencieswillbehampered,aswilltheircredibilityinthisregard.

ThereisthereforeaneedfortheseorganisationstomakeaspecialeffortinrelationtoChartersandsurroundingprocesses.Thiscouldinclude:

particulareffortstodealverywellwiththelimitednumberofmembersofthepublicwithwhomtheydeal;

ensuringthatanydirectservicefunctionsareexemplarsofpublicservice(ataskmadeeasierbytheirlimitedscale);

introducingsomemodestbutsymbolicinitiativeswhichbringsthemintofurtherdirectcontactwiththepublicandwhichmayhavemutualbenefits.ThetoursofGovernmentBuildingsoperatedbytheDepartmentoftheTaoiseachisaninterestinginnovationinthisregard.Occasionalopeningupofotherinterestingpublicbuildingsmightbeanoption,ascouldoccasional“opendays”wheninterestedmembersofthepubliccouldseeDepartmentswork,orsomelevelofpublicparticipationinmajorPublicServiceevents.

7.3.7 Quality Service and ICT

TherelationshipbetweenservicequalityandICThasbeenarecurringtopicthroughouttheresearch.ItisvirtuallyclichédtosaythatICThaspotentialtohaveamajorimpactonthewaymanypublicservicesaredelivered,andinsomecasestopotentiallyrevolutionisethenatureoftheserviceitself,andoftheprovidingorganisation.Ascanbeseenintheprivatesector,thewholenatureoftheserviceprovidedbyorganisationssuchasairlines,travelagentsandrecruitmentagenciesisbeingprofoundlyaffectedbydevelopmentsinICT,andthesefeedbackintothenatureoftheorganisation,e.g.websitenamesarereplacingcorporatebrandsastherecognisedsourceoftheservices(e.g.aerlingus.com,jobs.ie).“Publicjobs.ie”isacaseinpointwithinthePublicService.

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AnotherimportantfeaturehereisthatdevelopmentsinICTdonotrelateonlytoweb-basedservicesbutalsoofcourseincludetelephoneservices,andalsodevelopmentssuchastextmessaging.RevenueisalreadyusingSMSmessagingasameansofperformingrelativelysimpletransactions,anareainwhichitisaninternationalleader.

Morewidely,theIrishPublicServicescoresreasonablywellintermsofuseofICTforserviceprovision.Therearealsopocketsofexcellencethroughoutthesystem.AlongsideRevenue,MotorTaxationisanotherobvioussuccessstoryinthisregard.Publicjobs.ie,ande-tendersareothercasesinpoint.Againstthat,thereisstillextensiveroomforimprovement.Availabilityoftheplannedcentral“Reach”portalwouldbeverypertinentinthecaseofaccesstoinformationabouttheexistenceofCustomerChartersandothercustomerinformation,allacrossthePublicService.

AnumberofissuesforthefuturehererelatingdirectlytoChartersare:

thattheremaybeacaseforequal,orevenless,focusonprinteddocumentationandformoregoodinformationonwebsites.Inthesecaseswhatiswhatpartofwhatdocumentbecomeslessofanissueaslongasallthepertinentinformationiseasilyaccessibleinthesameplace;

moreuseofeasilydownloadableformatsandperhapsreconsiderationofthenecessityforsomeoftheveryhighqualitybutinternetunfriendlypictures,graphics,etc.inmanyChartersandassociateddocuments;

theimportancetoqualitycustomerserviceofthee-Governmentagendaasawhole,andtheneedtoprogressthis;

thepotentialforICTtocreatea“win-win”situationinwhichthecostsofface-to-faceserviceprovisioncanbereduced,whileitsconvenienceforthecustomercanbeimproved,e.g.accessona24-hourbasis,accessfromhomesorplacesofwork,etc;

theneedtoalsoexaminehowcustomerswishtoaccessservices,anareawhereinformationisarguablyweak.ThereisadangerforexampleofITdivisionsinDepartmentsandOfficesassumingthatthepublicwantsthemostadvancedformofICTdeliveryavailable,whereasthismaynotnecessarilybeso,particularlyinthecaseofmembersofthepublicwhoarenotthemselvesparticularlyICTliterate,e.g.atelephonecallmaysometimesstillbemoreconvenientandlesstime-consumingthanthetimenecessarytounderstandaseldomusedon-linefacility.

asmoreservicesgoon-line,theneedtoensurefullaccesstotheseforgroupssuchaspersonswithspecialneedsorwithpoorITavailability.

7.3.8 Towards a Customer Service “virtuous cycle”

Thegeneralconclusionsemergingfromourresearch,analysisandconsultationsisthatatthecoreoftheQCSInitiativeandthereforeoftheCustomerChartersisaseriesofinter-dependentelements.Ifpresenttogether,thesecanconstitutea“virtuouscycle”ofmutuallyreinforcingcomponentsofsustainableservicequality.ThesecomponentsaresummarisedgraphicallyinFigure7.1.

Thechartisofcourseanover-simplificationinthattheseelementsdonotworkneatlyinsequence,ratheralleffectswillbehappeningsimultaneously.Nevertheless,itisausefulwaytosummarisethecriticalelementsofwhattheCustomerChartersaimtoachieve,andthereforeisausefulbasisfortheemergingrecommendationsinthefollowingsection.

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clear definition of customers:thisreferstowhotheyare,andwhatanorganisationisaimingtodoforthem.Ashasbeenmentionedinanumberofplacespreviously,thisisarguablyanareawheretheCharterprocesstodatehasnotbeensufficientlyemphatic.ThepublishedChartersgenerallydonotcontainanysuchintroduction,althoughthisisinsomeinstancesdevelopedfurtherinCustomerActionPlans.TheresultisCharterswhichareoverlygeneric;

quality knowledge and feedback on what customers require:thetraditionaldangeristhatorganisationsprovidedwhattheyhave,ratherthanwhatcustomerswant.EveninthecontextofQCS,itisstillpossiblethatorganisationsmay,ingoodfaith,continuetodevelopandimprovetheirservicesinwaysinwhichtheyperceiveasappropriateforthecustomer,ratherthanwhatthecustomerthemselvesmightwish.Forexample,thequitecorrectemphasisonweb-basedcommunicationcouldignoremanycustomers’continueduseofordinaryvoicetelephonyorSMS;

clear targets in relation to service provision:thisincludestargetswhichareambitiousbothintermsoftheirnature,andalsotheirextent.Ashasbeennoted,atpresenttherearetargetsinChartersbutthesegenerallyrelatetoresponsetimesonly.MoreextensivetargetsarenowcontainedinCustomerActionPlans,whichmeansthereisnoreasonwhy“headlines”fromthesecannotbeplacedintheCharters;

ongoing commitment to achieve the targets: thisrequirementreflectsthenaturaltendencyoforganisationsandindividualstocommenceinitiativeswithaflurryofactivity,butforthistowaneasothercompetingconcernsbegintoovertaketheoriginalintentions.Inorganisationalterms,thisnecessitateshavingongoingclearresponsibilitiesandactivitiestomaintaincommitmenttoChartertargetsatanappropriatelevel.ThisisachallengethatfacesallorganisationswithCharters,bothpublicandprivatesector.Itisalsoonewheretechniquesarereasonablywellknownandwidelypractisedandarenot“rocketscience”.Thechallengeismoreoneofacommitmenttomaintainfocusonanongoingbasis;

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Figure 7.1: A Virtuous QCS Circle


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evaluating performance:heremajorstrideshavebeenmadeandalevelofevaluationhasbeenputintoeffectinrelationtoChartercommitments.However,thisisasyetinsufficientlyfrequent,independent,professional,rigorous,objectiveandextensive.Forexample,despiteaconsiderablenumberofindividualreports,studiesandsurveys,itisstilldifficulttogainagoodoverallimpressionregarding,forexample,trendsincustomersatisfactionatorganisationorservicelevel.Thisisanareathereforeneedingattentionatthelevelofindividualorganisations,butwhichcouldalsobeaddressedthroughstrengtheningoftheCivilService-widesatisfactionsurveysthatalreadytakeplace.“Strengthening”herereferstomuchmoreextensivesamplesizes,morein-depthquestions,andsubsequentlymoredisaggregatedanalysis;

reporting and feedback:thisisthevitalfinalstep.Inparticular,evaluationisoflittleuseunlessthereislearningfromit.Thepurposeofevaluationistohelpimprovefutureserviceprovision.Thisnecessitatesthatevaluationnotjusttakesplaceandisappropriate,butthatitsresultsarefedbackmeaningfullyintoserviceprovision,thatareasofcustomerpreferenceareactivelyreinforced,andareasofcustomerdifficultyaresystematicallyaddressed.AswellasAnnualReports,thisaspectalsomeansthatreportingmustalsofeedintootherprocesseswhichwillhelptogivetractiontotheinitiativeasawhole.This,specificallyintheIrishcontext,meansStrategyStatements,BusinessPlans,PMDS,AnnualOutputStatementsandthePerformanceVerificationprocess.

Thisframeworkthenhelpstoidentifyprioritiesforrecommendationsintheperiodahead.Theserecommendationsaresetoutinthenextsection,7.4.

7.4 Principal Conclusions

7.4.1 Conclusions – The Customer Charter Guidelines

theCustomerCharterGuidelinesneedtobeupdatedandconsolidatedwiththeearlierGuidelinesonPreparationofCustomerActionPlans,withbothdocumentscompanionbutwithdistinctoutputs;

thegeneralrole,natureandtoneofChartersshouldstaylargelyasenvisagedintheGuidelines,i.e.theyshouldcontinuetobe“ashort,easytoread,accessibledocumentwhichactsasapubliccommitmenttothecustomeronthelevelofservicess/hecanexpecttoreceivewhendealingwithaparticularDepartmentorOffice”.Ineffect,infuturetheyshouldbeanexternally-orientedExecutiveSummaryofthecounterpartCustomerActionPlan;

reflectingtheviewthattheChartersretaintheircurrentniche,proposedadditionstoChartertextshouldbequitelimited;

inouropinion,however,thereisagoodcaseforthreespecificadditions:

aclearerdefinitionattheoutsetofthedifferent external customer groupsandtheservicesprovidedtothem;

relatedtothis,greateremphasisonbothtailoring ChartersgenerallyandonmultipleChartersiftheseareappropriate;

inclusioninallChartersofexplicitcommitmentsthatCharter(andwiderQCS)commitments will be evaluatedandthatthiswillberegular,rigorous,organisation-relatedandreportedon;

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revisedGuidelinesshouldnowreflecttheaboverequirementsandshouldre-emphasisetheroleofcustomerconsultationandfeedback,includingcomplaintsandappealsprocedures;

Guidelinesshouldemphasisetheimportance,notjustofthecustomerexperiencenarrowlydefined,butalsooftherightservicesbeingdeliveredthroughtherightdeliverychannels.

7.4.2 Conclusions – Consultations

Withinthenormalconstraintsofpolicyandresourcesitisimportantthatserviceprovision,includingthemeansthroughwhichservicesareprovided,reflectsasfaraspossiblecustomerpreferencesratherthanbeingexclusivelypre-definedbythesupplyingagency.ThisgoestotheheartofQCS.

InthecontextoftheCharters,practicalimplicationsofthisare:

analysisneedstodifferentiatebetterbetweenthedifferenttargetaudiencesandshouldbeless“generic”acrossmultiplestakeholders;

thereshouldbewideruseofspecificfeed-backstructuressuchascustomerpanels;

considerationshouldbegiventoanenhancedcentralstandardisedsurveyprocesswhichwouldcombineexplorationofthedriversofQCSandmonitoringofperformanceonasystematicbasisacrossorganisations;

therangeofstakeholdersconsultedcouldalsobeextendedtovariousrepresentative,intermediaryandadvocacyorganisationsthatmayhaveagoodknowledgeoftheissuessurroundingeitherthepublicasawholeorspecificstakeholdergroups.ThismightalsobeextendedtotheprofessionalstaffofpoliticalofficesincludingtheOireachtasandconstituencyoffices.

7.4.3 Conclusions – Commitment

Thereareanumberofkeydimensionstothiscriticalissue.

In relation to targets,thereisnowaneed:

torecognisethattheagreementanduseoftargetsandperformanceindicatorsiscriticaltoassessingprogressmadeinachievingtargets;

tobemoreambitiousinrelationtothenatureofthese,movingbeyondpurelyresponsetimestoothertargetsappropriatetothesubstanceofthequalityofserviceofferedbyindividualorganisations;

targetsneedtobemorereflectiveoftheactivitiesofdifferentDepartmentsandOffices,ratherthanbeinggenericacrossorganisationsasawhole;

Chartertargetsshouldbeasub-setofsomeofthecriticalonesinCustomerActionPlans;

Complaints,appealsandredresssystemslinkedtocleartargetsareacentralelementofQCS,andshouldbereflectedinCustomerChartersandCustomerActionPlans.

Maintenance of Levels of CommitmentafterCharterpublicationemergedasacriticalissueintheresearch.Essentially,thebasicsofQCSneedtobeconstantlyinculcatedintopublicservices,andtrainingandawarenessraisingonanongoingbasisiscentraltothis.ThereisextensivegoodpracticeinthisregardavailableinleadingIrishPublicServiceorganisations,intheprivatesector,andinpublic

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servicesinternationally.However,approachesineachorganisationneedtobetailoredtoitsspecificcircumstances.Theessenceofretainingcommitmentisthattheremustbe:

anongoingandproactiveprogrammeofactivityatorganisationleveltoensurethatrelevantstaffareadequatelysupported,informedandcommittedandthattheyaredeliveringandmonitoringChartercommitments;

clearresponsibilityandresourcesforthiswithinorganisations,i.e.theQCSOfficerfunctioninparticularbeadequatelystaffedwithsuitabletrainedpersonnel;

increasedemphasisoncommitmentsandtargetsthatarealsomeasured,monitoredandreportedonexternallyandinternally;

theresultsofmeasurementandmonitoringshould,wherepossible,beusedbyDepartmentsandOfficestoidentifymorechallengingcustomerservicecommitmentsinthemodernisationplanstheyarerequiredtosubmitinrelationtotheperformanceverificationprocessunderTowards 2016;

theresultsofmeasurementandmonitoringmustalsobeutilisedbothasfeedbackintoimprovingservicedeliveryandalso,wherepossible,targetsandmeasurementofprogressshouldbefedintoannualBusinessPlans(ofbusinessunitsandsections)andintothePMDS(e.g.asobjectivesforindividualroleprofileforms);

betterhandovermechanismsforchangesofincumbentQCSOfficersneedtobeputinplace(toensurecommitmentisnotlostatsuchpoints).

Public Visibility of Chartersisessentialifcommitmentsaretobemeaningful.Inthisregard:

visibilityonwebsitesmustbeincreased;

Charterleafletsmustbemorewidelyavailableinreceptions,attachedtocorrespondence,etc;

thereshouldbeCivilServicewidepublicityontheexistenceofCharters;

keyCharter(andQCS)commitmentsshouldbereflectedintherelevantsectoraldevelopmentstrategiesoforganisations,andviceversa.

7.4.4 Conclusions – Monitoring and Evaluation

Conclusionsinrelationtomonitoringandevaluationare:

thereshouldbeaclearandexplicitcommitmenttoevaluationinthepublishedCharters,sothatinterestedstakeholderscanbeawareofitsexistenceandpotentiallyseekinformationontheresults;

evaluationmustbetailoredtotheorganisationanditsservices,relevanttothenatureofthatservice,andrigorousinthemethodologiesused(e.g.propersampling,non-leadingquestionsinsurveysetc);

itneedstoinvolvesomedegreeofindependenceandprofessionalvalidation;

morein-depthanalysisofreasonsfordissatisfactionwithpublicservicesneedstobeundertaken;

thelevelofwebsitehitsonChartersshouldbemonitoredasarelativelysimplewaytogaugelevelsofawarenessofandreferencetothem.

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7.4.5 Conclusions – Reporting

generally,arrangementswithinDepartmentsandOfficesformeasuring,monitoringandreportingonprogressneedtobeclearlydefinedwithclearrolesandresponsibilitiesforthestaffinvolved;

thecurrentreportingmechanismviaAnnualReportsshouldberetainedasacorereportingtool,whichshouldbestrengthened,assetoutinthefollowingpoints;

reportingmustgobeyondpurelystatementsthatmonitoringandevaluationaretakingplace,topresentingtheresults,aswellasthesourceoftheseresults;

reportingshouldhighlightwhereactionhasbeentakenonfootofmonitoringresults;

reportingonChartercommitmentsshouldalsobereflectedinAnnualOutputStatementsandotherreportingprocesseswhicharepresentedtotheOireachtas;

reportingshouldalsoincludedetailsofcomplaintsreceivedoncustomerservicestandardsandwhathasbeendonetoaddresssuchissues.

7.4.6 Conclusions – Wider Contextual Changes

TheseareissueswhicharenotexclusivelyCustomerCharter(orQCS)ones,butwherewiderdevelopmentshavethepotentialtohaveamajordirectbenefitandotherimplicationsforChartersandwhattheyrepresent:

theroll-outofICTbasedpublicservicesneedstobespeededup.Whileanumberofkeyserviceshaveemerged4,theseremainnotablefortheirexceptionalnature.ICTbasedserviceswillalsogiverisetoaneedforquitedifferenttypeofservicetargetsandcommitments,e.g.telephoneandcorrespondenceresponsetimeshavelittlerelevancetoon-lineservices;

decisionsonpossiblecomplaintsandredresssystemsforcasesofPublicServicefailurecouldhaveamajorroleingivingtractiontoCustomerCharter(andQCS)commitments;

embeddingofwiderreportingandmonitoringprocedures(StrategyStatements,AnnualReports,annualBusinessPlans,thePerformanceVerificationprocessandthePMDSprocess)allprovidescopeforexplicitlinkageswithCharterandwiderQCStargets.TheOrganisationalReviewProgrammeannouncedbytheTaoiseachinJune2006alsopresentsanopportunitytoputCharters(andQCSgenerally)atthecentreofthe“healthcheck”processinorganisations;

thenatureandcriteriaofthebiennialTaoiseach’sPublicServiceExcellenceAwardsshouldbereviewedwithaviewtogivingamoreexplicitlinktoQCSandCustomerCharterperformance,possiblyasacategoryofawardonitsown.Considerationshouldalsobegiventohavingaseparate“ChampionCharter”award.

7.5 Principal RecommendationsThetencorerecommendationshererelatetoactionsthatcanbeundertakenintheshort-term,andthatcanbeinitiatedatcentrallevel.Thesearesetoutbelow

Re-engineer QCS and place it centre stage:Thisreviewprovidesanopportunitytore-engineertheCustomerCharterprocessandtoplacecustomerservicesatthecentrewithinorganisations.

4 RevenueOnlineService,MotorTaxation,e-tenders,publicjobs.ie.

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DepartmentsandOfficesshouldusethenextiterationofCustomerChartersandCustomerActionPlanstolookstrategicallyatthewayinwhichtheyapproachcustomerservice.DepartmentsandOfficesshouldensurethatcustomerserviceissuesareadequatelyincorporatedintoallelementsofthestrategicplanningandreportingprocess(StrategyStatements,BusinessPlansandPerformanceManagementandDevelopmentSystems).ThetargetssetoutinCustomerChartersandassociatedCustomerActionPlansshouldfeeddirectlyintothevariousperformanceverificationprocesses,whichcurrentlyobtaininthePublicService.ThisshouldalsoextendtotheproposednewOrganisationalReviewProgrammeswhicharecurrentlybeinginitiatedandwhichcouldusefullyconsidercustomerserviceimprovements,includingthequalityofChartersandCustomerActionPlansandtheresources/emphasisdedicatedtotheissuegenerally;

Streamline the guidelines for preparation of Charters and Plans:AsetofrevisedandconsolidatedguidelinescoveringtheCustomerCharterandCustomerActionPlansshouldbepreparedtofacilitateanewjointcyclefortheperiod200�onwards.ThiswillreflectthefactthatCustomerChartersandCustomerActionPlansshouldbeproducedaspartofthesameprocessandshouldbevalidforaperiodof3years.ThesenewguidelinesshouldreflectcurrentandfutureelementsoftheQCSInitiative,includinganynewschemeofcustomerserviceredress/administrativeremedies,aswellasensuringthatthebasic(butimportant)principlesofcustomerservicebehaviourcontinuetobeemphasisedinallGovernmentorganisations.TheserevisedguidelinesmightbecoordinatedbytheDepartmentoftheTaoiseach,throughtheQCSResearchGroupandtheQCSOfficers’Network,forapprovalbytheImplementationGroupofSecretariesGeneral;

Use Charters to set stretch targets in the area of customer service: ThereisaneedforDepartmentsandOfficestoviewCustomerChartersasliveandevolvingratherthanasstaticdocuments.Thisshouldrecognisethefactthatcommitmentsandobjectiveswillchangeovera3-yearperiodandshould,therefore,beacknowledgedas“stretchtargets”thataremerelyminimum standards.Similarly,commitmentsinChartersshouldnotbeseenasthesumoforganisationalambitiontobereportedonannually,butratherasastartingpointforamorestrategicapproachtoqualitycustomerservice.Inaddition,newelementsintheQCSInitiativearelikelytoariseoverthelifetimeoftheCustomerCharterswhichwillneedtobeincorporatedintotheorganisationalcommitments;

Define the QCS officer role and assign responsibility at an appropriately senior level: Thenatureofoverallandday-to-dayresponsibilityfortheCustomerCharterprocesswithinorganisations(andalsoQCSasawhole)shouldbereviewedacrosstheparticipatingorganisations.Aspartofthis,theQCSOfficerroleshouldbeexaminedandacommonjobdescriptionshouldbedeveloped.Thestatusoftheroleinorganisationaltermsshouldbeconsideredtoensurethatitisatasufficientlyhighlevel.Alsoevaluationfeedbackandreportingprocessesshouldbereviewed,andbetterhandovermechanismswhenresponsibilityfortheroleischangingshouldbedeveloped;

Consider separately resourcing the QCS function:Theresourcingofthecustomerservicefunctioninorganisationsshouldbeexamined,intermsofboththestaffingandtheprovisionofadequateandspecificbudgetsforservicedevelopment.Specificbudgetsforcustomerserviceimprovements,setoutonthebasisofstatedobjectivesandperformanceindicatorswouldallowforamorefocusedapproachandformeasurableandpubliclyidentifiableprojects;

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Accelerate and support the further extension of QCS Charters in the wider Public Service: TheprocessofextendingtheCustomerCharterprocesstothewiderPublicService(e.g.non-commercialstatebodies)throughparentDepartmentsshouldbeaccelerated,withDepartmentswithsectoralresponsibilitiestakingactiveownershipandresponsibilityforthisprocess.Aspartofthis,itisrecommendedthattheorganisationofQCSnetworksandgroupstosupporttheextensionoftheCharterprocessshouldbereviewed;

Use Charters to support ICTs in the re-configuring of customer services around the needs of the customer (both individual and corporate): TheroleofICTsintheprovisionofservicesrequiresmoreattention.ICTs,includingweb-basedservices,canpresentanopportunityfororganisationstoexaminehowtheyareprovidingservicesandhowthismightbedonebetter.TheuseofICTscanpresentacost-effectiveandspeedierserviceandshouldbeanintegralpartoftheCustomerCharterandActionPlanprocess,withDepartmentsandOfficesundertakinganin-depthanalysisoftheirexistingservicesandassessingthepotentialofICTforimprovementoftheseservices,orindeedfornewservices;

Consult customers and use feedback proactively: DepartmentsandOfficesshouldaimtodeveloptheuseofcustomerneedsanalysis,consultationandfeedbackmechanismsintheprovisionoftheirservices.Itisimportantthatservicesaredesignedanddeliveredthroughthechannelsmostconvenienttousers.Specifically,DepartmentsandOfficesshouldaimtodevelopuserpanelsandcustomerfocusgroupstodetermine,onanongoingbasis,whereresourcesarebestdirectedandalsotoprovidefeedbackwherenecessary.Surveystargetingspecificissues(e.g.therecentESRIBusinessRegulationSurvey)arealsousefulonacross-Departmentalbasisandshouldbefurtherutilised;

More regular and detailed surveys should be undertaken:Amoreregular(annual)detailedandextensivenationalPublicServiceCustomerSurveyprocessshouldbeputinplace.Thisshouldincludeamuchlargersamplesothatresultscanbebrokendownbyorganisation,servicearea,populationgroups,geographicalarea,etc.anditshouldincludemoredetailedexplorationofthedriversofattitudestopublicservices.Itshouldtrytoestablishthereasonsforparticularfindings,bothpositiveandnegative(inthisregarditwouldbeusefultolookatCanada’s“CitizensFirst”surveys).Thiscouldbedoneviaenlargementoftheexistingcentralsurvey,ajointsurveyacrosstheorganisations,orseparatesurveysundertakenonacommonbasis.ItissuggestedthattheQCSResearchGroupcouldbeaskedtoexaminethepossibilitiesinthisareaandtoreportitsfindings;

Independently monitor compliance:WhileDepartmentsandOfficesremainresponsiblefortestingtheirowncommitmentsthroughsurveys,mysteryshoppersetc,considerationshouldbegiventoasystemofregularindependentspotcheckstobeundertakenonasystemwidebasis.

6.

7.

8.

9.

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Annexes


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Annex 1: Departments and Offices in the Customer Charter process

Organisation List of Respondees/ConsulteesCentral Statistics Office Mr Eamonn Dorney

Courts Service Ms Lauri Walsh

Department of Agriculture and Food Mr Ray Williamson

Department of Arts Sport and Tourism Mr John Hanafin

Department of Communications, Marine and Natural Resources Mr Michael J. Purcell, Ms Ciara Bates, Ms Ann Monahan, Ms Mary O’Donnell, Mr Des Byrne

Department of Community Rural and Gaeltacht Affairs Ms Siobhan Stack

Department of Defence Ms Monica Hall

Department of Education and Science Mr Christopher McCamley, Ms Maria Sullivan

Department of Enterprise Trade and Employment Ms Imelda Hardiman, Ms Sandra Houlihan, Mr Greg Revins

Department of the Environment Heritage and Local Government Mr Tom O’Mahony, Ms Margaret Killeen, Ms Eileen Hughes

Department of Finance Ms Rita Meehan

Department of Foreign Affairs Mr John Boyd, Ms Clare Doyle

Department of Health and Children Mr Michael Mulkerrin

Department of Justice Equality and Law Reform Mr Gerry Shannon

Department of Social and Family Affairs Ms Martina Jordan, Mr Aidan O’Reilly

Department of the Taoiseach Mr Ray Henry, Mr Nason Fallon

Department of Transport Mr Greg Flanagan, Mr Derek Rafferty

Houses of the Oireachtas Mr Eugene Crowley, Mr Peter Malone

Property Registration Authority Ms Anne Heneghan

Office of Public Works Mr Frank Shalvey

Office of the Attorney General/CSSO Mr Paul Gibney

Office of the Chief State Solicitor Mr Gearoid Browne

Office of the Director of Public Prosecutions Ms Helen Cullen

Office of the Refugee Applications Commissioner Ms Geraldine Gilhooly, Ms Pauline O’Dwyer

Office of the Revenue Commissioners Mr Declan Rigney, Mr Owen Jacob

Ordinance Survey Ireland Mr Brian McArdle

Public Appointments Service Mr Bryan Andrews, Mr Martin Bourke, Mr Gerard Murphy

State Examinations Commission Ms Andrea Feeney, Ms Patricia Andersen, Mr Richard Dolan

State Laboratory Ms Grainne Carroll

Valuation Office Mr Pat McCarthy


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Annex 2: List of Other Consultees

Department of the Taoiseach – PSM Division Mr Philip Kelly, Assistant Secretary Mr Dermot Curran, Principal Officer Mr Aidan Timmins, Assistant Principal Mr Tony Kavanagh, HEO

High-Level Public ServantsDepartment of the Taoiseach Mr Dermot McCarthy, Secretary General

Department of Finance Mr Eddie Sullivan, Secretary General (Member of Implementation Group)

Department of Transport Mr John Fearon, Assistant Secretary (ex-Chair of Change Management Network)

Public Appointments Commission Mr Bryan Andrews, CEO, (Chair, QCS Officers Network)

Department of Environment, Heritage and Local Government Mr Tom O’Mahony, Assistant Secretary (Chair, QCS Research Group)

Revenue Mr Liam Irwin, Deputy Secretary (representing Frank Daly, Chair of QCS Working Group)

IPA Mr Peter Humphreys, Executive Director IPA (Member QCS Research Group)

Department of Social and Family Affairs Mr John Hynes, Secretary General, Department of Social and Family Affairs, (Chair, High-level Group on Redress)

Trade Union, Employer and Other Representative BodiesIMPACT Ms Louise O’Donnell, National Secretary,

Civil Service Division

IBEC Fergal O’Brien, Senior Economist

Consumers Association of Ireland Mr Dermott Jewell, Chief Executive (Member QCS Working Group)

Other Public Sector AgenciesThe Equality Authority Mr Niall Crowley, Chief Executive

(Member QCS Working Group) Ms Carol Baxter, Head of Development

The Office of the Ombudsman Mr Pat Whelan, Director General

The National Disability Authority Mr Erik Koorneef, Access Officer

Combat Poverty Agency Ms Vanessa Coffey, Research Officer

Forfás Mr Michael O’Leary, Secretary

Central Fisheries Board Mr John O’Connor, Chief Executive

IDA Ireland Mr Martin Burbridge, Secretary

OtherCabinet Office, London Ms Emma Peake, Head of Policy, Charter Mark Team

State Service Commission, New Zealand Ms Karen Jones, Communications Manager

RA Consulting, Dublin Mr Peter Ryan


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1. Introduction and BackgroundTheMissionoftheDepartmentofForeignAffairs(DFA)is“toadvanceIreland’spoliticalandeconomicinterestsintheEuropeanUnionandinthewiderworld,topromoteIreland’scontributiontointernationalpeace,securityanddevelopmentboththroughtheEuropeanUnionandthroughactiveparticipationininternationalorganisations,inparticulartheUnitedNations,toprotectourcitizensabroad,andtopursuereconciliationandpartnershipontheislandofIreland”.TheworkoftheDepartmentisdividedbetweenthirteendivisionsatheadquarters(HQ)andatotalof74diplomaticandconsularofficesabroad(referredtoas“Missions”),aswellastheBritish-IrishIntergovernmentalSecretariatinBelfastandtheNorth-SouthMinisterialCouncilJointSecretariatinArmagh.Departmentalstaffnumberapproximately1,500,abouthalfofwhomarebasedabroadatanyonetime.

2. QCS in the DepartmentTheDFAadvisestheMinisterforForeignAffairs,theMinistersofStateandtheGovernmentonallaspectsofforeignpolicyandcoordinatesIreland’sresponsetointernationaldevelopments.Italsoprovidesadviceandsupportonallissuesrelevanttothepursuitofpeace,partnershipandreconciliationinNorthernIreland,andbetweenNorthandSouthoftheisland,andtodeepeningIreland’srelationshipwithBritain.MajorareasofitsworkrelatetoAnglo-IrishrelationsandNorthernIreland,bilateralinternationaleconomicrelations,internationalculturalrelations,developmentco-operation,theEuropeanUnion,internationalpoliticalissuesandprotocol.Ithasawiderangeoffunctionsandworkswithandonbehalfofawiderangeofcustomers,includingotherGovernmentDepartmentsorOffices,foreignGovernments,theEmbassiesandConsulatesofothercountries,internationalorganisations,internationaldiplomats,non-governmentalorganisations,Irishbusinessesandindividuals,journalists,researchersandpublicrepresentatives.

MuchoftheworkoftheDepartmentiscarriedoutonbehalfofallcitizens,ratherthandirectlytospecificcitizens.Thelatterarepredominantlyinrelationtopassportandconsularactivities.PassportsareissuedtoIrishcitizensathomebytheIrish-basedpassportofficesaswellasabroadthroughtheMissionsoverseas.TheDublin-basedConsularDivisionandtheoverseasMissionsalsoprovidearangeofotherservicestoIrishcitizensvisitingorresidentinothercountries.

TheDepartmentpublisheditsCustomerCharterin2004,fulfillingacommitmentinitsSustaining ProgressActionPlan,anditsobligationsinrelationtothecentrally-drivenQCSinitiative.ItsubsequentlypublisheditsfirstCustomerActionPlan(CAP)in2001.ItscurrentCAPwaspublishedin20061(coveringtheperiod2006-200�).TheActionPlanisstructuredaroundthe12principlesofQualityCustomerService,andmakesvariouscommitmentsundereachwithvaryingdegreesofspecificity.

1 DepartmentofForeignAffairs,CustomerServiceActionPlan2006-200�

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3. Department of Foreign Affairs Customer CharterTheDepartment’sCharterfollowsthetypicalpatternelsewhere,withsectionswhich,inturn,address:contactbytelephone;writtencorrespondence(includingatargetforresponsetimes);visitorstotheDepartment;provisionofinformation;servicesthroughIrish;equality/diversity;consultationandfeedback;complaints;monitoringandevaluation;“helpustohelpyou”;websiteandofficedetails.Italsohoweverhasasectiondealingspecificallywithapplicationsforpassport,visaandconsularservices,whichcontainsthefollowingcommitments:

issueapplicationformsonthesamedaytheyarerequested;

issuepassportswithin10workingdaysinresponsetoproperlycompleted“PassportExpress”orcounterapplications,andwithin20workingdaysforapplicationsreceivedbyordinarypost;

processapplicationsforvisasaspromptlyaspossible,incooperationwiththeDepartmentofJustice,EqualityandLawReform;and

processapplicationsforotherconsularservices(e.g.Irishcitizenshipbasedonmarriageordescent,authenticationofpublicdocumentsforuseabroad,etc)asquicklyandefficientlyaspossible.

ThehomepageoftheDepartment’swebsitecontainsalinkto“ServicestothePublic”,leadingtoapagethatcontainsafurtherlinktotheCharterdocument.Quantifiedtargetsrelateonlytowrittencorrespondenceresponsetimesandpassportadministration,asoutlinedabove.

4. Charter ImplementationThepreparationoftheCharterinvolvedasurveyofwebsiteusers,asurveyofPassportOfficecustomers,aswellaswideconsultationswithstaff.Sincepublication,theCharterhasbeenpromotedextensivelywithintheDepartmentthroughstaffinductionandongoingtrainingandinternaldistributionofthedocumenttostaffinIrelandandabroad.CustomerservicealsofeatureswithinroleprofilesunderthePMDSsystem.Feedbackmechanismswereestablishedandcustomerfeedbackismonitoredandconsidered.Similarly,formalcomplaintsaremonitoredandactedupon(althoughtheirnumberhasbeenminimal).

OtherdevelopmentsthathavetakenplaceinsupportofChartercommitmentshaveincludedongoingandsignificantimprovementstothepassportservice,includingthecommissioningofastate-of-the-artpassportproductioncentreinBalbriggan,thecontinuedimplementationofamajorprojecttomodernisethesystemsforprocessingpassportapplications,involvinganewsingleapplicationform,anewworkflowmanagementsystem,anelectronicsystemlinkingapplicationsreceivedinoverseasMissionswiththeBalbrigganproductioncentre,andtheincrementalroll-outoftheimprovedsystemtobothIrishpassportofficesandoverseasMissions.Inaddition,thePassportExpressServicehasbeenextendedinbothNorthernIrelandandinanumberofUKcities,throughco-operativeagreementswithlocalpostalserviceproviders.Passportpaymentoptionshavebeenwidened,andbiometricpassportcapabilitieshavebeenintroduced,whichhasallowedIrelandtocontinuetoqualifyfortheUSVisaWaiversystem.Apictorialguideonthetypeandqualityofphotographsthatarerequiredtobesubmittedwithpassportapplicationswasproduced,whichhasreducedthenumberofapplicationsneedingtobereturnedduetotheinferiorqualityofthephotographssubmitted.

Routineconsularservicestothepublicincludingtheprovisionoftraveladvicehavebeenimproved,throughtheapplicationofimprovedmanagementsystemsandgreateruseofinformationtechnology.

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Non-routineconsularservices,particularlyemergencyresponsestointernationalcrises,havealsoimprovedandbeendevelopedconsiderably.FollowingthetsunamiinSouthEastAsiaacrisiscentrewasestablishedwithanumberofemergencyhelplinenumberstoassistrelativesandfriendsofIrishpeopleintheaffectedareas.Over3,000telephonecallswerereceivedconcerningover1,200peoplewhowerebelievedtobeinorneartheaffectedareas.DepartmentalofficialswerealsoputinplaceinThailandandSriLankatoassistinlocatingandhelpingIrishcitizens.TheDepartmentalsoestablishedaCrisisCentreintheimmediateaftermathoftheLondonbombingson7thJuly2005,provideda24-hourhelpline,andestablishedanemergencycentreattheIrishembassyinLondon.TheDepartmentalsoplacedstaffintemporaryofficesinHoustonandDallastohelpandsupportIrishcitizenscaughtupintheHurricaneKatrinadisaster.

InJanuary2007,theMinisterforForeignAffairslaunchedtheDepartment’sCrisisCentrewhichcanbeimmediatelyoperationalisedinresponsetoemergenciesabroadinvolvinglargenumbersofIrishcitizens.ProvidedwithuptodateICTfacilities,theCentrecanbestaffedwithinacoupleofhours.AcallforofficerstovolunteertobeplacedontheCentre’scall-uplistresultedinover100officersputtingtheirnamesforward.

TheDepartment’s“Scheme”undertheOfficialLanguagesAct(2003)wasconfirmedbytheMinisterforCommunity,RuralandGaeltachtAffairswithacommencementdateof1December2006.

NeithertheCharternortheCustomerServiceActionPlanhavebeenupdatedorevaluatedsincepublication,andnoorganisation-widecorrespondencetrackingsystemhasbeenestablished,althoughMinisterialcorrespondenceistracked.

5. Charter ImpactIninterviews,theDepartment’srepresentativesfeltthattheimpactoftheCharterhadprobablybeenmedium.Customerservicestandardsarefelttocontinuetoimproveacrossallfunctions,andstaffawarenessoftheCharterandofcustomerservicerequirementsmoregenerallyisconsideredtobeveryhigh,asisstaffcommitmenttoqualitycustomerserviceprinciples.Majorimprovementsinservicestandardshaveoccurredinrelationtokeycustomer-facingfunctions,particularlypassportandconsularservices.ThereislittleevidencethatdirectlyattributesthesedevelopmentstotheCharteritself,althoughtheCharterprocesshasprobablyplayedasignificantpartinmaintainingmomentumandfocusinrelationtoperformanceimprovementsandprocessesalreadytakingplace.

TheDepartmentmeetsitsChartertargetsinrelationtopassportapplicationsandcomplaintsareveryrare.Inaddition,itreceivesverypositivefeedbackparticularlyfollowingassistanceitprovidestocitizensseekingassistance/informationregardingfriendsandrelativesoverseas.

6. ConclusionsWithinitsoverallremitandwork,theDFAhasalimitedrangeofcustomer-facingfunctions.Nonetheless,asizeablenumberofthepopulationcanexpecttobeincontactwiththeDepartmentinrelationtopassportapplications.Inthisregard,approximately630,000passportswereissuedlastyear.

TheprocessofestablishingandimplementingitsCustomerCharterhassharedmanysimilaritieswithprocessesinotherorganisations,particularlythoseprovidingawideanddiverserangeofservicesandfunctions.ItpublishedarelativelytypicalCharterstructuredaroundstandardheadings,whichincorporatedfewspecificquantifiedtargets.Considerableinternalandexternalconsultationinformed


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thepreparationoftheCharter.Itsdistinctimpact(beyondtheimpactofwidercustomer-orientedinitiatives)isdifficulttogauge,andnosurveyofcustomershastakenplacesincepublication,norareviewoftheCharteritself(althoughsuchareviewisplanned).

Improvementstoservicesprovideddirectlytocustomers,particularlyinrelationtopassportapplications,beganpriortotheestablishmentoftheCharterandCustomerActionPlan.HoweverfurthermajorimprovementsinsuchareashavetakenplaceintandemwithCharterimplementationandtheimplementationoftheCustomerServiceActionPlan.SuchimprovementsmighthaveoccurredintheabsenceoftheCharterprocess,butitislikelytohaveaddedtothemomentumbehind,andthecommitmentto,suchimprovements.TheDepartmentprovidesagoodcasestudyofanorganisationwithfewcustomer-facingroles,whichthereforeadoptedaquitegenericCharter,butonewhichhasunderpinnedandsupportedverysignificantserviceimprovementsintheareasinwhichitdealsdirectlywithcitizens.


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1. Introduction and BackgroundTheDepartmentofCommunications,MarineandNaturalResources(DCMNR)hasresponsibilityforthetelecommunicationsandbroadcastingsectorsandregulates,protectsanddevelopsthemarineandnaturalresourcesofIreland.Itsmissionis‘topromotethesustainabledevelopment,managementandregulationofthecommunications,energy,marineandnaturalresourcessectorsinsupportofnationaleconomicandsocialpolicyobjectives’.Itsremitisthereforewideanddiverse.

TheDCMNRhasstafftotallingapproximately600people,locatedinthreeofficesinDublin(LeesonLane,AdelaideRoadandHaddingtonRoad),aswellasofficesinClonakilty,Castelbar,andCavan.Asmallnumberofspecialistservicesareprovidedfromotherlocations(e.g.FisheryHarboursandtheEngineeringDivision).

Some27agenciesandorganisationsoperateundertheaegisoftheDepartment,includingcommercialstatebodies(e.g.AnPost,RTÉ,ESB,BordnaMónaandBGÉ),non-commercialStatebodies(e.g.theBroadcastingComplaintsCommission,SustainableEnergyIreland,theMarineInstitute,BordIascaighMhara,andtheCentralFisheriesBoard),regulatoryauthorities(e.g.theCommissionsforCommunicationsandEnergyRegulation),andothersectoralagenciessuchastheAquacultureLicencesAppealsBoard,theMiningBoard,theNationalSalmonCommissionandtheFoyleCarlingfordandIrishLightsCommission.

2. QCS in the DepartmentCustomersoftheDepartmentcoverawiderangeofcategoriesandincludeallbodiesandagenciesoperatingunderitsumbrella,privatecompaniesactiveinthecommunications,energy,marine,miningandexplorationandothernaturalresourcesectors,broadcasters,fishermenandfishingorganisations,licenceapplicants,researchersandresearchinstitutions,journalists,publicrepresentativesaswellasmembersofthepublic.

TheDepartmentprovidesarangeofservicesdirectlytothepublic,includinglicensingofpassengerboats,managementofFisheryHarbourCentres,provisionofgeologicalmaps,reportsanddatabases,andmarinesearchandrescue.

TheDepartment’sStrategyStatement2003-2005,publishedinJune2003,identifiedamongitsgoalstheneedtomaintainanethosofhighqualitycustomerservice,reflectingtheneedsandexpectationsofinternalandexternalcustomers.Subsequently,togiveeffecttothiscommitment,aCustomerServiceActionPlan(CAP)1andCustomerCharterwaspublishedinApril2004.ThepreparationanddevelopmentoftheCAPandCharterwereoverseenbytheDepartment’sPartnershipSub-grouponQualityCustomerService,andinvolvedwidespreadconsultationswithbothinternalandexternal

1 DepartmentofCommunications,MarineandNaturalResources,CustomerServiceActionPlan2004-2006.


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customers.ItwasformulatedinthecontextoftheGovernment’sQualityCustomerServiceInitiativeandthepublicsectormodernisationobjectivesoftheSustainingProgressSocialPartnershipAgreement2003-2005.TheCAPwasinitiallyplannedtocovertheperiod2004-2006,butthishasrecentlybeenextendedtoend-2007.Neitherthe2004CAPnortheCharterhasbeenupdatedorrevisedasyet.

TheCAPsetsoutindetailthecommitmentsoftheDepartmentovertheperiodundertheheadingsofthe12PrinciplesofQCS(i.e.qualityservicestandards,equality/diversity,physicalaccess,informationetc).ItalsocommitstheDepartmenttoembeddingQualityCustomerServicethroughtheinclusionofspecificcommitmentswithinbothitsStrategyStatementandtheDivisionalBusinessPlanspreparedbyindividualbusinessunits.TheCAPalsostatesthatthe“customerservicedimensionwillbeacentralelementintheongoingmonitoringandreviewoftheimplementationofDivisionalBusinessPlans”,andthat“thePerformanceManagementandDevelopmentSystemreflectsthecentralimportanceofQualityCustomerServicefortheDepartmentbyfocusingmanagersandstaffontheircriticalroleinthedeliveryoftopqualityservicesandidentifyingthetrainingtheyneedtoenablethemtodischargethisroleeffectively”.

Withregardtonon-commercialstatebodiesunderitsaegis,theDepartment’sCAPalsomadethefollowingcommitments:“wewill,overthenextyear,engageactivelywiththesebodiestoensurethatthePrinciplesofQualityCustomerServicearereflectedappropriatelyintheirstrategicandbusinessplanningprocesses”.

QCSistheresponsibilityofaStrategicChangeUnitwithintheDepartment.Itsotherresponsibilitiesinclude:

theDepartment’sbusinessplanning;

ChangeManagementFundsfortheDepartmentandnon-commercialState-sponsoredbodies;

promotionofthechangeandmodernisationagenda;

Partnershipdevelopmentandsupport;

supportinganddrivingtheDepartment’sinvolvementintheSustaining ProgressPerformanceVerificationProcess;and

theDepartment’sAnnualReportandStatementofStrategy.

3. Customer CharterTheDepartment’sChartercomprisesafive-pageundatedleaflet,structuredasfollows:

anIntroduction,attestingtotheDepartment’scommitmenttoQualityCustomerServiceandassuringcustomersofhighcustomerstandardsthroughouttheDepartment’sdecentralisationprocess;

aSectiontitled“OurCommitmentstoYou”,withsub-sectionsdealingwithtelephoneenquiries,writtencorrespondence,personalcallers,information,complaints/appealsprocedure,consultation/feedback,evaluation/reporting,servicethroughIrish,officedetailsandcontactdetails.

Withtheexceptionoftheearlyreferencesmadetothedecentralisationprocess,theDepartment’sCharterdoesnotdiffergreatlyfromthoseofmostotherDepartmentsandagencies.Quantified

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targetsaresetinrespectofresponsetimestotelephoneandwrittencorrespondence,andqualitativecommitmentsmadeelsewherearesimilartothoseofmostotherCharters.

WhilenotaccessiblefromthehomepageoftheDepartment’swebsite,thehomepagecontainsadirectlinktoaCustomerServicesection,whichcontainstheCharterandotherrelevantdocuments.TheCharteraspublishedcontainedacommitmenttoundertakeaCustomerSurveyin2005(seebelow).

4. Charter ImplementationTheDepartmenthastakenmanystepsaimedatgivingeffecttothecommitmentsintheChartersinceitspublication,includingseveralinitiativesaimedatcreatingandmaintaininghighlevelsofinternalawarenessandcommitmenttotheCharterandcustomerservicemoregenerally.Thesehaveincludedaninternal“Launch”oftheCharter,provisionofcustomerservicetrainingforstaff,establishmentofacomplaintsprocedure,thepostingoftheCharterinoffices,inclusionofcustomerservicearticlesintheinternalstaffmagazine,andtheexplicitconsiderationofcustomerservicewithinthePMDS.MembersoftheStrategicChangeUnitalsodeliveredapproximately20presentationstointernalbusinessunitsexplainingtheCharter,itsimplicationsandhowitshouldaffectdivisionalfunctions.CustomerservicestandardsandcommitmentsarealsoexplicitlyconsideredandaddressedwithinBusinessPlansofDepartmentaldivisionsandunits,andQuarterlyReportsfromBusinessUnitsalsomakeexplicitreferencetocustomerserviceinitiativesandachievements.

AspertheChartercommitment,aCustomerSurveywascommissionedfromexternalconsultantsin2005,thereportofwhichispublishedonthewebsite.Thesurveymethodinvolvedinternalinterviewswithapproximately30Departmentalstaff,focusgroupsinvolvingapproximately30externalcustomers,andaweb-basedandpostalsurveyofapproximately315externalcustomers.ThesurveyspecificallycoveredthefourmainfunctionsoftheDepartmentindividually(i.e.communications,energy,marineandnaturalresources),andresultsweregenerallypresentedforeach.Thereport,whichwaspublishedinAugust2005,wasprofessionallyprepared,iscomprehensiveandincludesaseriesofrecommendations.AnActionPlantooverseetheimplementationoftherecommendationswassubsequentlyprepared.

InrelationtoquantitativetargetscontainedintheCharter,anumberofmysteryshoppingexerciseshavebeenundertakentomeasuretelephoneresponsetimes,andtheresultsreportedtotheManagementAdvisoryCommittee(althoughnotasyetinAnnualReports).

5. Charter ImpactStaffoftheStrategicChangeUnitfelt,onbalance,theCharterhashada“medium”levelofimpact,andthatitsimpactisextremelydifficulttoisolatefromwidercustomerserviceinitiativesandthemoregeneralmodernisationprocess.TheestablishmentofthecomplaintsprocedureresulteddirectlyfromtheCharterprocess,andtheexternallycommissioned2005surveyandresultingreportandrecommendationsmaynothavetakenplacehadnoCharterbeenprepared.Themostsignificantimpactsperceivedhoweverareinrelationtostaffawarenessofcustomerserviceobligationsandcustomerawarenessofstandardstoexpect.Whileevidenceforthisisanecdotal,thereisawidelysharedviewwithintheStrategicChangeUnitthattheCharterprocesshasfurtherinstilledandembeddedagenuinecustomerfocusandethosthatwaslessapparentinthepast(fivecurrentorpastmembersoftheUnitwereconsulted).The2005CustomerSurveyfoundevidenceofgenerallyhighlevelsofcustomersatisfaction,particularlywithregardtotheDepartment’sresponsiveness,accessibility,consultation,servicedelivery,andknowledgeandexpertise.


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Justoveronequarterofrespondentsperceivedcustomerservicestandardstohaveimprovedovertheprior1�months,while72%perceivednochange,althoughtheformerreached53%inthecaseofcustomersofservicesrelatingtothemarineissues.

6. ConclusionsTheCharterprocesswithinDCMNRwasinitiatedasaresultofthecentrally-drivenQCSInitiativeacrosstheCivilService.Itinvolvedwideandextensiveinternalandexternalprior-consultations.TheCharteritselfcontainsquantitativeandqualitativecommitmentstypicalofthoseofotherorganisations,andwasdraftedwithsignificantreferencetothecentrallyprovidedGuidelinesonCharterpreparation.

MoredistinctaspectsincludetheverywideanddiverserangeoffunctionsoftheDepartmentandthelargenumberofagenciesthatoperateunderitsaegis,bothofwhichfavouredthedevelopmentofquiteagenericCharter,withcommitmentsandstandardssetoutwhicharenottailoredtospecificfunctions,dutiesorcustomers.

ManyinitiativeshavebeenundertakentogiveeffecttoChartercommitments(e.g.asurvey,correspondencetracking,andtheintegrationofQCScommitmentswithboththePMDSandbusinessunitplanningandreporting).Howeveraspecificinitiative,wherebymembersoftheStrategicChangeUnitpreparedanddeliveredinternalpresentationstobusinessunits,inrelationtotheCharterandhowitmightaffecttheworkofeach,wasparticularlyaptgiventhewideanddiverserangeoffunctionsoftheDepartment,andtheneedtononethelessmaximiseawarenessof,andcommitmentto,itsprinciplesacrosssuchalargeanddiverseorganisation.Thisprocessappearstohavebeenwelcomedbystaffandunitmanagers,andcouldprovidelessonsforotherlargeDepartmentsororganisationswithasimilarmulti-facetedremit.


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1. Background and ContextTheprimaryfunctionsoftheOfficeoftheHousesoftheOireachtasaretosupportthesittingsofDáilÉireann,SeanadÉireannandOireachtasCommittees;deliverservicestoMembers;andpromotepublicunderstandingoftheworkoftheHousesoftheOireachtas.TheOfficeisresponsibleforafullrangeofservicesincluding–

PreparingBillsandassociateddocumentation.

OrderPapersforbothHouses.

Briefingandrelatedstaffsupports.

SessionaldocumentationforHousesandCommittees.

Recordsofproceedings.

ReportsofCommittees.

Translationservices.

LibraryandResearchservices.

InformationandITservicesincludingbroadcasting.

Officeequipment/Secretarialfacilitiesandservices.

Paymentoffinancialentitlements.

HRservices.

Procurement.

PublicRelationsandVisitorservices.

Financialmanagement.

LegalServices.

Management/Governance/Strategy/AnnualReports/FOI/CustomerService.

Security.

HealthandSafety.

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ResponsibilityfortherunningoftheHousesoftheOireachtasandtheadministrationandmanagementoftheOfficevestswiththeHousesoftheOireachtasCommission.TheCommissionwasestablishedundertheHousesoftheOireachtasCommissionAct2003andcameintobeingon1January2004.TheHousesoftheOireachtashad392staffin2006andabudgetfortheperiod2007-2009of€393million.

TheHousesoftheOireachtasstaffprovideservicesforthreedistinctgroupsofexternalcustomers:

226electedmembersofbothHouses–TDsandSenators.Thesearetheprimarycustomers;

346politicalstaffwhoareemployedbytheelectedmembersandworkwiththisgroupissubjecttocertainconditionsandprocedures;

thegeneralpublic,especiallyapproximately50,000visitorstoLeinsterHouseeachyearandthosewhocometoLeinsterHouseonofficialbusiness.

2. QCS, Customer Service Action Plan and Customer Charters

ACustomerServiceActionPlanwasfirstdrawnupfortheperiod2004-2006.1ThePlanstatedtheroleoftheOffice,identifiedcustomers,setprotocolsfordealingwithcustomersandreviewedhowitwouldimplementthe12QCSprinciples.

WhendrawinguptheChartersin2006theOfficedecidedthattheservicesprovidedtothethreeexternalcustomergroupsidentifiedabovewereverydistinctandthatthereforethereshouldbeaseparateCharterforeachgroup.ItwasalsodecidedthatafourthseparateChartershouldbepreparedforthestaffoftheHouses.ThisapproachofproducingfourseparateChartersisexceptionalwithmostorganisationsproducingonlyoneCharterandonlythreeothersproducingtwoCharters.ThisreflectstheparticularcircumstancesinLeinsterHousewheretwoofthegroupsof“external”customersworkinLeinsterHouse.ThreeCharterswerepublishedinMay2006andthefourthinearly2007,eachcoverstheperiod2006-2009.

TherewasextensiveinvolvementofthecustomergroupswithinLeinsterHouseinthepreparationoftheChartersandtheCustomerServiceActionPlan.FocusGroupswereorganisedandallmembersofthehousesandstaffmembers,bothpoliticalstaffandHousesstaffwereinvitedtoattend.Some35Membersand200staffofallcategoriesturnedupvoluntarilytoparticipateinmixedfocusgroupstocontributetotheprocess.TherewasafollowupsurveyofMembersandstaffbasedontheissuesraisedinthefocusgroups.Theviewwasexpressedthat,inanorganisationwherethemainfunctionistheprovisionofservicestoanumberofsmallgroupsofcustomersandthecustomerserviceethoswasalreadywellembedded,theChartersoutlinedwhatinmanycaseswasalreadystandardpracticewithintheOffice.However,theprocessofinvolvementofalltheplayersintheprocessofpreparingtheCustomerCharterwasseenasabeneficialexerciseandcontributedtofurtherimprovingawarenessofcustomerserviceinadditiontocontributingtotheactualCharteritself.

3. ImplementationEachofthefourChartersfollowsthesameformatandisproducedasaprintedbookletwithhighqualityfullcolourphotography.EachCharterisproducedinIrishandEnglishandusesthesamesectionheadings–

1 OfficeoftheHousesoftheOireachtas,CustomerServiceActionPlan2004-2006

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Introduction–includescommitmenttoqualityserviceandtoevaluationandimprovementofservice.

Communicating with You–opentwowaycommunication,accuratetimelyandaccessibleinformation.

Access and Security–easeofaccessincludingforpeoplewithadisabilityandmaintainingsafety,securityandprivacy.

A Safe, Comfortable and Properly Equipped Working Environment–qualityworkingenvironmentwithuptodateICT.

Consistency, Equality and Transparency–consistenthighlevelofserviceforallcustomers.

Official Languages–facilitateuseofeitherofficiallanguage.

Working Together–employeesandcustomerstoactwithcourtesyandrespectatalltimes.

We Need Your Commitment–committedtostatedobjectives,commentsandsuggestionswelcome.

AtthelaunchoftheCharters,copiesweredistributedtoeachgroupofcustomersandaregiventovisitorstotheHouses.TheChartersareontheHousesoftheOireachtasWebsiteviaadirectlinkbutthedocumentcanbeslowordifficulttoopenduetotheformatused.TheCharterisalsoemphasisedininductioncoursesfornewstaffandcopiesareondisplaywithotherinformationmaterialontheHouses.

4. ImpactConsiderationwasgiventoinclusionoftargetsforresponsetimesfortelephonesandcorrespondenceintheChartersbutthesewerethoughttobeinappropriateforinclusionintheCharters,inviewofthenatureofservicessuppliedtothevariousgroupsofcustomers.TargetsandObjectiveshavebeenincludedintheCustomerServiceActionPlanandintheStrategicPlan.ResponsetimesforcorrespondencewereincludedintheCustomerServiceActionPlan2004-2006butthe2005AnnualReport2doesnotreportonprogressonthistarget.

FiveKeyObjectiveswereidentifiedintheHousesoftheOireachtasStrategicPlan2005-2006.PerformanceIndicatorshavebeenadoptedrelatingtotheseObjectivesandmeasurementprocedureshavebeenputinplaceandwillbereportedonintheAnnualReports.Theseare:

The smooth running of the Houses and their Committees–measurementwillbebywayofperiodicstructuredinterviewsofOfficeholdersofbothHousesandClerksoftheDáilandSeanadstartingin2006.

Provision of the supports necessary for Members to fulfil their duties-a23questionsurveyofMembersin2005gaveanaveragescoreof7.63outofamaximumof10forservicestomembers.

Improved public perception and understanding of the role of the Houses and their Members-aweb-basedsurvey,asurveyofmembersandanindependentsurveywerecarriedout.Resultsincluded-79%ratedwebsiteasfairlyclearorveryclear,75%ratedvisitasimprovingorgreatlyimprovingknowledgeofHouse,65%ofMembersconsiderHousescommunicatepoorlyorverypoorly.

2 AnnualReportoftheHousesoftheOireachtas,1January2005to31December2005

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The Success of the Commission, good governance and decision making.ThiswillbeassessedthroughasystemofstructuredinterviewsofmembersoftheCommissionwhichwasstartedin2006.

Good Management and value for the money entrusted to the Commission.AsurveyofbothstaffoftheHousesandpoliticalstaffwascarriedoutin2005tomeasurecustomerserviceperformance.Thisresultedinanaveragescoreof7.33outofamaximum10.

AnupdatedStrategicPlan2007-09hasbeenpreparedandwillbepublishedsoon.AnewCustomerServiceActionPlanisscheduledforcompletionin2007.

5. ConclusionsTheprocessofpreparationoftheCustomerCharters,togetherwiththeStrategicPlansandtheCustomerServiceActionPlanhaveallcombinedtoraiseawarenessofcustomerserviceintheHousesoftheOireachtas.TheOfficehasinvestedconsiderabletimeandresourcesinproducingtheChartersinahighqualityandattractiveformat.Broadeningthebaseofcustomerserviceawarenesstogetherwithmeasurementofperformanceandsecuringcommitmenthavebeenthemainchallengesintheprocess.Agreateremphasisonqualitativeissuesratherthanonquantitativeissuesissuggestedinthefuture.

ThemainlessonfromtheHousesoftheOireachtasexperienceisthatofhavingseparateChartersfordifferingcustomergroups.Thispracticegivesrisetosharperidentificationofthecustomergroupsandtheirneedsandassistsservicingofthesecustomergroups.

4.

5.


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1. Introduction and BackgroundThecorebusinessoftheOfficeoftheRevenueCommissioners(orRevenue)istheassessmentandcollectionoftaxesandduties.Itsmission,asstatedinitsAnnualReport(2005)1,is“to serve the community by fairly and efficiently collecting taxes and duties and implementing import and export controls”.Inbroadterms,theworkofRevenuethereforeincludes:

assessing,collectingandmanagingtaxesanddutiesthataccountforover93%ofExchequerrevenue;

administeringthecustomsregimeforthecontrolofimportsandexportsandcollectionofdutiesandleviesonbehalfoftheEU;

workinginco-operationwithotherStateagenciesinthefightagainstdrugsandinothercross-Departmentalinitiatives;

carryingoutagencyworkforotherDepartments;

collectionofPRSIfortheDepartmentofSocialandFamilyAffairs;

provisionofpolicyadviceontaxationissues.

Scale-wise,Revenueisoneofthemajorfront-linepublicserviceprovidersnationally,andalongsidetheDepartmentofSocialandFamilyAffairsisoneofthe“bigtwo”directserviceproviderswithintheCivilService.

Thereareover7,000staffemployedbyRevenue,includingnearly1,900customerservicestaff,andtheorganisationoperatesfromanetworkofabout170officescountrywide.Thereare16DivisionswithinRevenue,madeupasfollows:

theRegionalDivisions(4)–includingtheBorderMidlandsWestDivision,theDublinDivision,theEastandSouthEastDivision,andtheSouthWestDivision;

theLargeCasesDivision;

theInvestigationsandProsecutionsDivision;

theRevenueLegislationServiceDivisions(4)–includingtheCustomsDivision,theDirectTaxesPolicyandLegislationDivision,theDirectTaxesInterpretationandInternationalDivision,andtheIndirectTaxesDivision;

1 AnnualReportfortheRevenueCommissioners2005.

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theNationalOfficeDivisions(2)–includingtheStrategicPlanningDivisionandtheOperationsPolicyandEvaluationDivision;

theHumanResourcesDivision;

theRevenueSolicitor’sOffice;

theInformation,Communicationsande-BusinessDivision;

theCollectorGeneral’sDivision.

In2005,Revenue’scustomerbasecomprisednearly2.4millionPAYEindividuals(up6%on2004),over500,000self-assessedindividuals(up10%on2004)andover130,000companies(up3%on2004).

ThestructureofRevenueisdesignedarounditscustomerbase.Inparticular,thefourRegionalDivisionsareresponsibleforcustomerswithintheirgeographicalarea,whiletheLargeCasesDivisiondealswithlargecorporatesandhighwealthindividuals.

2. QCS in the office of the Revenue CommissionersThefocusonqualitycustomerservicewithinRevenuepre-datesthelaunchoftheQCSInitiativein1997.Infact,theorganisation’sfirstCustomerCharterwaspublishedin19�9,followingintroductionoftheself-assessmentsystemforincometax(in19��).Thismajorchangeintaxpracticerequiredamajornewemphasisonencouragingcustomerstobevoluntarilytaxcompliant,coupledwithapresumptionthattheyare.SincethenRevenuehashadtostrivetomakeitaseasyaspossibleforpeopletocalculateandpaytheirtaxes.Thishasthereforerequiredamuchstrongerfocusoncustomerservice,reflectedinachangeintheterminologyRevenueusestodescribeitsclients,from“taxpayers”to“customers”.

The19�9Charteroutlinedcustomers’entitlementswithregardto:courtesyandconsideration;presumptionofhonesty;information;impartiality;privacyandconfidentiality;independentreview;minimisationofcompliancecosts;andconsistentadministration.Thishasbeenfollowedbytheupdated2004Charter(seeSection3below)andbytheCustomerActionPlan2001-04.2

However,QCSinRevenuehasalsoledtotheintroductionofsomestrategicnewcustomerservicechannels,whichhavegainedinternationalrecognitionforleadingedgeinnovationfromorganisationssuchastheEuropeanCommissionandOECD.Theseinclude:

thePAYE1�90telephoneservice,whichusesstate-of-the-artVoiceoverInternetProtocoltechnology(VoIP)thatprovidesautomatedtelephony.Revenuereceivednearly5.3milliontelephonecallsduring2005,up22%on2004-anaverageofabout21,000callseveryworkingday;

theRevenueOnlineService(ROS),whichdeliversround-the-clockself-servicetoallmaincustomergroups.In2006,ROSaccountedfor2.1millionfiledreturns,70%ofincometaxforms,93%ofnewvehicleregistrations,42%ofemployers’payrolltaxespaidand2�%ofVATpaid.About€16.6billion,and34%ofalltaxes,werepaidthroughROSin2006;

initiativesinSMStexting,wherePAYEcustomerscanusetheirmobilephonetotextself-serviceforcertaintaxcredits,requestingformsandleaflets,trackingcorrespondence,andchangingaddress.

2 RevenueCommissioners,CustomerServiceActionPlan2001-2004

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3. Revenue Customer CharterAsoutlinedinSection2above,theRevenueCustomerCharterwasfirstdevelopedin19�9andwassubsequentlyupdatedin2004.ThesecondCharter(2004)reiteratesingeneraltermsthefourmostimportantentitlementsfromthefirstCharter,whichare:

courtesyandconsideration;

presumptionofhonesty;

information;

minimisationofcompliancecosts.

Furthermore,italsosetsoutentitlementsregarding(a)consistency,equityandconfidentialityand(b)complaints,reviewandappeal.

TheRevenueCustomerCharterthereforeadoptsasomewhatdifferentstyleandformattothatfoundintheChartersformostGovernmentDepartmentsandOffices.Italsoadoptsastrongtwo-wayfocus,notonlyunderliningwhatcustomerscanexpectfromRevenuebutalsowhatRevenueexpectsfromcustomers.

TheCharterdoesnotcontainanyquantifiedtargetsforservicestandards.Theseareoutlinedseparatelyinanassociateddocument,entitled“CustomerServiceStandards”.ThislatterisinfactsimilarinstyletotheChartersofotherGovernmentDepartmentsandOffices,anditgivesquantifiedcommitmentsforthelevelofservicedeliverythatcustomerscanexpectfor:

telephoneservice;

registrations;

returns,declarationsandapplications;

repayments/offsets;

writtencorrespondence;

taxclearance;

appeals/complaints.

Furthermore,proceduresrelatingtocustomerservicecomplaints,internalreviewandappealsareoutlinedinmoredetailinanotherassociateddocument(LeafletCS4).

Eachofthesedocumentsisavailableinpublishedformasaneasy-to-readleaflet,andtheyarealsoallavailableontheRevenuewebsite(www.revenue.ie).Inaddition,theCharterispostedinallofRevenue’spublicoffices.

4. ImplementationGiventhatRevenuehashadCustomerCharterprinciplesdevelopedandestablishednowfornearly20years,theorganisationfeelsthatitsCharteriswellembeddedinitsoverallcustomerservicestrategiesandbusinessplans.Furthermore,thereareanumberofactionstakenwithinRevenuetoensurethat

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bothitsCharterprinciplesanditscustomerserviceethosgenerallyare“livingandbreathing”withintheorganisation.Forexample:

RevenuehasadedicatedCustomerServicePolicyUnitestablished,whichisresponsiblefordevelopingandimprovingtheoverallcustomerservicefunction;

allstaffworkingincustomerservicepartsofRevenueareformallytrainedincustomerserviceandintheCharter,andwhattheChartercommitmentsmeaninpracticeformsanintegralpartofthistraining;

Revenueactivelyconsultswithitscustomersandrepresentativegroupsonanongoingbasisaboutthedesign,developmentanddeliveryofitsservices.

Revenue’sconsultationwithcustomerstakesonanumberofforms.Customercommentcardsaremadeavailableinallpublicoffices,andcustomerscanalsoexpressviewsoncustomerservicethroughtheRevenuewebsite.Inaddition,theorganisationhasregularmeetingswithaseriesofformalcustomerrepresentativegroupssuchas:

theTaxAdministrationLiaisonCommittee(TALC),whichisaforumfortaxpractitionerssuchastheInstituteofTaxationinIrelandortheLawSocietyofIreland;

theRevenue/IrishCongressofTradeUnionsLiaisonCommittee,whichallowsfortradeunionfeedbackintothedevelopmentofcustomerservices;

theCustomsConsultativeCommittee(CCC),aforumfortradeorganisationsusingcustomsservices,suchastheIrishExportersAssociation,theIrishRoadHaulageAssociationortheIrishShipAgentsAssociation;

theSmallBusinessUsersPanel,whichisaforumfororganisationssuchastheDepartmentofSocialandFamilyAffairs,theIrishSmallandMediumEnterprisesAssociation(ISME),theSmallFirmsAssociation(SFA)andtheChambersofCommerceofIreland.

RevenuealsomonitorsprogressinmeetingcustomerservicestandardsinitsAnnualReports,andithasbeenperiodicallycarryingoutcustomersurveyssincethemid-1990s.Recentsurveysinclude:a2004customersatisfactionsurveyforPAYE1�90telephonecustomers3;a2006customerfocusreviewofPAYEself-servicefacilitiesprovidedviaROS,phoneandSMStext;anda2006customersatisfactionsurveyofsmallandmediumsizedbusinesscustomers.

5. ImpactTheimpactoftheCustomerCharterwithinRevenueisobviouslytiedverycloselytotheimpactofallcustomerserviceinitiativeswithintheorganisationgenerally.Havingsaidthis,thereisevidencetosuggestthattherehavebeennoticeablerecentimprovementsinRevenue’scustomerservice(seeTable1).Forexample:

anaverageof65%ofPAYE1�90callswerebeingansweredpromptlyin2006,whichmarksaverysignificantimprovementonthe47%ofcallsansweredin2005;

3 Thefindingsofthissurvey,whichwascarriedoutonapilotbasisinthreeofficesinOctober2004,havedirectlyledtopioneeringworkbeingcarriedoutonthePAYE1�90telephonysystemsandonprovidingself-serviceforthiscustomersectorin2005and2006.Asaconsequence,forexample,thishasdeliveredveryhighlevelsofcallanswering,reaching95%ormoreevenatverybusytimesoftheyear.

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�6%ofVATregistrationswereprocessedwithin10workingdaysin2005,comparedto69%in2004,while�7%ofotherregistrationswereprocessedwithin5workingdays,comparedto6�%in2004;

76%ofnon-ROSpaymentswereprocessedwithin10workingdaysin2005,comparedto6�%in2004,with��%ofpaymentsprocessedwithin20workingdays,comparedto�3%in2004;

100%ofallcomplaintsreceivedwerehandledimpartiallywithin20workingdaysduringboth2005and2004.

Despitetheseimprovements,however,Revenuecontinuestosetitselflaudablegoalstoachieveveryhighlevelsofcustomerservice.Forexample,Revenue’stargetistoprocess100%ofVATregistrationswithin10workingdaysand100%ofallotherregistrationswithinfiveworkingdays,whilethetargetfornon-ROSrepaymentsistoprocess100%within20workingdays.Currentstandards,whilemuchimproved,currentlyfallshortofthesetargets.

Furthermore,RevenuestillexperiencesproblemsindealingwiththevolumeofbusinessitdealswithduringthepeakperiodsofJanuary-MarchandOctober.ThisisexplicitlyacknowledgedbyRevenueinitsCustomerServiceStandardsleaflet,anditmayalsohavecontributedtotherelativedropinservicelevelsforwrittencorrespondencebetween2004and2005(seeTable1).

6. ConclusionsTheRevenueexperienceofcustomerserviceprovidesaninterestingcasestudybecauseoftheorganisation’sextensivedirectinteractionwithconventional“customers”andalsobecauseofitssizeandthescaleofitsactivities.Furthermore,ithasbeenapioneerforqualitycustomerserviceinanIrishCivilServicecontext,goingbacktothepublicationofitsoriginalCustomerCharterin19�9.Still,itcontinuestoplaceastrongemphasisoncustomerservice,anditrecognisesthatitsservicetocustomerscanalsocontinuetobeimprovedandthatmaintainingexistingstandardsisalsoanongoingprocess.LessonstoemergefromtheexperienceofRevenueinclude:

theimportanceofrecognisingthatqualitycustomerservicewillcontinuetoevolve,especiallyinanenvironmentwhereboththevolumeofcustomersandthecomplexityofcustomerscanchange.ThishasbeenespeciallythecaseforRevenue,whichhasseenanexplosioninitscustomerbaseasaresultofnationaleconomicprosperity.Despitebeingrightlylaudedforitssuccessesindeliveringqualitycustomerservice,forexample,RevenuestillfacesdifficultieswiththevolumeofactivitytobedealtwithinthemonthsofJanuary-MarchandOctober.However,thetargetswhichRevenuesetsforitselfsuggeststhattheorganisationremainscommittedtomeetingthechallengesoffurtherimprovedcustomerservice;

theimportanceoftwo-waycommunicationbetweenanorganisationanditscustomers.Thetwo-waynatureoftheRevenueCustomerCharter,forexample,hasalreadybeenhighlighted,inparticularthefocusonhowthecustomercanassistRevenuetodoitsjobwell.ThisisespeciallyimportantforRevenue,giventheimportanceofself-assessmentwithintheIrishtaxsystem,anditwillbesimilarlyimportanttootherDepartmentsandOfficesthatincorporatemoreself-serviceelementsintotheirdealingswithcustomers;

relatedtotheabove,theimportanceofformalcustomerrepresentativestructuresasavehicleforpracticalfeedbackanditerativeimprovementsinservices(Revenueacknowledgesthatinthisrespectitisstrongeronbusiness/professionalthanonindividualcustomerfeedbackfora);

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finally,theimportanceofICTasatoolforimprovedcustomerserviceisverywelldemonstratedbyRevenue.Inparticular,itsdevelopmentofROS,VoIPandSMStextinghasgainedinternationalrecognitionandacknowledgementwhileatthesametimebeingactivelyembracedbythousandsofIrishtaxpayers.

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Table 1: Revenue Customer Service Standards And Results Service Standard 2005 Result 2004 Result

Complaints Processed impartially within 20 working days

■ 100% 100%

Telephone PAYE calls answered*

Other calls answered within 30 seconds

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65%

79%

47%

75%

Registrations VAT 100% within 10 work-ing days

Other 100% within 5 work-ing days

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86%

87%

69%

68%

Returns, Declarations, Applications

ROS 100% within 5 work-ing days

Non-ROS 80% processed within 10 working days

Non-ROS 100% processed within 20 working days

AEP Immediate Response

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91%

IT 36%, CT 32%, Other 91%

IT 54%, CT 67%, Other 97%

Immediate Response

97%

IT 29%, CT 20%, Other 96%

IT 56%, CT 56%, Other 97%

Immediate Response

Repayments –non-ROS

80% processed within 10 working days


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88%

68%

83%

Repayments –ROS 100% within 5 working days

■ IT 79%, CT 68% n/a

Correspondence 80% processed within 20 working days

■ 82% 96%

Applications for Tax Clearance Certificates


■ 86% 81%

* Figures refer to 2006 and 2005 respectively.

Source:RevenueAnnualReport


14�

1. Background and Context

AsdescribedinitsCustomerCharterandelsewhere,theroleofthePublicAppointmentsService(PAS)istobe“thecentralisedproviderofrecruitment,assessmentandselectionservicesfortheCivilService”.TheServicealsoprovidesrecruitment,consultancyandhumanresourceadvisoryservicestoLocalAuthorities,theHSE,AnGardaSiochánaandotherpublicbodieswhenrequested.TheServiceisthereforeanexampleofabodywhichprovidesspecialistservicesinternallywithintheCivilandwiderPublicServicegenerally.

TheServicehasatotalof149staff.ThesearebasedinUpperAbbeyStreetinDublin.TheofficeisduetopartiallyrelocatetoYoughalin2009undertheDecentralisationProgramme.Anumberofassessmentservices(e.g.exams,interviews)arealreadyprovidedinotherlocationsasrequired.

ThespecificservicesprovidedbythePublicAppointmentsServicethereforeinclude:

RecruitingforpositionsintheCivilService;

RecruitingforsomeseniorpositionsintheLocalAuthorities,HealthBoards,HarbourAuthorities,FisheriesBoardsandVECs;

SelectingcandidatesforpromotionwithintheCivilServicethroughinterdepartmentalselectiontestsandinterviews;

Assistingotherpublicsectororganisationswithopenrecruitment;

AssistingtheTopLevelAppointmentsCommitteetomakeseniorappointmentswithintheCivilServicebyforexampleconductingpreliminaryinterviews;

Providingrecruitmentconsultancyandtrainingtoclientorganisationsandpublicbodies.

During2006,PAShandled�0,000applications,fromwhichitassigned/recommended5,103.

ThePublicAppointmentsServiceoperatesunderlicencefromtheCommissionforPublicServiceAppointments(CPSA)whoseroleistoregulatestandardsofrecruitmentinthePublicServicebodieswithinitsremit.TheCPSAhasestablishedcodesofpracticeandadvicebywhichrecruitmentselectionproceduresforpublicbodiesareregulated.ThisincludesrecruitmentviathePAS,byorganisationsthemselvesandbyexternalrecruitmentagenciesusedbypublicsectorbodies.

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2. QCS in the Public Appointments ServicePAShaspublishedthreeCustomerActionPlanstodate,coveringtheperiods1997-2000,2000-03,and2004-07.1ItsfourthActionPlaniscurrently(2007)underpreparation.

Theyear2000wasawatershedforoverallQCSpolicyinthethenCivilServiceCommission,withcommencementofamajordrivetowardsimprovingrelationswithitsclientorganisations,employmentcandidatesandtheotherstakeholders.Partofthiswasadecisiontopublishasetofcommitmentsintheareaofservicestandards.Factorsunderlyingthispolicyshiftincludedchangesinkeymanagementpersonnel,theoverallQCSpolicy,andthegeneralpressurefromclientsforamoreflexibleandefficientservice.

Thisnewcustomer-focusedethoswaspartofawiderchangeprocessinthePAS,includingchangesinitsinternalorganisationandmethodsofoperation.Theseincludedamovetowardsamore“accountmanager”basiswitheachindividualclientorganisation(incontrasttothetraditionalpracticeofbeingstructuredaroundtypesoffunctions),increasedemphasisonitswebsite(www.publicjobs.ie),andestablishmentofaCorporateAffairsUnitwithaparticularfocusoncustomerservice.ThischangeofcoursepredatedtheCustomerCharterInitiative.

3. PAS Customer Charter ThePASCustomerCharterwasfirstdevelopedin2003,andwasupdatedin2004inthecontextofitsnewCustomerActionPlan2004-07.ThepublishedCustomerCharterisarelativelysimpleandstraightforwardone.Itsetsout:

Ourmission;

Whatwedo;

Ourcommitmenttoyou;

Whendealingwithus,youcanexpect;

Whenprovidinginformation,wewill;

Customerfeedback.

AfeatureoftheCharterisitsclearspecificationofboththeservicesofferedandtowhomtheyareprovided.Externalcustomersareclearlyseenastheclientorganisations,applicants,andthegeneralpublic(whomaybeinterestedinbecomingapplicants).

TheCharterispublishedbothasastand-alonedocumentandisalsoaspartoftheCustomerActionPlan.Itispublishedasaleaflet,andishighlightedprominentlyintheoffices(includingonrollingscreensinreception),andisonthewebsitehomepage.

Itissalutarytonotethat,despitethisrelativelyhighlevelofvisibility,awarenessoftheCharterisstilllow.Ofapplicantswhorespondedtothe“OnlineCandidateSurvey”inFebruary2007,67%saidtheywereunawareoftheCharter,and14%hadalreadyreadit.

1 QualityCustomerServiceActionPlan2004-2007

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TheChartercontainsasmallnumberofquantitativetargetsi.e.writtenrepliestocorrespondencewithinthreeworkingdaysandafullreplytoenquirieswithintendays.Thetelephone-answeringobjectiveisreferredtoas“promptly”.However,muchmoredetailedservicetargetsaresetoutinitsCustomerActionPlan,andarerepeatedintheStrategyStatement.

4. Implementation AfeatureoftheCharter,ActionPlanandassociatedactivityinthePASisthattheyareseenasanareaforongoingfocusandattention.Aspectsofthisarethat,externally,theCharterisproactivelymadeavailableandthatattentionofcustomersisdrawntoitsexistence.Thisincludesitspositiononthewebsite,inreceptionasaleafletandinvideoformat.Thereisalsoastronginternalfocusonitsuchasbeingincludedaspartofawarenessdays,intraining,andininternalnewsletters.

Linkedtothisarequarterlyinternalreportsonperformance(againsttargets),reportstotheMAC,andregularidentificationofactionsneedingfollowup.ThisactivityisallledbytheCorporateAffairsUnit.Closelyassociatedwiththisisongoingevaluationwhichprovidesthebasisforinternalfeedback.

Todatethisevaluationincludes:

anonlinedynamicsurvey.ThefirstofsuchwascarriedoutinJune2006with3,500customersandthesecondsurveywaslaunchedinJanuary2007;

interviewboardmembersurveyscarriedoutinJuly2005andSeptember2006;

aclientorganisationsurveyinDecember2006.

PerformanceagainstquantitativetargetsisalsomonitoredthroughadministrativemeansandreportedoninternallyandintheAnnualReport.2ThisisofcoursewiderthanthetargetsreferredtodirectlyinthepublishedCharter.

5. Impact of QCSThePublicAppointmentsServicefeelsthatitsservicestocustomershaveimprovedgreatlysince2000.Thisimprovementisevidencedby:

avarietyofawardsandcertificationsfromorganisationssuchasFÁS,andtheNDA;

thefactthatclientssuchastheHSEandsomelocalauthoritieshavebeenavailingofanincreasinglevelofnon-traditionalservices;

asignificantincreaseindemandforservicesfromoutsidetheService’straditionalclientbase;

arelativelysmallnumberofcustomercomplaints;

thelevelofinterestexpressedbyprofessionalandtechnicalmembersofthepublicwishingtositonitsinterviewboards;

possiblefeedbackfromsurveysofclientorganisations,candidates,interviewboardsandstaff.

Onthelatter,intheDecember2006surveyofclients��%“stronglyagreed/agreed”(65%stronglyso)thatthePAShasbecomemorecustomer-focusedinrecentyears,and73%feltthatserviceshaveimproved.

2 PublicAppointmentsService,AnnualReport2005.

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ThespecificimpactoftheCustomerCharteronthePASisdifficulttodistinguish,giventhattheCharterInitiativefollowedratherthanpredatedtheorganisation’spolicyshiftin2000.Itwillthereforehaveprovidedaboostandstimulusratherthanbeingtheprimarymotivator.

Inrelationtooveralllevelsofcustomersatisfaction,theServicehastargets(initsCustomerActionPlan)forsatisfactionlevelsamongitsthreemainexternalcustomergroups.These,andselectedachievementlevels,areshownintheTablebelow.

Ascanbeseen,actualresultsaregenerallyclosetotarget,althoughnotuniversallyso.

PAS External Customer Satisfaction Targets And Achievements Customer Group Service Target Level AchievedClientOrganisations Satisfaction with process/

timescale/quality to exceed 80%“Satisfied/very satisfied” with:43% timescales of campaigns

87% quality of staff assigned/recommended

90% understanding of needsJobApplicants Satisfaction with quality of process to

exceed 80%% who found:74% staff efficient/very efficient

61% replies to queries clear

75% on-line application procedure good/excellentInterviewBoardMembers

Satisfaction with information/facilities of 90%

% who reported:89% information provided of benefit

83% Interview suites “good/excellent”


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6. ConclusionsAswithallGovernmentDepartmentsandOffices,theroleofthePublicAppointmentsServiceisadistinctoneanditprovidesaparticularspecialistservicetootherorganisationswithinthePublicService.However,inprovidingsuchspecialistservicestootherpartsofthePublicServiceitisbynomeansuniqueasthisisalsothecasewithotherCivilServicespecialistOffices.

Manyaspectsofitscustomer-serviceorientedactivitiesarealsodirectlyrelevante.g.itsinnovativeon-linesurveyingtechniqueintroducedin2006,itscleardefinitionofstakeholdersandcustomersandofitsservicestothese,anditsstepstocelebratesuccessinternallyandtokeepthecustomerservicecharterandtheQCSgenerallyfreshandinteresting.

Howeverthemostimportantoveralllessonsaremorestrategicones.Theseare:

QCScannotbedivorcedfromwiderreformwithinorganisations,inthiscasethewiderfocusonthenatureandimportanceofqualitycustomerserviceandchangesininternalproceduresandpracticestodealwiththis;

therealisationthattheCustomerCharterandwiderQCSInitiativeneedongoingproactiveleadershipandmanagementinanorganisationandcannotbesimplyintroducedandthenassumedtobepermanentlyembedded;

theassociatedfocusoncontinuousimprovement,onrealisationthatthejobisneverdoneandonfollowthroughintermsofongoingmonitoringandfeedback.

AlsoevidentfromthePASisthefactthatthesedimensionsofQCSareinterrelated,andtogethercanconstituteavirtuouscyclee.g.monitoringprovidesabasisforfeedbackandfeedbackprovidesabasisforbothstaffmotivationandcontinuousimprovement.

1.

2.

3.


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1. Introduction and BackgroundTheStateExaminationsCommission(SEC)isarelativelynewOfficeundertheaegisoftheDepartmentofEducation.ItwasestablishedasastatutoryboardinMarch2003.ItisheadquarteredinAthloneandisanon-departmentalpublicbodystaffedbycivilservants.

TheSEChasresponsibilityforadministrationofthesecondlevelStateExaminationsi.e.LeavingCertificate,LeavingCertificateAppliedandJuniorCertificatewhichwerepreviouslytheresponsibilityoftheDepartmentofEducationandScience.Ithas1�5staffandanannualbudgetof€5�million.Thirtyofthesestaffarebasedincentresaroundthecountry.

ThespecificfunctionsoftheSECare:

organisingtheholdingofexaminations;

preparingexaminationpapersandotherexaminationmaterial;

determiningproceduresfortheconductandsupervisionofexaminations;

arrangingforthemarkingofworkpresentedforexamination;

issuingtheresultsofexaminations;

determiningprocedurestoenablethereviewandappealofresultsofexaminationsattherequestofcandidates;

chargingandcollectingfeesforexaminations;

designatingplaceswhereexaminationsmaybeheld.

TheSECidentifiesitsprimarycustomersasthe120,000candidateswhosittheJuniorandLeavingCertificateeachyearandthe750secondlevelschoolswhichtheyattend.ParentsandteachersalsousetheSECservices.Itisanexampleofadecentralisedbodywithalargeandwidelydispersedgroupofcustomerswhichusesitswebsitetocommunicatewithitscustomerbase.Itscandidatebaseisalsoveryvariedandchangeseachyear.

2. QCS, Customer Service Action Plan and Customer Charter

TheSEChasastrongethosofcustomerserviceandtheindividualexaminationcandidateisseenasthemostimportantpersonamongitsstakeholders.FromtheoutsetoftheSECtheInternetwasidentifiedasthemostappropriatemediumforcommunicationwithitsyoungcustomerbaseanditswebsite

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wentliveinFebruary2004asacustomerserviceinitiative.Itreplacedthepre-existingwebsitewhichprovidedanexaminationresultsserviceonly.ThereisadirectlinktotheCustomerCharterontheWebsite.

ThewebsiteoftheSECprovidesexaminationinformationandservicestothecandidatesandalsotoparents,teachersandschools.ThewebsitehasbeenexpandedandenhancedtoprovideanExaminationMaterialArchive(pastpapers),acustomercommentcardandastatisticssection.Thewebsitehaswontwonationalawards–BestEducationAwardintheIrisheGovernmentAwardsandameritawardintheGovernmenttoCitizenCategoryoftheInnovationThroughTechnologyAwards.

TheSECdoesnothavealo-callnumberforcustomers.Provisionofthisservicewasconsideredbutrejectedongroundsofcost.

TheSEChasproduceditsfirstStatementofStrategyfor2005-2007.IntheStrategytherearefourHighLevelGoalsoneofwhichis-“todemonstrateresponsivenessandaccountabilitywithhigheststandardsofcustomerservicetoallourstakeholders”.Thestrategiestosupportthisinclude“PromoteastrongcustomerserviceculturethroughouttheorganisationanddevelopaCustomerCharterinaccordancewiththeQualityCustomerServiceInitiative”.TheStatementofStrategyalsoseekstomaintainpublicconfidenceinthequalityandintegrityoftheexaminationssystemandtodevelopaculturewhichencouragescustomerfeedbacksothatitcantailorservicestomeettheneedsofcustomers.

AQualityServiceActionPlan2007–2010hasbeendraftedandwillbepublishedonthewebsitein2007.

AsabasisforpreparingtheCustomerCharter,theSECengagedincustomerconsultation.Thistooktheformofalocalfocusgroup,acustomersatisfactionstudyandastaffsurvey.Thecustomersurveywaspostedto1,500customersand55%responded.Resultswerepublishedinthe2004AnnualReport1andshowedalevelofsatisfactioninexcessof�0%acrossarangeofmeasures.ThissurveywasintendedasabenchmarkandwillberepeatedbeforepreparationofthenextCharter.

ThepublishedCharterisasuccinctdocumentsettingoutthestandardsofserviceitwillprovidetocustomersinstandardareas-telephone,correspondence,information,Irishlanguage,equalityanddiversity,privacy,complaints,helpustohelpyou,monitoringperformanceandcontactdetails.Itincludestargetsofanswering90%oftelephonecallsin90secondsandanswering90%ofcorrespondencewithin15workingdays.TheChartercloselyfollowstheGuidelinesandthecontentiscommonwithnouniquefeatures.

3. ImplementationTheCustomerCharterwaspublishedin2005withaninternallaunchforstaffandpostersaredisplayedatstrategicpointsintheoffices.CopiesoftheChartersandpostersweresenttoallsecondlevelschoolsandotherexaminationprovidersinSeptember2005andagaininFebruary2006.Itwasre-issuedtotheseagaininSeptember2006asanaccompanimenttothe2005AnnualReport.

TheCharterisincorporatedintoinductiontrainingfornewstaffandtrainingincustomerserviceisplannedforexistingstaff.TheCharterisontheSECwebsitewithadirectlinkfromthehomepage.Inaddition,theCharterisprominentlydisplayedinposterformatwhentheSECattendsexhibitionse.g.FASOpportunities2007Fair.

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TheSECisthusactivelyseekingtopromoteitsCustomerCharterandtoraiseawarenessoftheCharteramongbothcustomersandstaff.

4. ImpactProgresstowardsmeetingthetargetsintheCharterismonitoredandresultsarepublishedintheSECAnnualReport.The2005AnnualReportshowsthatthetargetofanswering90%ofcorrespondencewithin15workingdayshasbeenachievedbut,onlytwothirdsoftelephonecallswereansweredwithin30seconds.

WhilenotreferredtointheCustomerCharter,anumberofotherinitiativeshavebeentakentomonitorcustomerservice:

atelephonesurveyofschoolprincipalscommencedinNovember2006.Resultsfromthissurveyarenotyetavailable;

thenumberof“hits”onthewebsiteisnowmonitoredbytheserviceproviderandthissystemalsomonitorsthenumberofspecific“hits”ontheCharter.ThisshowsthatinthesixmonthperiodSeptember2006toJanuary2007(theonlyperiodforwhichcomparablefiguresareavailable)therewere�,271,3��hitsontheSECwebsiteand5,737ofthesealsohittheCustomerCharter.Thusonly0.07%ofhitsonthewebsitealsohittheCustomerCharter.MonitoringofhitsontheCharterisapracticethatcouldbeadoptedbyotherorganisationsasalowcostmeansofmonitoringpublicawarenessofCharters;

theSECwebsitehasaCustomerFeedbackpagewhichinvitesuserstogivetheirviewsontheserviceprovidedbytheSEC.Thetablebelowshowsanoverallpositivecustomerfeedbackwithapproximately90%positiveresponses.

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SEC Customer Feedback on Website 2005-2007 2005 Part Year 2006 Full Year 2007 Jan /Feb

Number of Comments Submitted

96

484

87

Agree/Strongly

Agree

Disagree/Strongly Disagree

Agree/Strongly

Agree


Agree/Strongly

Agree


When I contacted the SEC, information was easily available

65

10

382

26

76

4

On the Website it was easy to find relevant information

61

17

386

37

76

7

Source:DataprovidedbySEC


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5. ConclusionsTheSECshowshowabodycanprovideaqualityservicetoawidelydispersedcustomerbasefromaregionallocationbyusingtheInternet,postandtelephones.TheserviceprovidedbytheSECisparticularlysuitedtoaregionallocationasitdoesnotinvolveahighlevelofvisitsbycustomerstotheSECpremises.TheonlycandidateswhoneedtovisittheofficeoftheSECarethesmallminority(lessthan100perannum)whoaredissatisfiedwiththeoutcomeoftheirappealsandhaverecoursetoIndependentAppealsScrutineers.

TheexperienceoftheSECthusshowsawelldesignedandmaintainedwebsitecanmakeasignificantcontribution(over�millionhitsinsixmonths)toqualitycustomerserviceandenableanorganisationtoprovideahighqualityofcustomerservice.ProvisionofadirectlinktotheCharterontheSECwebsiteandthemonitoringof“hits”onthewebsiteandontheCharterarelessonsthatcouldbefollowedbyotherorganisations.

TheSEChasastrongcommitmenttocustomerservice.ItisactivelypromotingitsCharterandtheCharterplaysapartinensuringthattheSECprovidesaqualityservicebyhelpingtoraiseawarenessofQCSamongstaff.

TheSEChasnotyetpublisheditsCustomerServiceActionPlanandinfutureitwouldbedesirablethattheCustomerCharterandtheCustomerServiceActionPlanshouldbepublishedataboutthesametime.


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Annex 4: Number of Valid Complaints Received by The Office of The Ombudsman 1999-2005

2005 2004 2003 2001 2000 1999 Change 2003-05

Change 1999-05

Civil Service 962 893 1,014 1,056 989 1,375 -52 -413

Social and Family Affairs 287 298 377 477 454 665 -90 -378

Agriculture and Food 241 210 208 202 224 284 +33 -43

Revenue Commissioners 124 90 114 102 88 132 +10 -8

Education and Science 99 116 75 112 84 123 +24 -24

Justice, Equality and Law Reform

73 45 40 19 15 16 +33 +57


19 34 46 35 24 29 -27 -10


19 14 13 22 12 22 +6 -3

Health and Children 14 16 33 14 16 34 -19 -20

Enterprise, Trade and Employment

8 9 6 8 5 5 +2 +3

Other 78 61 102 65 67 65 -24 +13

Note: 2002 not available

Source: Office Of The Ombudsman Annual Reports


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Annex 5: Customer Action Plans – Dates and Titles

Departments: Dates TitleAgriculture and Food 2005-2007 Customer Service Action Plan

Arts, Sport and Tourism October 2003 Customer Action Plan

Communications, Marine and Natural Resources 2004-2006 Customer Service Action Plan

Community, Rural and Gaeltacht Affairs 2004-2007 Customer Service Action Plan, Strategy for Enhanced Customer Service

Defence 2004-2007 Customer Service Plan

Education and Science 2004-2007 Customer Service Action Plan

Enterprise, Trade and Employment 2005-2007 Customer Service Action Plan

Environment, Heritage and Local Government 2006-2008 Customer Service Action Plan

Finance 2004-2007 Customer Service Action Plan

Foreign Affairs 2006-2008 Customer Service Action Plan

Health and Children 2005-2007 Quality Customer Service Action Plan

Justice, Equality and Law Reform 2001-2004 Customer Action Plan

Social and Family Affairs 2004-2007 Customer Action Plan

Taoiseach 2005-2008 Customer Action Plan

Transport 2005-2007 Customer Service Action Plan

Offices:Central Statistics Office 2004-2006 CSO Customer Service Action Plan

Courts Service 2003 Courts Service Customer Service Action Plan

Property Registration Authority None No separate Customer Service Action Plan

Attorney General 2005-2007 AGO Client Service Guide

Chief State Solicitor’s Office 2005-2007 CSSO Customer Service Action Plan

Houses of Oireachtas 2004-2006 Customer Service Action Plan

Director of Public Prosecutions 2004-2006 Quality Service Action Plan

Office of Public Works 2004-2007 Customer Service Action Plan

Revenue Commissioners 2001-2004 Customer Service Action Plan

Ordnance Survey 2002-2005 Customer Action Plan

Public Appointments Service 2004-2007 Quality Customer Service Action Plan

State Laboratory 2001-2004 Customer Service Action Plan

State Examinations Service To be published on Website in 2007

Quality Customer Service Action Plan 2007-2010

Valuation Office 2001 Action Plan on Quality Customer Service

Office of Refugee Applications Commissioner 2005-2008 Customer Service Action PlanSource:FitzpatrickAssociatesAnalysisofWebsites/CustomerCharters


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Annex 6: Selected Public Sector Organisations – Customers and Employees

Organisation Number and type of Customer*

Source Number of Em-ployees

Source

State Examinations Commission

120k Candidates per annum. 750 Schools

SEC Case Study 185 SEC

Revenue Commis-sioners

2.38 m PAYE Taxpayers, 503k Self Assessment, 131k Companies, 254k VAT

Revenue Annual Report 2005

6,452 Exchequer Pay and Pensions Bill 2001-06

An Garda Siochána 102k headline offences, 12k Drink Driving Arrests

CSO Crime and Justice Statistics 2005


Dept of Agriculture and Food

136k farms CSO Farm Structures survey 2002


Dept of Social and Fam-ily Affairs

2.73m insured persons, 977k weekly recipients, 1,469k weekly beneficiaries

Statistical Report on Social Welfare Services 2005


FÁS 75k training throughput in 2005

FÁS Annual Report 2005

2,241 FÁS

Prisons 3,199 persons in custody, daily average 2004

Irish Prison Service 3,598 Exchequer Pay and Pensions Bill 2001-06

PRAI (Land Registry) 223k legal registrations Land Registry Annual Report 2005

650 Exchequer Pay and Pensions Bill 2001-06

Dept of Foreign Affairs 630k new passports issued 2006

DFA Annual Report 2006


* Note, the figures for number of customers clearly do not reflect all the customers or all the work done by organisations.

Evaluation of Customer Charters

Documents

Transcript of Evaluation of Customer Charters