CG 3: Improve Access to Government Through a Single State Information NumberEstablish the AccessTexas Information Center to improve information and services available to citizens through a single state information number.
Background
When citizens use the telephone to call state government, they should get prompt answers to their questions, be treated courteously, and obtain accurate information. Unfortunately, contacting state government is often frustrating as callers are transferred from one agency to another to get the answers they need.The Comptroller's office conducted several surveys on problems that citizens experience with state government. Texans expressed frustration with endless transfers shifting them from one line or voice mailbox to another. One person wrote, "I was passed around to five different people and never got an answer to my question."[1]
State agencies also were surveyed about common customer service problems. They confirmed that callers often complain about how the phones are handled.
One reason for poor service is that state agencies have not coordinated their efforts to answer citizens' questions. Instead, agencies have developed separate approaches for helping customers on the phone.
The General Services Commission (GSC) provides a small amount of centralized telephone assistance. GSC manages the telecommunications system for all state agencies and operates a central directory assistance number in Austin, (512) 463-4630.[2] This service answers many questions from citizens who do not know which agency to call or who cannot find the right number in their local phone book.
In fiscal 1998, GSC paid five full-time operators more than $80,000 a year, including benefits, to perform this service.[3] These operators received about 720 calls per day, or 144 calls per operator.[4] About 25 percent of these calls originated from state government offices.[5]
Since GSC's information number is not toll-free outside the Austin area, many citizens call other state agencies with toll-free lines for general information. Many such calls end up in state agency "call centers" that handle high-volume calling on specific topics. These call centers attempt to answer or redirect calls, which can account for between 10 percent and 15 percent of their workload.[6] Often, different callers ask the same questions over and over.
A call center often answers questions or provides services for several thousand callers a day. At least 12 state agencies in Austin operate their own call centers with staffs ranging from about 15 to more than 190 employees. These centers collectively receive about 40,000 calls on average each day.[7]
These major call centers and other smaller ones operate independently of each other and of GSC's operators. This piecemeal approach results in calls being bounced from one agency to the next as callers seek answers to their questions.
Access to key phone numbers
Directory assistance for Texas state government is not easy to find. The telephone number of GSC's state directory assistance has appeared only in Austin's public telephone directory. Citizens who find their way to this number are usually forwarded by directory assistance operators of their local telephone company.[8]The Texas Legislature in 1997 acted to improve access to GSC's number. The Public Utility Commission of Texas (PUC) was instructed to adopt rules requiring telephone companies to publish the number for state information in Texas' 350 metropolitan phone books.[9] The PUC adopted these rules in January 1999.[10]
Other state government telephone numbers listed in the "blue pages" of public telephone directories have been arranged by agency rather than by service. Agency listings are not user-friendly for callers who know the service they want but not the agency that provides it.
The Legislature also took steps in 1997 to make agency services easier to find. The Legislature required that state government numbers be listed by service as well as alphabetically by agency.[11]
The state carried out this measure in partnership with the federal government, the City of Austin, and Travis County. Federal, state, and local governments in the Austin area published a combined blue-pages section in Austin's 1999 telephone directory that lists government phone numbers by service. The state and federal government expect to expand these listings to other major cities in Texas, although no specific schedule has been established.[12]
Many state agencies offer basic assistance through toll-free numbers, of which nearly 700 exist.[13] These numbers can be helpful, but not if they are unavailable through local telephone companies' information operators or are publicized only to the specialized clients of each agency. In 1997, the General Appropriations Act required that all state agency local and toll-free phone numbers, except for numbers being used for specialized purposes such as access to computers, be listed with local telephone exchanges.[14]
Listing a toll-free number is the responsibility of the individual agency.[15] TPR found state agency toll-free numbers established for the general public which are not listed with local telephone company information operators. Of more than 50 key toll-free numbers, more than 67 percent were not listed.[16] For example, the Texas Workforce Commission (TWC) listed none of its toll-free numbers, even though the agency has at least 30.
Lack of consistent, high-quality information
Citizens calling state government should receive consistent, knowledgeable responses with a minimum of transfers. Meeting this standard requires that telephone operators have a standard, in-depth database containing phone numbers for state services and responses to frequently asked questions.Because Texas state government does not have such a database, individual agencies have developed their own information resources to answer questions from the public.
This approach is costly because state agencies wind up duplicating efforts in creating electronic databases and paper libraries of general information. Duplicate databases can contain inconsistent information, and it is difficult to ensure that multiple databases are kept current. In addition, not all state agency databases are equal in quality, and not all are available on computer.
Using advanced technology
Current technology allows linking of call centers to share information and to manage call load among multiple call centers. Centers experiencing heavier than normal calling levels can route calls to other centers that are not as busy. Call centers that are electronically tied together also can share information and databases easily.None of Texas' state agency call centers are linked, although the potential exists for sharing resources across agency lines. Agency call centers experience peaks and valleys in workloads at different times. For example, TWC's call center has excess capacity on Thursdays and Fridays, when unemployment insurance activity goes down.[17] The Texas Parks and Wildlife Department's (TPWD) park reservation and information call center shows a reduced workload in the winter months.[18] The Texas Lottery Commission's operators are particularly busy when the jackpot is high.[19]
Linking centers is more difficult when they operate different equipment, as is the case with several major call centers in state government. Today's technology, however, provides ways to link call centers.[20]
TPR found several call centers in Texas and other states that provide models of excellence for customer service. Several centers feature innovations made possible by advances in computer and telecommunications technologies.
These models demonstrate seven key features of a state-of-the-art call center:
- use of a single toll-free number;
- 24-hour service;
- capacity to link separate centers electronically to share information and workload;
- a comprehensive database that anticipates frequently asked questions;
- capacity to function as a "one-stop shop" by faxing or mailing requested information to callers;
- development of partnerships between public and private entities; and
- reliance on computer technology, including the Internet and World Wide Web pages.
Indiana has operated a state information center since 1995. Callers to the toll-free number receive answers to basic questions, are forwarded to the correct agency, and can order various state publications. The center uses a state database and refers callers to information posted on Indiana's Internet web page. The center is co-located with other state information resources such as the job bank, consumer protection, and child support information. State officials say the center has benefited from sharing resources with these other organizations. In addition, the computerized database has made retrieval of information quicker and easier.[21]
The city of Dallas is on the cutting edge of call center technology. Dallas residents may call "311" for all non-emergency calls to city government 24 hours a day. The city developed this service by consolidating seven communications centers into one call center over a 12-month period starting in 1995. Additional consolidations of fire and police communications centers are expected.
Call takers use fully computerized databases to provide information and dispatch services. The databases include simple, standard responses to the 40 most frequently asked questions. The "City Help" database is shared with all city employees who have the necessary computer equipment and software.
This service provides the public with an easily remembered number for all city services. In addition, dispatching city services by computer through this central point allows the easy collection of information for analysis of service patterns. Although the city has not quantified savings, consolidation of communications centers has permitted reductions in the number of supervisors and better efficiency in managing calls.[22]
In Connecticut, a partnership between United Way of Connecticut and the State Department of Social Services provides easy access to state and local social services. United Way operates a special "211" number for persons who need help finding social services, and shares its computerized database of social services with the state agency to help ensure consistent and accurate information for clients and appropriate agencies.[23] The Atlanta metropolitan area has a similar system for access to social services.[24]
In Texas, the Health and Human Services Commission (HHSC) is developing toll-free one-number access to an information and referral network for human services. The Texas Information and Referral Network is the product of a voluntary public-private partnership begun in 1992 under HHSC's direction. The system integrates public and private health and human service information and referral services into a number of local entities.[25]
The network divides Texas into 25 regions with more than 100 information centers. Each region will have an area data center responsible for coordinating health and human service information from counties in the region. When one-number service is activated, a citizen dialing that number will be routed to a nearby data center to receive assistance.
The Texas Department of Health (TDH) and the Advisory Commission on State Emergency Communications have partnered to establish a poison-control network. This system electronically links poison-control call centers in San Antonio, Dallas, Houston, El Paso, Temple, and Amarillo. The network evens out workloads by transferring calls among the centers. Trained call takers have computer access to specialized medical and toxicology information and to Internet resources. Citizens reach the centers by calling listed toll-free numbers or by dialing 911.[26]
TWC has opened the first of seven call centers that will be located around the state and staffed with about 760 employees. These centers will take claims for unemployment insurance over the phone, thus eliminating the need for applicants to wait in lines at TWC offices. The agency plans to link the seven centers electronically.[27]
The call centers of several agencies provide more than just telephone information. The taxpayer assistance call center in the Comptroller's office has a computerized system for sending forms, publications, statutes, and rules through the mail, over the Internet, or by fax.[28] The consumer protection call center in the Texas Department of Insurance (TDI) has a similar system and can refer callers to TDI's site on the Internet.[29]
TPWD's call center provides park reservations and information. In the future, the department plans to give citizens the option of making park reservations via the Internet. The department plans to offer this same service for persons who wish to use parks operated by the Lower Colorado River Authority, allowing customers to choose facilities from two park systems at one call center. If one park system is full, the other park system can potentially handle overflow customers.[30]
Outsourcing
The federal government and the state of Maryland have successfully outsourced central call centers.Outsourcing call centers has advantages. First, call center technology is expensive and changes rapidly. By outsourcing this function, governments can avoid expensive one-time equipment costs and the risk of technology becoming obsolete after a few years. Second, employee turnover is generally high for call center operations; it is difficult for governments to maintain consistent employment levels and providing career ladders and training new staff can be costly. Outsourcing can eliminate this problem. Private companies provide a full range of call center services, such as equipment, staff, and associated work space, management reports, and maintenance of databases and Internet sites. In addition, private companies provide the flexibility to add or delete services at any time.
The Federal Information Center administered by the General Services Administration provides general toll-free assistance to callers trying to find federal government services. This center, in Cumberland, Maryland, is operated by a contractor, Biospherics, Inc.
In fiscal 1998, the center responded to about 2.3 million calls at a cost of $3.4 million--an average of about $1.50 per call. The contractor received $2.8 million in fees and the remaining $600,000 paid directly for toll-free calls and telephone lines, a federal supervisor, postage, and printing costs.
The center is open from 9 a.m. to 8 p.m. Monday through Friday, except federal holidays. The center has recorded announcements available around the clock, which provide information about popular topics. About 25 percent of calls to the center are answered by a recording. The center also has an Internet site available where citizens can find similar information 24 hours a day, seven days a week.
The contractor is responsible for maintaining and updating the electronic database and Internet site, supplying all equipment and work space, acting as a liaison with federal agencies, and providing publicity.[31] The contract with Biospherics contains detailed performance criteria and monitoring techniques such as review of materials, random sampling, and random verification of reported information.
In October 1998, the state of Maryland's Office of Management and Budget outsourced the state central call center to Biospherics, Inc. The call center is open 12 hours a day, from 8 a.m. to 8 p.m. Monday through Friday. Similar to the federal call center, Maryland directly pays telephone charges and pays $1.95 per minute to the contractor. The average length of a call is about three minutes. Each agency is charged based on its share of calls related to agency business.
State agencies were allowed to keep their existing call centers; the contractor handles overflow calls so callers are not placed on hold for long periods of time. The contractor is also negotiating with individual agency call centers to determine the best solution for providing services for each agency.[32]
Recommendations
A. State law should establish the AccessTexas Information Center to provide assistance to citizens searching for state information and services through telecommunications.The center would transfer callers as necessary to other agencies, answer frequently asked questions, and send basic information by fax or electronic mail. It would feature a toll-free number and would be open to callers around the clock, seven days a week.
Based on call volumes in the state of Indiana and the city of Dallas, and adjusting for Texas' population, the Texas call center should receive about 1.2 million calls per year in a 24-hour operation. Using the federal average cost per call of $1.50, the total annual cost for the Texas call center is estimated to be $1.8 million.
The General Services Commission (GSC) would administer the center, which would be funded out of existing appropriations beginning in fiscal 2001 by charging the 50 largest state agencies (excluding institutions of higher education) a fee proportional to each agency's total appropriation. After fiscal 2001, GSC should charge all state agencies a fee based on actual call volume. To avoid increasing the net cost to the state, these fees would be paid out of existing agency appropriations.
To implement the funding mechanism for the call center, the Legislature should include a rider in the 2000-01 General Appropriations Act to appropriate an amount not to exceed $1.8 million to GSC during fiscal 2001 that would be funded by interagency contracts from existing appropriations of the 50 largest agencies.
Other Texas agencies would not be required to give up their specific-purpose call centers; rather, these agencies would coordinate with the new center to transfer appropriate functions (such as frequently asked questions) and provide seamless service. Agencies would have access to a common database to answer general questions about state services. Eventually, overflow from GSC's call center could be routed to available operators in other state agency call centers.
B. The Council on Competitive Government (CCG) should solicit bids to outsource the AccessTexas Information Center.
CCG would have the authority to work with the contractor to consolidate existing call center operations into the new center where appropriate.
Working in cooperation with GSC, CCG would solicit bids, evaluate them, and award a contract to the vendor who can provide the highest quality services at the lowest possible cost. CCG would study the feasibility of consolidating certain state agency call center operations into the new center. The contractor would be required to provide innovative solutions for consolidating existing state agency call center operations into the new center over time. GSC would be involved in the contracting process because the GSC board chair is a voting member of CCG.
The contract with the vendor should be performance-based, meaning that it should contain clear performance standards; financial incentives and penalties to increase productivity, cut costs, and raise service quality; and advanced performance evaluation techniques such as random call monitoring and "mystery" calling.
C. State law should require the AccessTexas Information Center to develop a standard and detailed electronic database and an Internet site.
This database would contain the local and toll-free telephone numbers of Texas services and state employees, as well as answers to questions that citizens frequently ask. The database would use the listing of government services produced as a part of the federal-state "blue pages" project as a starting point for information.
This database would serve as a standard information source for all state agencies with appropriate technology. GSC and its contractor would be responsible for distributing this database, keeping it up to date, and training employees in its use.
GSC and its contractor also would develop an Internet site and provide as much database information as is practical.
D. State law should establish the AccessTexas Information Center in phases.
CCG should solicit bids and award a contract for the call center during fiscal 2000. The database and Internet site should be developed and the call center opened for operation by September 2000. The center's toll-free number should be listed in all telephone directories and with all telephone exchanges by December 2000.
Fiscal Impact
The recommendations would have no net fiscal impact on the state. Funding for the new call center, estimated to cost $1.8 million per year when fully operational, would be provided out of existing state agency appropriations. No new state positions would be required.Once the call center begins operation in fiscal 2001, GSC would charge the 50 largest state agencies (excluding institutions of higher education) a fee that would be proportional to each agency's total appropriation. After fiscal 2001, GSC would charge all state agencies a fee based on actual call volume.
Savings would result from reducing the number of times a citizen's call is bounced from agency to agency, and from reducing postage, printing, and packaging costs through use of fax-back technology and Internet access. Savings also would result from replacing multiple databases with a single standard database. State agency call center staff could be reduced over time through attrition, as the central call center, rather than individual state agencies, would begin answering the most frequently asked questions, reducing the workload at state agencies. These future savings, however, cannot be estimated.
Endnotes
[1] Texas Comptroller of Public Accounts, public survey on state agency customers service, (Fiscal Notes), November 1997.[2] V.T.C.A., Government Code SS2170.051.
[3] Memorandum from Rex Ridgeway, senior analyst for budgets and services, Project Support, General Services Commission, to Karl Spock, consultant, Texas Performance Review, May 19, 1998; and interviews with Marjorie McMurrey, manager, Statewide Telecommunications Solutions, General Services Commission, and Rex Ridgeway, General Services Commission, Austin, Texas, May 20 and June 15, 1998.
[4] General Services Commission, "ACD Pilot Number Current Report," Austin, Texas, April 1998.
[5] General Services Commission, "Tally of Operator Assistance Calls," Austin, Texas, May 26, 1998.
[6] Telephone interview with Martin Wind, SWAT team leader, Texas Department of Insurance, Austin, Texas, May 21, 1998, and telephone interview with Pam Warren, customer service representative, Texas Comptroller of Public Accounts, Austin, Texas, May 22, 1998.
[7] Texas Comptroller of Public Accounts, Texas Performance Review, "TPR Analysis of Major State Call Centers in Austin," Austin, Texas, June 1998.
[8] Interviews with state information operators, General Services Commission, Austin, Texas, February 18, 1998.
[9] Texas S.B. 897, 75th Leg., Reg. Sess. (1997); V.T.C.A., Government Code SS441.053.
[10] Telephone interview with Trish Dolese, deputy chief, Office of Customer Protection, Public Utility Commission of Texas, Austin, Texas, February 9, 1999.
[11] Texas S.B. 897, 75th Leg., Reg. Sess. (1997); V.T.C.A., Government Code SS441.053.
[12] Telephone interview with Rex Evans, records manager, Business Services Division, General Services Commission, Austin, Texas, June 22, 1998.
[13] Texas Comptroller of Public Accounts, Texas Performance Review, "AT&T Megacom Minutes," Austin, Texas, May 1998.
[14] Texas H.B. 1, 75th Leg., Reg. Sess. (1997), Art. IX - General Provisions, Sec. 141, p. IX-110.
[15] Telephone interview with Karen Williamson, analyst, Statewide Telecommunications Solutions, General Services Commission, Austin, Texas, May 18, 1998.
[16] Texas Comptroller of Public Accounts, "Survey of Key Toll-Free State Telephone Numbers," June 25, 1998.
[17] Interview with Mike Sheridan, executive director, Texas Workforce Commission, Austin, Texas, May 12, 1998.
[18] Telephone interview with Luke Thompson, manager, Reservations Center, Texas Parks and Wildlife Department, Austin, Texas, June 4, 1998.
[19] Telephone interview with Bill Hensler, telecommunications analyst, Texas Lottery Commission, Austin, Texas, June 5, 1998.
[20] Interview with Stephen Parker, director, Telecommunications Services, General Services Commission, Austin, Texas, June 10, 1998.
[21] Telephone interview with Rita Anderson, assistant director, Indiana State Information Center, Indianapolis, Indiana, May 18, 1998.
[22] Interviews with Raymond Sweeney, captain, City of Dallas Fire Department, May 7, 1998, and Richard Taylor, supervisor, City of Dallas Fire Department, May 7 and June 9, 1998.
[23] Telephone interview with Carol MacElwee, president, United Way of Connecticut, Rocky Hill, Connecticut, May 20, 1998.
[24] Mark O'Connell and Lori Warrens, "Operator, Can You Please Give Me the Number for Atlanta, Georgia?," The Regionalist (Winter 1997), pp. 39-41.
[25] Texas Comptroller of Public Accounts, Disturbing the Peace: The Challenge of Change in Texas Government (Austin, Texas, 1996), pp. 197-201.
[26] Advisory Commission on State Emergency Communications, Annual Financial Report for the Year Ended August 31, 1996 (Austin, Texas, November 1996), pp. 29-31.
[27] Interview with Leslie Howes, planner, and Howard Wagner, program director, Unemployment Insurance Division, Texas Workforce Commission, Austin, Texas, May 6, 1998.
[28] Telephone interview with Russ Huerta, supervisor of customer service, Tax Assistance Section, Tax Policy Division, Texas Comptroller of Public Accounts, Austin, Texas, June 11, 1998.
[29] Telephone interview with Martin Wind, June 11, 1998.
[30] Telephone interview with Luke Thompson, June 4, 1998.
[31] Telephone interview with Warren Snaider, contracting officers' technical representative, Federal Technology Service, General Services Administration, Washington, D.C., January 25, 1999.
[32] Telephone interview with Roy Pinchot, Director of Sales and Marketing, Biospherics, Inc., Beltsville, Maryland, January 26, 1999.