The approach used for Discovery was to:
- (1) Analyse existing user research and undertake additional user research where required,
- (2) Carry out workshops to understand the current services provided and technologies in use
- (3) Undertake quantitative research into volumes, transactions, number of users, and cost per transaction,
- (4) Conduct interviews to understand the capabilities needed to provide those services,
- (5) Create maps to understand situational awareness of the service
A cross-functional team across the Scottish Government was assembled, including the Digital Partner, to
create a strong collaborative Discovery team. This collaborative team worked in 2 weeks Sprints or work
packages to map out the Social Security digital ecosystem: users, services, capability and technology to
understand the digital / technical space and the resulting implications.
Outputs from the Discovery process were shared with the wider audience every 2 weeks using interactive
Show 'n' Tells.
A holistic approach was taken to understand the future Social Security Service for Scotland. The approach was designed to get to the heart of social security users, services, capabilities and the underlying technologies.
- Users: The citizens, who consume or operate Social Security Services. For example, a Carer seeking financial support so they can continue to care.
- Services: The services that are operated or commissioned to deliver a value proposition to eligible citizens. For example, the Job Seekers Allowance service supports unemployed citizens whilst they look for work.
- Capabilities: What is needed to deliver the services, independent of how or where things are current done. For example, the abilityto pay a user however, this may be carried out in a variety of ways across multiple services.
- Technologoes: The technology that is used to deliver the capability needs of the organisation.
Throughout the discovery process, the user research approach engaged the team to explore two questions: (1) Do we know who the service users are? (2) Do we understand what they need from the service?
User research was carried out in two stages throughout the 8 week discovery process. This agile approach to user research aimed to embed user research alongside ongoing work. Developing understanding of how and when the team can engage with users and user research, based on the project context. A mix of informal conversations, research engagements and research outputs were used to challenge everyone’s understanding of who service users are and what the service users need.
In weeks 4-8, the Discovery team engaged with 14 service users who had a range of long-term health conditions and impairments and were at different stages of claiming the Personal Independence Payment (PIP). The majority of the service users were working with an advocate to support their application.
Overview of key findings:
(1) Receiving and completing the application form - “My wife said ‘you [your condition] are worse
thank you think you are [when filling in form]”
- Most of those interviewed reported feeling overwhelmed at first seeing the letter informing them that they were moving from DLA to PIP, and the steps this would entail, particularly if they had previously been given a lifetime award.
- The application process is seen as a ‘one size fits all’, with no scope for adapting to individuals situation, it fails to meet the needs of a diverse user group
- The application form includes questions that cannot be answered as simply as ‘yes/no’. Some felt that many questions are designed to ‘trick’ them into providing information that will invalidate their application.
(2) Contact and Assessment - “It’s a very rigorous process – some of the questions you are asked are quite ill thought out, humiliating and degrading”
- Individuals, who had experienced the assessment process, felt there was no consistent understanding of what it entailed, the process that is used to gather information was at key points degrading and there was mistrust in the ability and qualifications of individuals undertaking the process.
(3) Tone/trust and effects on emotional and mental health – “It engenders a constant fear of ‘when is the next brown envelope coming through the door’..it’s like living in a culture where no-one believes anything about you”
- Many had a deep feeling of mistrust towards the DWP, grounded in how they are spoken to and treated throughout the process, which adds another level of stress to the whole experience. Service users asking, ‘why they are asking what they are’, ‘what they will do with the information’.
A representation of the Social Security Service for Scotland and the activities involved.
Existing user research, which strongly focused around the pre-claim, admin, disputes and the award areas, was reviewed and validated in the Discovery phase and macro user needs were created as a means to test the service pattern and capabilities.
The service map for Social Security in Scotland demonstrates that there are 6 key functional areas with sub-categories of specific activities that will need to be performed for the provision of benefits to claimants. These are: (1) Advice & Guidance, (2) Take Action on Evaluation, (3) Dispute Resolution, (4) Reporting, (5)> Support Services, (6) Policy and Strategy
For example, Advice & Guidance:This area deals with the provision of benefits-related advice to claimants and internal users, including advice that may need to be delivered through advocacy groups, home visits or prison services. It also covers the activities required to deal with general enquiries and support enquiries.
Perspectives through which the Service Landscape can be viewed and considered, including constraints.
The Discovery team further analysed the service map using 4 separate perspectives – a user needs perspective, DWP needs and other organisations needs perspective, technology perspective and policy & regulation perspective. This analysis covered the end-to-end service map.
The example shows the user needs, the potential interactions with other organisations, the potential types of technology required and policy & regulation dependencies for 2 areas of the service map - Advice & Guidance and Take Action on Evaluation.
Perspectives through which the Service Landscape can be viewed and considered, including constraints.
The underpinning service pattern to support the provision of social security services in Scotland is fairly standard when compared with similar services across other Government organisations. The Discovery team compared and contrasted to-be service patterns from DWP, Isle of Man, Canterbury Council, and Student Loans. The ability to find information, check for suitability, the ability to request support throughout the application process, the ability to accept decisions, maintaining support and dealing with disputes were found to be consistent with the benchmarked service patterns.
For example, a typical flow of a benefit claim through the service might look like this given the standard
service pattern:
- Users use multiple channels (online, offline, mobile, etc.) to learn about what support is available from Social Security in Scotland.
- Users go through self-assessment and are then triaged and signposted to appropriate levels of support based on their particular circumstances and needs.
- Users are assessed for eligibility, they submit an application and provide required evidence, including any detailed information that may be relevant to their circumstances and needs and they are informed of their responsibilities.
- Users are notified of the decision and are issued a proof of award.
- Users receive their award and meet their responsibilities and they receive statements confirming
their financial support.
- Users notify Social Security for Scotland of any changes to their circumstances. User needs are
reviewed periodically to ensure adequate levels of support is being offered.
- Users are reconsidered or complain about their claims. Users may also appeal their decisions, if they
need to.
Process, technology and people capabilities required to provide Social Security services in Scotland.
Capabilities are the building blocks of services and these can be people, process or technology. The Discovery team identified a total of 58 capabilities across 9 themes that underpin the service map. (1) Advice & Support, (2) Customer Interaction, (3) Information & Document Management, (4) Service Delivery, (5) Exception Handling, (6) Financial, (7) Reporting and Analysis, (8) Corporate Support, (9) Technology Management.
The identified capabilities were validated against the needs of the devolved benefits and generic benefit process maps. It was found that nearly 98% of these capabilities can be re-used or are needed across the 11 benefits, highlighting the opportunity for standardisation of capabilities not just within the Social Security landscape for the provision of multiple benefits, but also within the wider government landscape for the provision of similar capabilities in Justice, Licensing and Grants and others.
The technologies needed to support the capabilities to deliver Social Security services in Scotland.
The diagram above shows the types of technology needed to support the service. These technologies are grouped into 5 areas: (1) User interaction technologies, (2) Social Security processing technologies, (3) Data technologies, (4) Award management technologies, (5) Management technologies.
For example, publishing platform, content management, identity management, contact centre and messaging are required to be able to provision advice and guidance as part of the service. Likewise, for processing applications, the service would need access to technologies such as customer relationship management, case management, document management, rules management, knowledge management, and appointment booking.
For award management, the service would need a payment engine, award reconciliation and supplier management technologies. Importantly, for data, based on the impact assessment, the service will need access to varying levels of secure data storage (IL2,3,4) and the ability to securely integrate data with other organisations.
The indicative target architecture shows the alignment of the service pattern, the service map and the technologies needed at each stage of the service.
These assumptions were further validated in the Alpha phase to gain a better understanding of the technologies and capabilities required by the service.
Understanding the dependencies on digital infrastructure and technology across the 5 delivery options.
Option 1: The agency centrally delivers Social Security in Scotland
Option 2: The agency locally delivers Social Security in Scotland through local offices
Option 3: The agency delivers non-discretionary benefits and local authorities deliver discretionary benefits
Option 4:The agency delivers cash and benefits in kind
Option 5: The agency provides governance but delivery of social security is done by others
Understanding the dependencies on digital infrastructure and technology across the 5 delivery options.