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All-in-One:
Improving Urban Service through Integration
Kim Hunmin
Professor, Dept. of Public Administration
Ewha Womans University
Seoul, Korea
Email: [email protected]
Paper presented at the
International Conference on Good Governance for National Development,
United Nations Project Office on Governance,
June 17, 2010
Millennium Seoul Hilton Hotel, Seoul, Korea
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Content
1. Characteristics of all-in-one service
2. Two Korean cases
- 365 Service Center
- U-PASS
3. Issues and recommendations
2
All-in-one or Integrated Service System
• Most prominent strategy for government
innovations in U.S., Canada, OECD
countries
• Not frequently observed in LDC
government innovations
• Observed in majority of UN Public
Service Award winners
• In Korea initiatives for service integration
are increasing
3
All-in-one Service: Definition
• More commonly known as one-stop service
• Aggregates several related but separately
provided services spanning multiple
jurisdictions into a comprehensive single
delivery or processing system
• “one-stop service center is an umbrella
organization that operates on top of existing
functional departments and is intended to
maximize the convenience and satisfaction of
users through service integration” (Ho, 2002)
4
All-in-one Service: Paradigm
• All-in-one service system requires interdepartmental and/or inter-governmental
coordination, collaboration with the private
sector, and customer oriented service provision
• Very similar to the e-government paradigm of
coordinated network building, external
collaboration, and customer services
• Change from traditional bureaucratic paradigm
of standardization and departmentalization
5
All-in-one: Types
Purpose:
- First stop: information, referral service
- Convenience store: diverse service but need 2nd, 3rd
stops for specialized service
- True one-stop
Delivery channel:
- Internet based or not (difficult to distinguish one-stop
service projects from e-government projects)
- Physical counter, Call center, Automatic kiosk, Web
site/internet
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Two Korean Cases
1. Business Support System
“365 Service Center & 365 Biznet”
(Seo-gu District Government in Gwangju Metropolis)
2. Citizen Requested Service System
“U-Prompt Administrative Service System (U-PASS)”
(Cheong-ju City Government in Chungbuk Province)
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Local government innovations in Korea
In general,
• Use of ICT
• Service integration increasing
• Place marketing (fairs, local product
promotions, tourism events)
• Least observed are devolution, citizen
participation
8
365 Service Center & Biznet
Problem:
• Rapidly increasing demand for administrative services
as a result of booming business activities in its
commercial area which was emerging as a business hub
in the metropolitan region
• District employees overburdened by the sheer volume
and wide range of service areas in demand - tax,
property registration, permits, small business
assistance, building management, banking, etc.
• Requests piled up, services delayed, complaints and
dissatisfaction on the part of the citizens
• Need to deal with ever mounting demand for services
particularly during evening hours and weekends
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365 Service Center & Biznet
Searching for Solution:
• Formed Task Force
• Conducted user survey
• Consulted experts
• Secured budget
• Built incentives for employees
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<Figure 1>
Integrated Business Support System
Vision
Best Business Hub in the Region
Goal
365 days, 24 hours Integrated Business Support System
Strategy
Satisfy and
impress
customers
Create
participatory
environment
Exercise
open
administration
Establish
innovative
culture
Implementation
Stage
Preparation
(Oct’06~Mar’07)
Implementation
(Mar’07~Jun’07)
Expansion
(Jul’07~Dec’07)
Settlement
(Jan’08 ~ )
Task
Task Force,
budget
Integration of
administrative &
banking services
Multiorganizational
linkage
Upgraded
system
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365 Service Center & Biznet
Implementation:
• Set up a joint Service Counter with Gwangju
Bank at a discount mall
• Operate 9 am till 10pm
• Offering banking service,
all kinds of certifying documents and licenses,
employment and placement service,
tourist information, and
various business support services
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365 Service Center & Biznet
• Scope of the service expanded:
• Central government agencies - National Labor
Office, Tax Office, Small and Medium Business
Administration, and social security service
• Hospitals and clinics, pharmacies, convention
centers, postal offices, etc.
• Extend hours of operation at these facilities
• On-line portal, 365 Biznet, to facilitate multiple
accesses to integrated services
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<Figure 2>
Collaborative Network of 365 Business Support System
Postal
Services
Public
Agencies
Banks
Mass
Media
24 Hours
Facilities
365 Service Center
(Off-line One-stop)
Medical
Facilities
Shopping
Malls
365 Biznet
(On-line portal)
Cultural
Facilities
Tourist
Attractions
Restaurants
Convenience
Stores
Accommodations
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365 Service Center & Biznet
Overcoming barriers:
• Financial constraint – high rental cost of service
counter site provided free by discount mall
• Employees’ resistance – flexibility and strong
incentives offered in terms of work
• Conflict of interests among agencies – gained
trust with error prevention measures, emphasized
joint gains from flourishing business
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<Table 1>
Increase in Services by Time at the 365 Service Center
Years
Daytime
%
Nighttime
%
Weekend
%
2007
44,158
51
25,475
29
17,407
20
87,040
2008
85,026
50
58,965
34
27,242
16
171,233
2009
97,343
47
73,147
36
34,382
17
204,872
2010(JanApr)
36,462
48
27,742
37
11,819
15
76,023
TOTAL
262,989
49
185,329
34
90,850
17
539,168
Source: Seo-gu District Government
Total
<Table 2>
Increase in Services by Type at the 365 Service Center
Service Type
2007
2008
2009
Residence Registration
Personal Seal Registration
43,981
23,563
70,582
45,237
90,581
44,876
Family Relations Registration
8,677
23,217
27,310
Land Cadastre
Cartography
Zoning
Building Register
Property Registration
Vehicle Registration
Local Tax Documents
National Tax Documents
Education
Other
Automatic Service Machine
TOTAL
1,225
342
762
24
1,294
272
1,735
185
361
712
3,907
87,040
1,715
1,116
2,136
387
2,336
1,342
3,947
260
590
1,393
16,975
171,233
2,795
1,628
3,231
699
2,554
2,160
5,026
330
688
11,014
11,979
204,871 18
365 Service Center & Biznet
• Presidential Prize, Local Administration
Innovation Award in 2007
• Top Ten Premium Brand of the Local
Administration Innovation in 2008
• Best Prize, Manifesto Best Practice Contest for
two consecutive years in 2008 and 2009
• Highest award as a Model Agency for Serving
the Citizens in 2009
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U-Prompt Administrative Service System
Problem:
• Before 2007 citizens’ requests and complaints were
handled separately by different departments
• Absence of a department or unit in charge of citizen
requested services - comprehensive analysis or
systematic processing of citizens service not feasible
• Many similar and overlapping services were being
handled repeatedly by different departments
• Lack of information sharing and coordination
mechanism for services involving two or more
departments
• As requests and complaints increased the biggest
complaint by the citizens was that services were
provided not promptly enough and often with errors 20
U-PASS
Searching for Solution:
• Formed task force
• Conducted user survey
• Consulted experts
• Adopted principle of customer orientation:
listen to citizens, provided fastest service,
serve as citizens wish
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U-PASS
Implementation:
• Implementation team headed by the vice mayor,
consisted of 120 employees represented from 28
departments
• Service system characteristics
- diverse and numerous input channels for easy
access
- computerized comprehensive management system
- supplemented by on-site mobile service system
- diverse delivery channels to match citizens’ needs
- close monitoring of citizens’ demand
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<Figure 3> Simplified Process with U-PASS
Before (12 steps)
1. Request filed
2. Collected by inspector
3. Draft & approve document
4. Notified to relevant dept.
5. Received by dept.
6. Draft & approve document
7. Assigned to staff
8. Process
9. Draft & approve document
10. Inspector notified
11. Draft & approve document
12. Notify citizen
After (5 steps)
1. Request filed
2. Collected by inspector
3. Draft & approve document
4. Notified to relevant dept.
5. Received by dept.
6. Draft & approve document
7. Assigned to staff
8. Process
9. Draft & approve document
10. Inspector notified
11. Draft & approve document
12. Notify citizen
Source: Information Communication Department, Cheong-ju City
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<Figure 4>
Service System Before and After U-PASS
Before
Departments
Call Center
City Hall website
Architecture
process
delay
Website staff
Sanitation
Site visiting staff
Call Center staff
Mobile phone text
& photo message
Citizen
Night shift staff
Visits & telephone
calls
Check result
communication
block
Visitors center staff
Environment
big
complexity
Other service staff
Citizen Support
.
.
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After
Departments
Call Center
Architecture
City Hall website
Site visiting staff
Mobile phone text
& photo message
Citizen
Automatic
distribution
U- PASS
Sanitation
Environment
Night shift staff
Visits & telephone
calls
Result notified by SMS
Citizen Support
On site staff
Source: Information Communication Department, Cheong-ju City
.
.
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<Figure 5> Mobile Processing of Services Through PDA
View filed requests
View registries
Post results
Source: Information Communication Department, Cheong-ju City
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<Table 3>
Service Processing Time Before and After U-PASS
Number of
days
Same
day
1
2
3
4
5
6
7
Total
2006
<before>
(%)
270
(10)
410
(15)
343
(13)
309
(11)
298
(11)
249
(9)
286
(10)
573
(21)
4,171
(100)
2007
<after>
(%)
1,225
(42)
344
(12)
294
(10)
301
(10)
259
(9)
183
(6)
176
(6)
137
(5)
4,789
(100)
Source: Information Communication Department, Cheong-ju City
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<Table 4> Annual Cost Savings from U-PASS
Source of saving
Basis of calculation
Social overhead cost
saving from reduction
in processing time
Average reduction time per service: 3 days;
1 day labor cost: 71,000 KRW;
Number of services per year: 11,676.
3 x 71,000 x 11,676
Cost saving from
reduction in documents
production
Cost of document per service: 200.
11,676 x 200
Total
Amount of saving
(1,000 KRW)
2,486,988
2,335
2,489,323
Source: Information Communication Department, Cheong-ju City
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<Table 5> Increase in Service Requests by Service Area
Years
(%)
TOTAL
Before
2007
2007
2008
2009
2010
(Jan-Apr)
Street
1,192
(21.5)
1,884
(16.5)
4,221
(23.9)
7,086
(27.1)
2,577
(34,1)
16,960
(24.8)
Transportation
701
(12.6)
1,990
(17.4)
2,515
(14.2)
3,545
(13.6)
1,152
(15.3)
9,903
(14.5)
Architecture &
Construction
740
(13.3)
1,840
(16.1)
2,623
(14.8)
3,825
(14.7)
833
(11.0)
9,861
(14.4)
Street &
Security Light
732
(13.2)
1,873
(16.4)
2,258
(12.8)
2,859
(11,0)
887
(11.7)
8,609
(12.6)
Street Cleaning
&
Environment
478
(8.6)
1,099
(9.6)
2,130
(12,0)
3,227
(12.4)
723
(9.6)
7,657
(11.2)
Area
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Years
Before
2007
2007
2008
2009
2010
(Jan-Apr)
TOTAL
Parks and
Green Space
Water &
Sewerage
Health &
Welfare
Culture &
Tourism
Industry &
Economy
254
(4.6)
217
(3.9)
163
(2.9)
90
(1.6)
52
(0.9)
23
(0.4)
908
(16.4)
5,550
(100)
573
(5,0)
544
(4.8)
320
(2.8)
196
(1.7)
160
(1.4)
52
(0,5)
890
(7,8)
11,421
(100)
961
(5.4)
671
(3.8)
320
(1.8)
137
(0.8)
114
(0.6)
58
(0.3)
1,672
(9.5)
17,680
(100)
1,637
(6.3)
933
(3.6)
415
(1.6)
185
(0.7)
208
(0.8)
38
(0.1)
2,150
(8.2)
26,108
(100)
303
(4.0)
288
(3.8)
107
(1.4)
67
(0.9)
51
(0.7)
7
(0.1)
555
(7.4)
7,550
(100)
3,728
(5.5)
2,653
(3.9)
1,325
(1.9)
675
(1.0)
585
(0.9)
178
(0.3)
6,175
(9.0)
68,309
(100)
Area
Local Taxes
Other
TOTAL
Source: Information Communication Department, Cheong-ju City
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U-PASS
Overcoming Barriers:
• As service became speedier more and more
citizens made requests for services, input opinions
about city administration, and reported conditions
in various parts of the city that needed immediate
attention
• The city employees overwhelmed with the burden
to respond promptly and accurately to rapidly
rising citizens’ requests and inputs
• Mounting complaints by the city employees was
the biggest obstacle to smooth operation of the UPASS
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U-PASS
• Manual developed to make the work easier and
simpler to the city employees
• Incentives to improve performance through UPASS - best employee citations, foreign travel
awards, and performance evaluations include
employee’s role in making service more
efficient, friendly, and innovative
32
Common Factors in Both Cases
• Formal planning activities -problem diagnosis,
goal setting, designing strategies , defining stages
of implementation
• Set up task force taking charge of addressing the
problem and making plans for developing a new
system
• Customer oriented system of service delivery
emphasized - user surveys, customer satisfaction
indices and other means to understand the users’
needs
33
Common Factors in Both Cases
• Shift away from the traditional bureaucratic
style of service provision based on
departmentalized suppliers’ perspectives and
conditions
• Strong and effective incentives in the personnel
system to make extra hours and volumes of work
acceptable
• Most noteworthy aspect - multiple accesses to
the system in terms of extended hours and/or
diversified input points and/or channels of
contact
34
Issues in All-in-One Service System
• Lack of formal evaluations of service
integration in the public management literature
• Can be one long, convoluted, and complex
maze
- customers get lost while making a choice
among multitudes of options given at every step
• Manned by generalists
- must consult specialists to properly handle a
customer’s service request or inquiries
- disenable direct access to specialists
- longer waiting time even with higher
manpower costs
35
Issues
• Diminished access points or channels of
contact
- integration mainly for efficiency purposes
but at the cost of greater inconvenience to
citizens to whom service accessibility has
declined
- if internet based service integration replaces
off-line service counters citizens without
access to computers or knowledge to use them
lose service accessibility
- eg: Integration of police stations,
community centers, tax service, etc
36
Issues
• Ambiguous structure of authority,
accountability, and responsibility
- power struggle, tendency of participating
agencies to pass responsibility to each other,
- issues and challenges of inter-agency
coordination and collaboration
• Failing to take a customer oriented
perspective
- designing delivery systems based on supplying
agencies’ needs and perspectives
- that is, from being supply oriented rather than
demand oriented
37
Recommendations
• Meet challenges of inter-agency coordination
& collaboration
- overcome resistance, power struggle,
- specify and clarify responsibility,
accountability, budget sharing among
collaborating agencies
• Internet based system should not simply
replace off-line service with on-line service
- make service available to people unfamiliar
with computers
38
Recommendations
• Should be designed with a very clear and
strong customer orientation, user friendly &
simple
• Should not result in reduction of access
points and channels
• Effective all-in-one system should be not
ONE one-stop but composed of MANY onestops
39
Thank you
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