Shared Services for Code Enforcement

After initial attempts at targeting efficiency with consolidation, governments are exploring shared services, even as they weed through the promises of trends like SOA. To effect real impact on the timeline of state governments demands solutions that can be implemented quickly and provide immediate evidence of value, taking into consideration the various challenges of technology, budgeting, workflow, and politics. Using the example of code enforcement at the state level, we illustrate how leaders in the public sector can orchestrate meaningful innovation and productivity by leveraging a new breed of agile applications that are both effective and economically viable.


EXECUTIVE OVERVIEW


Governors, CIOs, and field staff alike share in the escalating need to continually improve public sector efficiency. Policy experts suggest that, at least in North America, change, innovation, and leadership is most likely to happen first at the state level; this is in spite of unfortunate historical procurement policies that produced unwieldy legacy systems, often disparate and ill-suited to the tasks of the day.


""In analyzing where shared services are now, our workshop came to several broad conclusions: Major opportunities for efficiency remain to be harvested ...practitioners and researchers are convinced that the benefits are real. If you haven't been investing in shared services, you should be."


Jerry Mechling, lecturer in public policy at the John F. Kennedy School of Government, Harvard University.


Budgets are tight and low-hanging fruit have been picked, but looking to the private sector for ideas and innovation, leaders acknowledge that what they find is significantly harder to implement in government, where public opinion and politics carry as much or more weight than pragmatism or economics. There is an upside to this however - governmental innovations that achieve real improvements in quality or efficiency usually create more value than similar innovations in the private sector.


Consolidation, and more recently, shared services, were the first manifestations of this reform, and have been ranked in the top 10 priorities for State CIOs in both of the past 2 years. Furthermore, 72% of CIOs are implementing or are planning to implement shared services, aiming to improve quality, elevate operational efficiency, and lower operational costs. In 80% of cases, this is being driven by a senior administrator such as the Governor or the CIO directly. Having begun with relatively simple to conceptualize (if not implement) areas such as data centers, call centers, and back office functions, leaders continue to search for areas where improvements can be made. As did their peers in the private sector, agencies at the leading edge of this movement quickly found out the price of an overly rational approach that promises too much - ignoring the human side of the equation, both at the staff and constituent level, quality suffers and much resistance is met as departments fight to retain control of their world.


Ideally, a shared services approach allows agencies to replace or connect systems across organizational silos, enabling the delivery of services in the most productive and efficient way. Wherever you will find references to shared services today, you will also find its IT buzzword companion, Service Oriented Architecture (SOA). Touted as an approach to bridging shared services, SOA is an IT architectural approach which "modularizes" individual enterprise application functions into standardized, reusable, and customizable services which aim to eliminate redundancies across the organization.


SOA has its merits as an approach to shared services - by any name, it is becoming clear that governments need applications that are cost effective, quick to implement, and which provide a framework for evolution as the nature of the organization changes. To overcome internal resistance, new technology must be better than what was previously in place, and must be customizable at the ground level to accommodate the essential components of each department's individual workflow, rather than assuming everyone will change how they work to fit the design of the application. It must be flexible enough to fit within the overall IT architecture, so that supporting it does not become onerous.


Technology has evolved to a point where modular approaches are now a viable enabler of shared services. Approached with care and armed with the right tools, the timing is right for governments to strike the fine balance between business process alignment and IT modernization, all without breaking the bank or taking years to implement. Code enforcement, having both similar processes across departments and very specific individual domain application requirements, is a prime candidate for this type of transformation.


""Although consolidation and shared services provide great opportunity, they also present great challenges for state CIOs in that fundamental change in the way IT is governed, managed and operated within a state will certainly be confronted by resistance in a variety of forms."


NASCIO Issue Brief, March 2006


You can address this challenge with a suite of tightly integrated application modules that combine common workflow elements within and across departments. Interfacing seamlessly with existing IT investments, these solutions are cost-effective to maintain and easily customized to accommodate new tasks or changes over time. Implement an agile framework that allows you to deliver portable, useable front end modules and a rock-solid core of shared code enforcement tools.


PUBLIC SECTOR CHALLENGES


With the intent to implement any type of systemic change, be that in workflow or technology, it is imperative that leaders understand and address specific problems inherent to their organization, anticipating problems that will arise and being well-prepared to deal with them in an effective manner. The challenges associated with implementing eGovernment systems have been well documented, and there is consensus that the "best" or most cost-effective system is not always the one selected.


As Darrell M. West concludes in his book Digital Government, changes in the public sector have historically leaned toward the small and gradual, and there are a number of reasons for this. Budget scarcity, group conflict, and behavioral patterns are all cited as barriers to transformation. Government structure, with its competing jurisdictions, hinders cooperation, and thus innovation as well. Competition for resources is the nature of politics, and with tight budgets and fragmented, decentralized decision making, it is no wonder that large-scale change is rendered unlikely.


On the positive side, these barriers to large scale change in the public sector are predictable, and thus can be planned for and taken into consideration in system design. Agencies and departments are unique to some extent, but they all share common functions and tasks that can be modularized under the right circumstances. Additionally, it is not always large scale change that brings about the greatest efficiency - sometimes we have to choose to effect the changes we know can be implemented, and ensure that these are done in such a way as to maximize their impact today, while leaving room for further evolution as time goes on.


Lessons learned


Only fix what is broken: Many aspects of workflow within an agency might make sense for reasons that aren't readily apparent, so be cautious when evaluating what to automate and how to implement new processes and technology.


People in the field know their business: Listen to the people who do the work, and get them on board as partners in designing the solution. You won't find anyone who knows boiler inspections like the field inspector, the strengths and shortcomings of the invoicing process like the office staff, or managing the team like the chief inspector.


Design for the user: Applications need to be designed for people who use them. If not designed to be usable, people will revert to old ways, and efficiency will be minimized.


Patronage kills progress (and budgets): Vendor selection based on relationships or other motivations often results in overpriced systems that don't get the job done. To deliver systems that endure requires real attention to details and requirements.


Show the ROI: Features are nice, but applications also need to be cost effective to implement, manage, and customize over time in order to show real economic value. The result needs to be useable now, with real ROI today, and viable for growth over the medium and long term.


Standardize flexibly: Give people control where they need it - and "pick your battles". This is not a one-size-fits-all world anymore, and you need to allow agencies to do their job without forcing them into a system that doesn't fit their workflow.


CODE ENFORCEMENT


Code enforcement is an area of government that lends itself particularly well to the concept of shared services. Agencies tend to be grouped within one or two departments, often with common leadership, limiting the amount of political wrangling required to implement a multi-agency solution. Culturally, the workforce is relatively consistent, as are the tools and practices required to deliver services. While each department has very specific individual needs (for example, the data collected by the boiler inspector would be very different from that of the elevator inspector), they also have a great deal of overlap in functions and requirements, such as invoicing, permitting, and examining and licensing of individuals. In many cases, departments share the same clients, and can gain some efficiency through consolidated billing and tracking of receivables. Depending on regulations within the state, enforcement officers or inspectors may be able to operate in more than one capacity as well.


By working with inspectors and government leaders alike for many years, some solutions have been able to develop a consistent approach and a comprehensive toolset designed specifically for shared code enforcement across domains. Different jurisdictions need to combine tasks in various ways, so these systems have been designed to maximize both efficiency and flexibility.


Instead of trying to enforce one universal system that is all things to all people, we need to bring change where it is needed, gaining acceptance and efficiency task by task, while maintaining a singular vision of overall change at the management level. This requires a solution that allows for highly customized individual applications at the agency and domain level, tightly integrated to a robust, scalable core system which enables the consolidation of common workflow elements within and across departments - and this solution must also be able to interface easily with existing functional systems, and provide a framework that is cost-effective to maintain and modify to accommodate future needs. That is the best approach to Shared Code Enforcement.


IDEAL SOLUTION OVERVIEW


A unique approach to the problem of shared services for code enforcement allows all levels of government to participate in framework that offers significant efficiency gains, reduces operational costs, and makes everyday tasks associated with reporting and compliance easier to accomplish.


You may do this by deploying a robust core system that encompasses the common scope of business processes among departments and agencies, surrounded by a suite of tightly integrated, yet highly customizable modules that are designed specifically for the field and office staff working in code enforcement roles. Such applications are enabled for mobile use, empowering field staff with the complete feature set available to the office worker.


Working within this purpose-designed framework allows one to provide agile systems that do not require the clumsy "work-arounds" so prevalent in one-size-fits-all solutions. Customized functionality and routine modifications are simplified by a modular architecture, and management should be greatly simplified, so that dedicated administrators are not required to make basic changes to the system. You should be able to create and save your own ad-hoc reports on an as needed basis, eliminating costly dependence on internal IT departments for simple data retrieval and reporting needs. A custom management console can provide management with a real time view of the data they need to make decisions and monitor problems as they arise.


IT BENEFITS


Most jurisdictions have an IT Roadmap in place and a comprehensive set of standards that are adhered to in the implementation of new systems. In evaluating any new system it is important to consider the IT benefits in addition to the business benefits, as these can have a significant impact on useability, cost predictability, and various aspects of growth and change.


The ideal solution is built with IT managers in mind - it can accommodate most mainstream databases on the back end, meaning you won't have to hire in new skills to manage the system on your existing infrastructure. Since the experts maintain the application, minor adjustments, fixes, and upgrades should be included in the price so you are not constantly pushed for another purchase order to fix this problem or accommodate basic functional changes. This approach gives your IT department control of data management, while not imposing additional workload requirements to manage the application modules.


Since the best applications run on most flavors of Windows, it typically isn't necessary for jurisdictions to have to buy a lot of new hardware to use these systems. Field staff can choose to use their existing laptops, or in some cases may run the applications (and carry historical data) on a memory stick, securely performing tasks like printing licenses, permits, or invoices directly at the client's site.


BUSINESS BENEFITS


Every jurisdiction is different - each has a layer of commonality with its peers, but also has specific individual needs, work environments, IT considerations, and workflows. In most cases, looking across jurisdictions we can see consistent ROI estimates in the following areas:


* Reduced paperwork, errors, and data entry


* Increased efficiency of inspections - more inspections completed, inspectors don't need to use paper forms and after the fact data entry


* Better receivables management - invoices go out on time; receivables managed more efficiently and collected sooner


* Easier to create reports, thus saves time and provides better information for reporting, workflow management, and management decisions


* Reduced system downtime (since you don't need to be online to access the application or data)


* Other tangible benefits include the impact of centralized revenue management, reduced risk, reduced liability, better quality data, and more efficient management of plant and exam information.


Planning for the future:


Consider all aspects of future operations when making purchasing decisions. Although the initial focus on staff reduction and cost control is important, it pays in the long run to consider a more comprehensive view, anticipating where you will go next.


Listen to your staff and constituents - these are the people that have to live with the system and its effects, so think about their needs and how they will evolve over time.


Invest in current technology - look for systems that use current technologies and that are designed for growth and evolution.


Speak to other jurisdictions who use the system and understand potential shortcomings - such as how long it takes to get changes implemented, how common are "work-around" processes, and what issues users have with the application.


Look at revenue as well - reducing cost is an uphill battle over time, so solutions that help you to bill more efficiently and collect receivables on time will have better ROI.


Invest in innovation - any increased revenues or cost reductions should be applied to making your operation better - instead of looking to lay-off staff, aim to retrain them for other tasks, or focus them on your clients.


What to look for, and what to avoid:


Mobile promises - Many systems claim to have "mobile capabilities", but dig deeper. Can you use the application without a network connection? Can you carry historical inspection data with you? Is it fast and easy to synchronize data? If mobile systems aren't flexible and well designed, people won't use them, and your efficiency drops. Understand how it really works.


Beware of the web - Online systems that are web based don't work when you aren't connected to the internet or when the provider's website is down. Your data is stored outside your jurisdiction, so you can't control how it is managed. They tend to be slow and very often don't work well on mobile devices, so look for flexible solutions that have an online option for those who need it. Finally, make sure there is a useable management console and an ad-hoc reporting function, so you can access the data you need quickly.


Avoid hidden costs - Some systems are available for free, but fall short on functionality, requiring jurisdictions to hire extra data-entry staff to enter information from paper forms or to maintain current data with third parties like insurance companies. This can add substantial costs to your operating budget, so it is better to choose a system that streamlines the workflow, paying for itself - and then paying you back in cost savings.


Biggest is not better - Industrial sized applications often have many problems, including the need for many "work around" processes, data inconsistency, and inability to easily produce reports. These are typically difficult to use, require lots of training, and are not easy to customize. Some require you to have a dedicated administrator just to make basic changes and operate the system, and that is an unnecessary expense. Applications like these are expensive to implement, and cost even more to maintain and grow with you over time.


Adding bricks - Many applications have a few of the pieces you need, but lack the modular approach and in-house knowledge to quickly customize a module or three for a comprehensive solution. Building everything from the ground up will crush timelines and budgets alike.


In house sagas - Does your IT staff have the skills, knowledge, and resources? Will they be accountable to budgets and timelines? Are they responsive when you need changes? Look for something that is designed for what you do, and proven in the field by a group of your peers. A good vendor partner will give you this plus and more.


CONCLUSION


The challenges of managing change in the public sector are often greater than those in the business world, but they are well understood and predictable. Leaders who are looking to invest in real-world change that can be implemented quickly and soon demonstrate visible success can begin with the area of code enforcement - after proving the viability of the approach in this area, the concept can be applied in other departments. This hybrid approach of a simple foundation across domains with a suite of tightly integrated, customized, application modules has been proven to increase efficiency now, while providing a platform for growth and evolution in the future. Robust, scalable applications that bring together common workflow elements within and across departments - while interfacing seamlessly with existing IT investments, provides a framework that is cost-effective to maintain and modify to accommodate the often changing regulations and requirements that are the hallmark of the public sector.