Designing For Public Services - Nesta
Designing forPublic Services
IntroductionThis guide has been created by.NestaNesta is an innovation charitywith a mission to help people andorganisations bring great ideas tolife. Dedicated to supporting ideasthat can help improve all our lives,its activities range from early stageinvestment to in-depth researchand practical programmes. Nestarecognises the need to strengthenthe foundations for innovationwithin organisations, and that theskills required to bring innovationto life must become part of anorganisation's culture to createmeaningful impact. Its InnovationSkills team works closely withIDEOsocial and public sectororganisations to help embed theseskills, while also advising morebroadly on how to develop andincrease innovation capacity.Design for EuropeThis guide has been made possible with support from Design for Europe,a three-year programme co-funded by the European Commission toboost design and innovation across the continent. Find out at more atdesignforeurope.eu.IDEO is a world-renowned designand innovation firm with over30 years experience of workingacross the private, public and thirdsectors. As a global organisation,it has deployed its learningsglobally in governments in the US,Europe and Asia and at local, stateand national levels. IDEO’s nonprofit arm, ideo.org, leverages thefirm’s experience in supportinggovernment development agenciesand foundations to solve problems.IDEO has been practising designthinking to make tangible ahuman-centred approach toproblem solving. Now the firm usesits approach to tackle increasinglysystemic challenges, from buildinga unique school system in Peru tosolving agricultural productionchallenges in Ethiopia.
Introduction“Design is one of the mostimportant drivers of the quality ofexperience for users of services.For governments to remain credibleto their citizens, they must treat thedesign quality of their services asseriously as the best businesses.”– Tim Brown, CEO and president, IDEO3
IntroductionIn this section.Welcome to this collection of practical tools and methods forusing design in public services. You have made it this far in yourjourney, so hopefully you are already aware that design is notjust for designers - everybody has the capacity to design!p.05 —Why design thinking ingovernment?p.06 —Expanding a portfolioof methods in the publicsectorp.07 —Why the move to thesenew approaches?4Introductionp.08 —What kinds of valueis design thinkingdelivering?p.10 —Case study - Ministry ofManpower, Work PassDivisionp.11 —A note on leadershipp.12 —ContentsHistorically, designers have livedparallel lives to policymakers andpublic administrators. But this ischanging as governments acrossthe world experiment with designand innovation methods. Thismight include bringing in expertdesign support, but we also believethat anybody can start exploringwith these same methods.They can help strengthen yourunderstanding of citizen needs,add value to daily work practicesand bring new life toold problems.In this guide we introduce you toa process called design thinkingand a set of tools and methods thatunderpin it. Together, they offernew ways to do things differentlyand provide you with guidance onhow you can introduce them intoyour day-to-day work in the publicsector. They will encourage you tosee things differently and give oldchallenges a new perspective. Thesetools and methods are commonlyused by designers across the worldand are the bread and butter ofour creative industries. They canbe adopted by any sector and beused to inspire the progress andinnovation we all strive for.Learning to use these tools andmethods will be like learning anynew practical skill. It’s true, youcan’t perform a piano concertoafter a few piano lessons — it’s allabout practice. So, don’t look atthem as a silver bullet, and insteadbuild your confidence by tryingthem out. Apply them to differentstages of a project and involveothers in exploring them.We hope you enjoy!
Introduction5Why design thinking in government?Designthinkinghasbeenpractisedby design and innovation firm IDEOfor decades.The private sector has been on thejourney of building design capabilitiesin its organisations for manyyears. More recently, we are seeinggovernments embarking on a similarjourney. Dependent on where youare in the world, there are a numberof reasons why design thinking isbecoming a valuable methodology forgovernments.Citizen trust in many governmentscontinues to decline. Citizens believetheir governments have lost sight ofwho they are and what their needs are.Design thinking is a human-centredapproach, meaning that it startswith people’s needs (and considersboth citizens and civil servants). Thenature of this approach puts peopleback in balance with what they’redoing at a time when both citizensand civil servants feel they are beingled by processes and regulation, ratherthan enabled by them.Financial pressures are really bitingin many countries so simple costcutting measures are no longerenough. Many governments needto think much more fundamentallyabout how they deliver services,and so innovation has been put onthe agenda. Design thinking is aninnovation approach and its tools andtechniques can lead to significantchanges in both policy design andservice delivery.There is a separation between thosewho make policies and those whodeliver the services, and this oftenresults in an incoherent serviceexperience for citizens. A design ledapproach connects these dots, withboth policy design and delivery beingconsidered concurrently rather thansequentially, and quite a number ofgovernments are now experimentingin this space.Irrespective of where a governmentis in the world and their localchallenges, there is one commonissue: a shift from ‘designing fromthe inside out’ to ‘designing from thedesired changes of a governmentwith the desires of the citizens. It isultimately about creating tangibleand positive impact.outside in’. Governments drive thechange they want to see and tend tofocus on delivering in a way that ismost efficient for them.As a result the desired change oftenmisses the mark with citizens. Usingdesign approaches puts in balance theTRANSACTION CEPROCESSPOLICYBUILDING RELATIONSHIPS
02 — RELEASEIntroductionWorking in the public sector, you may be familiar with otherproblem-solving approaches typical in government such as LeanManagement, Six Sigma and Business Process Re-engineering.03 — LEARN6Expanding a portfolio ofmethods in the public sector01 — BUILDAll of these methodologies sharethree common attributes:—They are led by designing fromthe ‘inside out’—They tend to be driven byquantitative data—They are highly structured andlinear in how the projects flow—They are most often deployedwhen opimisation of existingservices is the goal.In the online space, mostgovernments deploy waterfallmethods of designing, buildingand deploying software services.This is also a linear process thattends to start with the needsof the government agency,which are articulated throughrequirements documentation.Design thinking is one of a new setof approaches that governmentshave been experimenting withmore recently, along with LeanStartUp and Behavioural Economics.These three methodologies alsoshare common attributes:—They are informed byquantitative data and inspiredby qualitative data about citizens—They are iterative, test-and-learnapproaches—They are most often deployedwhen innovation is the goal.In the online space, governmentsare experimenting with tools andmethods of Agile Development whendesigning, building and deployingsoftware services. Again, this processis highly iterative and inspired by theneeds of citizens (in balance with therequirements of the government).
IntroductionWhy the move to thesenew approaches?“Increasingly, the public sectorhas to deal with uncertaintyrather than risk, and it isgood at managing risk butbad at managing uncertainty.Design offers the capacityto engage with user needsand social needs, and totake a prototyping approachto solutions. This is a wayto build a bridge betweenuncertainty and risk.”– Marco Steinberg, government innovator and founder,Snowcone & Haystack, strategic design practice forgovernment7The reasons somewhat vary dependent on the circumstances agovernment department finds itself in.The sense of less certainty.Governments at all levels areembracing ever growing levels ofcomplexity and in increasinglyuncertain times. There is asense that even all the questionsare not quite understood, letalone the answers, so the idea ofdeploying innovation approachesis appealing for many.Cost-cutting measures.Many governments requiremore fundamental change soare adopting approaches moreassociated with innovation. In theonline space, there is evidence thatdeploying agile methods has manyadvantages — one of them beingthat over time, it is a cost-effectiveway of building and iteratingsoftware services as the needs ofgovernment and citizen change.Irrespective of where agovernment is in the world, thereis a common challenge: creatinggreater connections betweencitizens and governments. Thenew set of approaches all startwith people.This guide primarily focuses onthe tools and methods associatedwith design thinking, however,in Chapter 5 we do draw inseveral tools and methods fromother approaches that are highlyvaluable when thinkingabout prototyping.
IntroductionWhat kinds of value isdesign thinking delivering?These new approaches arerelatively nascent in the publicsector, but across the globegovernments are seeing highercitizen satisfaction scores onthe services they deliver.In governments that areexperimenting with design in thepolicy formulation space, earlysigns suggest they are designingpolicies that connect more closelywith citizens, and therefore aremore likely to hit the mark whenimplemented.So, there is a lot of evidence emergingin terms of citizen value.8From our experience, we are alsoseeing benefits for civil servants too.In governments across the globe, civilservants report that they feel led byprocesses and regulations, ratherthan being enabled by them. Puttingpeople back in the heart of problemsolving is creating a new balancebetween people and processes/regulations. Civil servants themselvesare now part of the picture.Working for a government is highlymeaningful for most staff, and theywant to make a positive differenceto the lives of citizens. These newermethodologies are informed not justby quantitative data but qualitativedata too — spending time withcitizens, enquiring and unearthingtheir needs. This is a critical processpoint, but by carrying out theseactivities civil servants also reportfeeling a sense of reconnection withwhy they joined government. Theyare personally re-connecting with thecitizens they set out to serve.This is all positive news, but thatdoesn’t mean that these newmethodologies should replace moreestablished ones. They shouldn’tbe used in every situation either.Instead, we believe that governmentswhich have an expanded toolkit willbe better equipped to take on anuncertain future. The future will beabout considering the nature of thechallenge at hand, and deployingthe right methodology against thechallenge. Getting to know the toolsand methods in this collection willhelp you to achieve just that.
Introduction“Design methods can bring a vital newenergy to public services by helpingthem to listen to citizens about their livedexperiences, prototyping fast and learningby doing, and using visualisations as wellas texts. All of these quicken the pulse ofinnovation and help governments get tobetter solutions more quickly.”— Geoff Mulgan, CEO, Nesta9
IntroductionCase study, SingaporeWork Pass Division,Ministry of ManpowerThe job of the Work Pass Division (WPD) in Singapore isto process work permits for foreign workers, who compriseabout 40% of Singapore’s workforce. It was generallyconsidered the most efficient department of its kind in theworld, and yet, customer satisfaction scores demonstratedthere was more work to do. Several rounds of Business ProcessRe-Engineering had driven their efficiency and the teamturned to design thinking to consider more broadly thecustomer experience of their services. The team at the WPDworked with IDEO over a period of three years. Togetherthey tackled the customer experiences in the service centres,how they communicated with customers through all writtencommunications and even re-structured the departmentaway from internal process and towards industry sectors.In one example of impact, the Employment Pass Service“The most important lesson we learnt from ourcustomers was that being world-class is all about‘values’. It made us ask ourselves how we couldturn speed and efficiency into a holistic customerservice experience that our customers valued.”— Penny Han, Director, Work Pass Division10Centre — which processes the permits for all incoming whitecollar workers — saw its customer satisfaction ratings shootto 5.7 out of 6 after the launch of the new experience design.Additionally, the centre is now able to process more than 95%of visitors within 15 minutes. WPD concluded; “It seems thatwhen you aim to improve the experience, you also improveefficiency”. The combination of using Business Process ReEngineering and design thinking has ensured it is a worldleader in terms of efficiency and customer experience.
IntroductionA note on leadership“Leaders can create theconditions for innovation;encouraging their peopleto empathise with users,generate new solutions andtest and adapt them over time.It calls for a blend of humilityand curiosity, patience andperseverance.”– Brenton Caffin, Director of Innovation Skills, Nesta11The job of leaders both inthe private and public sectoris becoming rather morecomplex.We predict that the leaders whowill succeed in the future willbe those who have the followingabilities:—The ability to ask the very bestquestions—The ability to choose theright methodology againsta particular problem andknowing how to govern thework, methodology dependent.Using the methods and tools inthis collection will help theseleadership qualities to emerge —not just in terms of hierarchy, butalso in how you as an individualcan effectively drive change.More and more we are seeingthat governments need to rethink what they do rather morefundamentally, and the problemsthey are tackling usuallycome with a higher degree ofuncertainty. In some cases, theproblem is not well understood atthe outset, let alone the solution.Newer approaches such as designplay well in this space.In the future, leaders will berequired to become more modalin terms of how they govern,switching between governancestyles depending on the nature ofthe problem and the methodologydeployed against it. It maybe an anxious time for manygovernments but it is also anexciting time. The need andopportunities for innovationabound!
IntroductionContents01 —Setting upfor success04 —Testing ideasthrough prototypingLaying the foundations to get yourproject off to the best startTurning your idea into somethingtangible you can experiment with02 —Gettinginspired05 —Preparing forimplementation03 —Developinginsights & ideas06 —OvercomingchallengesDigging deeper into your challengearea and gathering new perspectives12Identifying new insights and lookingfor new opportunitiesGetting ready to launch your idea inthe real worldSome common challenges and howyou might address them
Getting01 —InspiredSetting up for successNesta x IDEO
Setting up for successKey activitiesFirst things first — the flow of a design led project looks andfeels very different to other approaches you might be familiarwith.p.16 —Exploring thechallengep.17 —Creating achallenge briefp.18 —Case study: Mindlaband the Danish Ministryof Employmentp.19 —Planning yourproject14Introductionp.20 —Assembling your teamp.21 —Team rolesp.22 —Setting upyour foundationsp.23 —Running workshopsp.24 —Case study: LandTransport Authority,SingaporeWe mentioned in the introductionthat methodologies such asBusiness Process Re-engineeringare usually deployed when theobjective is to optimise what youalready do. Design led approachesare more often deployed in serviceof innovation, when you want to rethink what your policy is or how itis delivered to citizens. Innovationrequires inspiration and divergentthinking — meaning you'll exploremany different solutions. Ever satin a brainstorm with your teamand kept coming up with the sameideas over and over?The flow of a more traditionalproject generally looks and feelslike a convergent problem solvingprocess, where you focus on comingup with a particular solution. Thisis appropriate if you are lookingto improve what you already do,for example by increasing theefficiency of processing incometax returns. You will already havea lot of knowledge and experiencein the area and not seeking tomake fundamental changes. Whenyou are looking to completely rethink an area — for example if apolicy is simply not achieving yourdesired outcome, or you are feelingoverwhelmed by negative citizenfeedback on a service you deliver— the flow of the project will bea combination of divergent andconvergent thinking.
Setting up for success“We are heavily programmed at work tohave the answers to problems, and tohave them as quickly as possible. But notall problems are created equal. Divergentthinking is critical when you are lookingfor very new solutions. This can feel veryuncomfortable at first; you have to getused to the fact that you won’t have thesolutions in the early part of your projectand you may have a feeling of uncertainty.With practice and experience though, thisway of working becomes second nature.”– Andrea Kershaw, Partner, IDEO15
Setting up for successExploring the challengeYou know the challenge area youwant to address, perhaps eventhe problem you want to solve.But is it the right one? Step backand open it up by thinking aboutit from different angles.You think you know what the problemis. It’s simple, right? But sometimeswhat at first seems to be the issueis just a symptom of somethingdeeper. It's important to see thingsthrough fresh eyes, and to open upyour challenge by thinking aboutwider issues and influencing factors.Examining it from a number ofdifferent angles can help you uncoveralternative perspectives, and this inturn will help you create a strongerbrief for your project.Doing this as a group helps bringeveryone behind the problem fromthe start. You may also think aboutinvolving other stakeholders such asservice users or staff.16Steps01With your team, identify thespecific issue you want to reflecton and why you think it isimportant.02The key aim here is to capture,compare and discuss differentviewpoints on the problem. Youcan then review the notes anddiscuss with your team memberswhether you are making the sameassumptions, and whether you areframing things in the same way.03Discuss and write down on Postits who it is a problem for, andwhat social and cultural factorsshape the problem. Think aboutwhat evidence you have thatthis particular problem is asignificant one that it is worthinvesting in.04Now, taking your notes intoaccount, explore different waysof viewing the problem. Canyou look at it from differentperspectives?05This exercise might lead youto ‘reframe’ the problem youinitially addressed, whichcan then offer clues as to thedirection of your project.
Setting up for success17Creating a challenge briefGreat briefs drive greatoutcomes, so create onethat truly tries to defineyour challenge area, setsthe course and frames theopportunity space.Having explored your challenge,it’s then important to align on achallenge definition as a team thatexcites, inspires and ensures focus.If a challenge brief has strongfoundations and is bought into bythe team, then it's more likely thatit will be referred to throughoutthe project. A good brief centralisesthinking, maintains intent andhelps keep everyone on trackas
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