Kane Final

Sapient
Summary of experience modeling research findings and implications
Office of the e-Envoy for
ukonline
October 2001
Contents
5 Introduction
Introduction Approach Document Overview
10 Findings
Introduction General Principles e-democracy and e-security Modes Qualities of Service Trust Relationship Map Evolution of Expertise
25 Experience Models
Introduction Experience Model - Special Needs Experience Model - Redundancy Experience Model - Student Loan
39 Opportunity Maps
Introduction Special Needs Redundancy Student Loan
47 Generic Context Types

Introduction Life Journey Life Transition Simple Event
61 Moving Forward 65 Appendicies

Groundhog Findings Participant Profiles Core Assets of Government Strengths of Online Transactions Working Examples
Introduction
Introduction
The fundamental challenge of the Office of the e-Envoy is to change the behaviours of UK citizens. Understanding citizens' perceptions of and experiences with online services, their attitudes toward public/private partnership, and the UK government itself are central to this challenge because they all affect the ways in which people approach government. Ultimately, ukonline will be a success when UK citizens and those who support them use it regularly and find value in using it. Toward this end, Sapient's Experience Modeling group has been conducting research for the Office of the e-Envoy to inform identification and development of key online transactions and to provide insights into developing the ukonline environment as a whole. By identifying the main attitudinal and behavioural characteristics that define people's experience with government in specific issue areas, and their perception of and experience with online channels, our research can help shape ukonline into a valued and well-used service channel. The project has been conducted in two phases over the last eleven weeks. As will be outlined in the following pages, this document summarises findings and implications from both phases.
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Introduction
Approach
In Phase One of the research, we stated that the most valuable services for government to provide online lie at the intersection of three domains: online transactions in general; government transactions; and non-government (private and voluntary sector) transactions. During Phase One research, we built an understanding of the nature of this intersection using a combination of research techniques. Through context research, we identified, from a user perspective, the key characteristics of online transactions. Through field research at eight governmentrelated locations we explored the experience citizens have of dealing with government in the physical world, focusing on points of pain and areas ripe for improvement in the current experience. In talking to users during Phase One research about the ways they engage with government, we recognised two characteristics that have the greatest impact on their experience of the interaction - the complexity of the transaction and how expected or unexpected the situation was. (See landscape model opposite.)
For Phase Two of the research, we identified three issue areas or situations that represent a range of services and that have the potential to benefit people through online delivery. These situations include applying for student loans, being made redundant, and caring for and applying for benefits for a child who has special needs. In addition to exploring these areas, we expanded on Phase One work by asking participants about simple transactions with government. During Phase Two research, we conducted in-depth interviews with nine people from across the U.K., in their homes, to understand the larger context surrounding each of the situations and to identify where and how government and other services fit within these situations.
Through analysis, we identified the opportunities to support and enhance their experience of government through both online and offline means. We also conducted a series of web shadowing events with our primary participants as well as three other participants, and asked them to give us their impressions of the ukonline site as compared to other valued sites. These more tactical findings fed directly into Project Groundhog's current site re-design. In this document we discuss the findings that have emerged from our analysis of field research data and present our recommendations for ukonline to improve government-to-citizen interactions.
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Introduction
Document overview Below is a brief description of the five main sections of the document. Each section contains several components; each section builds on the others. It is the combination of the components that adds up to the overall recommendations. Findings In the first section, we discuss the findings or general principles that we identified in our analysis of the data and that apply across all of the participants. We also discuss the attitudes people have about their relationship with government: General principles Attitudes about e-security, e-democracy and participation in government. Modes (user behaviours and strategies related to their interactions with government). Qualities of service. In order to describe user experience relative to two key issues - trust and learning we have drawn on the findings from Phase One and Phase Two to create two models: Trust Relationship Map Evolution of Expertise Experience Models In the second section, we present three Experience Models, or highlevel representations of how people approach government when involved in each of the issue areas. Special needs children Redundancy Students loans The purpose of the Experience Models is to articulate the complexity of the experience citizens have of interacting with government in each of the situations in a simple, yet graphically rich format. Opportunity Maps The Opportunity Map is a tool that identifies opportunities to support areas of current user experience not previously targeted. We have built the opportunity map by isolating the key dimensions of the user experience - the way users approach interactions with government and the qualities of service government can employ. Context types By comparing the interactions individuals have with government within each specific issue area to other government interactions, we have generalised to issues and related interactions that are of a similar type. We call these likeissues "user contexts." These three context types are: life journey life transition simple event The descriptions of the context types can be used as a guide for generating solution ideas for better supporting other government interactions. Appendices The appendices include some previously delivered material as well as more detailed versions and supplements to parts of the main body document: Findings for ukonline (tactical recommendations delivered to Project Groundhog) Participant profiles List of core government assets List of strengths of online transactions Working examples of Opportunity Map solutions and the results of workshop idea generation
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Introduction: Document Map
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Findings
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Findings: Introduction
Findings: The Building Blocks
Introduction to findings While our in-depth research focused on how people experience government in the context of a larger life issue, it also looked at how they relate to government in general. As a result, we have a broad understanding of preferences and needs of users in their relationship with government, as well as an understanding of behaviours and attitudes that surround that relationship. This section details those findings.
General Principles Findings and recommendations based on current areas of users' satisfaction or frustration. e-Security and e-Democracy Attitudes users have toward online channel as a means of conducting transactions or participating in the democratic process. Modes Users' behaviours and strategies for achieving desired results around particular areas of concern. Qualities of Service User-driven service imperatives for providing satisfactory interactions in their dealings with government. Trust Relationship Map A model characterising how individuals shape their attitudes related to trust or mistrust in institutions or companies. Evolution of Expertise A model that shows how users move from novices to experts in a subject area and how they move from inexperienced to experienced in processes.
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Findings: General Principles
General Principles
While some of the findings from the research were specific to a particular process, we identified a set of over-arching principles that apply across interactions as best practices for government. In this section, we review the general principles that emerged from the fieldwork, and the implications of these principles.
Connection and control Moving the control horizon People are more likely to engage with government when their concerns are immediate and affect their daily lives. Where possible, make use of locations and facilities associated with local and immediate concerns as avenues for promoting ukonline and bringing people to the site. When people relate to government they do it through the local because it is more relevant to them, and they feel that they can have more influence in this sphere. ukonline should enable easy connection to local government services, local elected representatives and local facilities. People value person-to-person relationships: in one-off interactions they are able to gain more immediate feedback and responses; over time they are able to build trust and a shared history.
Where it is not possible or desirable to replace people with online services, there is still significant opportunity to facilitate the relationship between people by creating access to shared information and giving citizens access to more empowered support people. People want more control over their personal information. Allow people to decide if and how they want to share their own information. Make it easy for them to do when they are ready, and let them know how widely information will be shared. Information online empowers people when powerful search engines, clear content structure and effective filtering accompany it - this helps people to get the information that they need when they need it. Making information accessible is a critical part of putting information online, not only in its breadth, but clarity and relevance to the user. There is an opportunity to provide a wide array of information, clearly presented and discretely searchable.
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Awareness and learning Supporting transitions from novice to expert People come to government with varying levels of experience and frameworks through which to understand interactions with government. ukonline can support both experienced and inexperienced people engaging with government. For inexperienced people, it can make the processes of government more transparent and provide guided paths to completing transactions. For experienced people, it can facilitate rapid access and completion of transactions by enabling them to use their prior knowledge more effectively. People can find it difficult to keep track of current government policy in areas where it is relatively dynamic. Make people aware of changes and help them to understand how it impacts them. People have different learning styles. Many people want information and instruction when and where they need it rather than all at once.
Provide people with different options when guiding them through a process. Give them a view to the process and provide guidelines at the places in the process where they are needed.
Relating to government Improving relationship with citizens by delivering consistent and competent service People generally are well disposed towards government and trust its intentions but they do not necessarily trust its competency to deliver services and transactions. Focus on quick wins that demonstrate marked improvement in the government's capacity to deliver efficiently. Focus on the users experience of efficiency when building more effective links between government departments so that "joinedup" infrastructure can begin to have an impact on citizens and various departments. When people come to government they have a particular problem or need in mind, one that relates to their relationship to government. Government should focus on its core competencies by improving what it currently provides, and building on its brand values, rather than competing with the private sector and trying to move outside the realm of government.
Creating networks Making strategic and responsible connections People are concerned that some public/private partnerships compromise the impartiality of government. Focus on public/public partnerships to help establish trust in the notion of joining up. Create a simple, nonthreatening and effective pilot for online partnership to allow people to begin to re-conceive the idea of public/private. Strengthen the connections among government, quasigovernment, and voluntary organisations in the "joining up" to help alleviate concern over conflict of interest. Peer networks can be important and trusted sources of information and knowledge. Government has the resources to connect citizens with each other and can use this capability to citizens' benefit.
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Findings: General Principles

People often experience government as a "black hole," and as "far away" because of a perceived lack of responsiveness, accountability and interest. People want to know who is listening and who is responsible when they contact government. Where it makes sense, give people a view into government structures so they have a better understanding of how it works and who is accountable to them. People often experience government through interaction with individuals these individuals can provide a good or bad experience, which in turn can reflect on the agency or department they are representing. Experience with ukonline will reflect on the whole of government. As a publicfacing service that provides an overall view of government, ukonline should provide a consistent and effective experience for people. ukonline can also provide a forum that allows people to share both their 'offline' and online experiences with government. This forum could in turn provide government with important feedback on how to improve its services. Peoples' access to services and benefits that they are entitled to can be obstructed or enabled depending on the behaviour of the individual who controls access to a process or service ("gatekeepers"). ukonline can give people equal access to information about services and benefits and thus empower people in their interactions with process and service "gatekeepers".
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e-Security and e-Democracy
As part of the fieldwork with the nine participants, we explored notions of e-democracy and e-security. In the following discussion, we outline the key findings in these areas.
e-Security In validation of findings from Phase One research, participants in Phase Two have stated that they don't mind giving personal information to government as long as they are confident that people outside government (e.g. other private citizens) do not have access to their information. They were also more prepared to give financial information to government than to a commercial site. The commonsense explanation they give for this is that government already has information on them and that if giving out information facilitates better interactions then people are for it.
"I wouldnt give my details online if the site looked dodgy and unprofessional." Sam
Perceptions about security on the Internet vary according to level of experience people have with using the Internet. Those who are less experienced with the Internet and who have never purchased online, are wary about giving out their credit card details even if they are comfortable giving credit card details over the phone. Additionally, the level of confidence people have in a site relates to the level of trust they have in the site and the company backing it. The more trusted online brands are those that either have a physical presence in the world (e.g. high street banks or Sainsbury's) or are familiar online brands (e.g. Amazon).
People stated that the presence of online security measures such as security padlocks and privacy claims and the use of passwords before entering personal pages helped to allay worries they might have about security. This was true even when people did not understand what these really meant or how they actually worked.
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Findings: E-Security and E-Democracy

e-Democracy Participation in the national Aside from voting in national elections, people were not likely to get involved in national issues. While most people felt it was important to vote, many felt that voting didn't make a great deal of difference. People outside of London tended to equate central government with London, and felt that Westminster was distant and far from the concerns of their everyday lives. Participation in the local While only a few participants said they were involved in community or political activities, those who were did so because of issues that were immediate and directly related to their core concerns- the more profound the issue the more motivated they were to get involved. Several parents of special needs children, for example, have attempted to influence government policy through letter writing campaigns and working with advocacy groups. A forty-nine-year old mother got involved in the community centre and with the local school authority by writing a letter to her local council about the under use of the local community centre. Several years ago, she campaigned to keep the local public pool and library open. One of the men was a school governor as well as a parent and had been active in campaigning to the local council to have parking rules changed outside the local school. In most cases, the concerns are local, and the channels for addressing them are also immediate.
Alyson expressed a desire to talk to her local council about the condition of roads after she had an accident because of a pothole
"How do they know what's going on when they are so far away." Stephen
People also felt generally that it would take too much effort and energy to get involved in political issues. Most believed individuals couldn't be heard at a national level (and were therefore sceptical of the unspecified audience for their concerns or comments in the CitizenSpace section of ukonline.) People felt that local representatives would more likely be heard, and that they would be more effective in gaining a critical mass at a local level than expressing individual opinion directly at a national level.
They were also more likely to get involved if they felt they could make a difference, and if they felt they could afford the time to do so. While the local is significant, they may go through outside channels to access it. One student searched in vain on the Ukonline site to find his local CAB because he believed that there he would be able to complain directly about a recent incident of racism in his neighbourhood. He suggested it would be more helpful if he could search the site using his postcode. The devolved governments of Scotland and Wales were also important to the people who lived in those countries. They felt that these governments were more in touch with what was needed in their area and they also felt that they heard more about what was going on. Both of these factors made them feel more involved with the devolved government.
People become more involved with government the more an issue impacts them.
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Modes
User modes describe how people approach their interactions with government. A mode is a unique set of motivations, concerns and attitudes which inspire distinct behaviours and strategies. During the course of an interaction with government, a person may act primarily in one mode or shift between modes. In this section, we provide a brief description of each of these modes.
In Phase One, we identified three user modes: Seeking Guidance, Getting It Done, and Monitoring. Through analysis of our fieldwork data in Phase Two, we have expanded these user modes: Becoming aware Subject learning Process learning Creating networks Getting it done Monitoring
We will use these modes in a variety of ways throughout this document. In the section on the Experience Models, we will annotate the Experience Models for each of the focus issues with the appropriate user modes for that stage in the process. We will also use these modes as one axis of the Opportunity Maps to highlight where there is most opportunity for government to enhance the users' experience through ukonline.
User modes evolve from those in Phase One
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Findings: Modes
Becoming aware People gain initial awareness about the existence of an issue, fact, event or responsibility. They often don't know what they don't know. Becoming aware may happen incidentally or serendipitously through contact with other people or coming across information.
Subject learning Subject learning involves building up knowledge about the subject matter around a particular issue. It is about the acquisition of knowledge- the what. Other people who are more knowledgeable are important mediators for subject learning. Authoritative information from a trusted source is important. How far people move from novice to expert in the subject area tends to depend on the extent to which the subject impacts their life.
Process learning Process learning involves building up the frameworks for understanding how to engage with institutional structures and processes. It is about the acquisition of life skills. - the how to. The need for process learning is often closely related to life stage (e.g., young people are more likely to be inexperienced in processes in general.) Process learning can be more easily generalised across other process experiences than can subject learning. It is reinforced across multiple transactions. It is likely to involve asking people with prior experience and/or learning by trial and error.
Getting it done Getting it done includes the core activities in completing a transaction (e.g., acquiring forms, collating information, filling in forms, submitting payments, providing proof of identity or furnishing other supporting documentation). Getting it done is usually driven by a clear outcome, though the path for achieving the outcome might not always be clear. It may involve iterations to get the information complete and accurate.
Creating networks Creating networks involves setting up a system of people that an individual can rely on around a particular issue. Networks are important as sources of information and for knowledge sharing; they support both process and subject learning. Networks are important sources for validation of experiences, and are invaluable sources of peer support. Creating networks is more critical for more complex circumstances and more consuming issues.
Monitoring Monitoring involves having visibility to a process that is in progress. For simple transactions, monitoring takes the form of feedback or simple assurance to people that they have done their part of the process correctly. For more involved or multi-stage processes, it can also involve monitoring the progress of the transaction. Monitoring in complex processes can involve understanding who is involved in the process, what decisions they are making and why. Monitoring is related to process learning as it allows a view to self-progress and facilitates understanding of a process. People want to know who is responsible and what will be done when.
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Qualities of Service
In Phase One, we identified five qualities of service that people want from their transactions with government: accessibility, continuity, consolidation, responsiveness, and confidentiality. From further analysis of the pain points and strengths identified in the data from this phase, we have refined these service qualities and phrased them as proactive statements:
Create trust Make it relevant Heighten responsiveness Make things accessible Facilitate better consolidation Ensure continuity
These qualities provide general guidelines for offering government services and are used in the Opportunity Mapping section where they form the second axis of the Opportunity Map. This will give weight to when and where each of these qualities of service is the highest priority, and conversely, the circumstances where each is less critical.
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Findings: Qualities of Service

Create trust Create trust at the point of direct contact as well as at the institutional level. Trust involves elements around intention, information, and process. Understand which factors are most relevant for particular transactions for generating trust. (These are discussed further in the Trust Relationship Map.) Make it relevant Understand that people are more likely to engage with government when an issue is local, immediate, relevant and has high personal impact. Link in to how notions of "the local" play out for particular transactions. The local can be geographical or it can be interest-based. Make use of associations of related activities for giving people information. Provide people with information in language that they can understand and that is relevant to where they are at in the process (and where they are at in process and subject learning). Heighten responsiveness Anticipate needs and respond proactively with relevant solutions. Where possible give named individuals or contacts points who are responsible. Make clear paths of accountability and traceability. Follow through on promises of performance and accountability. Make things accessible Provide access to the right information in the right form at the right time in the process. Set clear expectations for how to address an issue and what the process is. Give people visibility into processes when necessary. Give people choice about when, where and how to access government services, and make channel and multi-channel options clear. Facilitate better consolidation Provide people with a consolidated view of their own transactions. Enable consolidation of information across different levels of government (local and central) as well as across government departments. Support multiple interactions around similar issues by re-use of information . Create opportunities for citizens to bundle transactions, and take advantage of online resources to accomplish multiple tasks at once. Ensure continuity Create a relationship view for the person dealing with government, so that they are "recognised" from one transaction to another. Provide people with continuity of identification - do not treat each transaction as if brand new. Provide continuity of people and contact points where possible; where not possible provide continuity of information when people and contact points change. Provide consistency of service and information across channels.
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Trust Relationship Map
Description and use Trust was an underlying issue for all the participants in Phase One and Phase Two. This map shows, from a user's perspective, the components that go into building a relationship of trust between a user and a company or institution such as government. These components include: 1) the intention of the institution (does the user perceive that the institution's interests align with their own?) 2) the product or information delivered by the company (is the information and product of a high quality?) 3) the transaction or process that connects the user to the company (are the processes reliable and consistent?)
On the map the terms lying outside each component area refer to the qualities that best guarantee trust. When interacting with a company or institution, people use one or all of the three components to measure the degree of trust they have in an institution. If one of the three components of the map is out of balance, a person's trust in an institution can erode. Conversely, a user can hold different trust attitudes around these components - for example, they might trust the institution's intentions but not their competence in conducting transactions.
The user is placed at the centre of the map surrounded by factors that they bring to the relationship and that influence how they will measure trust. For example, if a person is interacting with a company by choice and has had good prior experiences with the company or recognises the company's brand, they will be more likely to place their trust in the company and in the reliability of its processes and quality of its products. The person's trust in their own knowledge and ability to engage with the institution is also a factor in the relationship. The concentric rings close to the centre of the map signify the more direct contact between users and institution, either through the individuals who represent institutions or through direct transactions. The rings at the outer edge refer to the relationship a person has with the institution as a whole.
Janet does not trust public private partnership as she feels it undermines governments neutrality
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Findings: Trust Relationship Map

For the three issue areas we researched, (Special Needs, Redundancy and Student Loans) the specific character of each issue affects the relationship of trust between a user and the government differently. This is because, when people are assessing their trust for government in each issue, they place emphasis on different components of the trust map depending on the priority of their circumstance. For example, parents who are trying to get benefits for their children with special needs, expect government to act with good intentions, from a non-profit motive, and in alignment with the needs of the child. When, as was often the case with our participants, an individual representative of government acts as an obstacle in the statementing process, trust in the government can erode. In the case of student loans, students measured their trust in government according to the reliability and efficiency of the process and to the competency of the individuals handling the process. When generating opportunities for improving the experience of interacting with government, the Trust Map can be used to determine where there is a lack of trust or risk of trust eroding. This then becomes an area of focus in redressing the balance of trust in the relationship or in increasing the trust that already exists in order to improve the relationship between citizen and government. In the Experience Modeling section, we will show how the Trust Map can be used as a way to determine which components of the trust relationship are prioritised in different contexts.
Trust Relationship Map
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Evolution of Expertise
Description and Use We have identified two areas of knowledge that are most important for government interactions knowledge of government processes and structure and knowledge of specific issues. These areas of knowledge correspond to two of the user modes discussed in the previous section - subject learning and process learning.
The Evolution of Expertise matrix illustrates the inter-relationship of both types of knowledge. Represented on the horizontal continuum is the level of experience that users bring to their interactions with government. Represented on the vertical continuum is the user's expertise with the specific subject or issue they have come to government about. Users can move from a place of inexperience to experience with government processes and structures and a user's expertise can evolve from novice to expert in a particular subject. In the body of the matrix, at the points of intersection of the areas of knowledge, lies the user's aggregate subject and process knowledge. Process knowledge is often closely related to the more general acquisition of life skills. It is also important to note that this evolution of expertise always takes place within a social context since learning is inherently socially mediated, for example through peers or through the interactions themselves.
Different transactions require different levels of experience and expertise for optimum engagement. As such, it is important to understand where users typically are on this matrix for each type of government transaction and at different stages in the transaction or process. This gives insight into how users can best be supported where they are and/or guided to the next level. A first time student loan applicant, for example, will need guidance in the process of applying for student loans because they have no prior experience in this area nor do they have any knowledge of the subject. As they become more familiar with the process, they will be able to take more control of the loan process and even of other processes that are similar.
I want simple and direct answers on a need to know basis Steven

Findings: Evolution of Expertise

We also found in our research that people who have different levels of expertise in a particular subject or a process may choose to interact with government in different ways. For example, parents of children with special needs, who become experts in a subject and are very experienced with the related government processes want to be treated as experts. These users may also be willing to share their knowledge with other parents who are less experienced in both areas, making them an important resource, given the social context of learning. In the Experience Modeling section, when discussing the main components of the experience for each issue area, we will show how the evolution of expertise matrix can be applied differently to student loans, redundancy and special needs.
Evolution of Expertise matrix
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Experience Models
Experience Models
Introduction
In the next two sections, we introduce the tools (Experience Models and Opportunity Maps) that the Office of the e-Envoy can use to generate ideas for how to better support the experience of citizens in the three issue areas we have researched in-depth. (Individual profiles of the participants in this research can be found in the appendix.) In this first section, we introduce the Experience Models that correspond to the three issue areas we studied. These models describe the key components of the current experience, focusing on how people interact with and approach government relative to the issue area, on the main pain points of these interactions, and on how government fits within the user's larger context. In this section we reintroduce the user modes from the General Findings section, and detail how those modes are enacted in each of these user circumstances. Through this overlay, we begin to identify gaps in the current experience and point to areas that are ripe for improvement. Together with user imperatives for qualities of service, these models, and the detail they supply, will build toward Opportunity Maps for each area.
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Special Needs
Our research focused on the experiences of the primary care givers of children who have been diagnosed with special needs. Although the three participants differed in terms of the degree of involvement each had with the government and the amount of support available to them through official and informal channels, they all followed a similar path of learning. This path took them from learning what the problem is, to learning about the logistical and procedural obstacles and how to overcome them, to learning about the condition itself and the best types of treatment.
Learning that a child has special needs is a life-changing event for parents, and has repercussions for how they conceive of and experience family life. It is an unexpected event that launches them into a series of unplanned-for circumstances. Their changed lifestyle is characterised by a need for high levels of logistical and emotional support, and very little time.
Interaction with Government Relationship develops over years High contact Many touchpoints (with people in multiple departments) High reliance on individuals
Having a child with special needs requires dealing with multiple parties and possessing a high level of organisation; parents have many files and folders they use to mange information about the child.
Trust relationship Trust in this relationship with the government is deeply polarised. With parents highly dependent on certain individuals (who represent government) for information related to both the process and subject, they often waiver between feelings of trust and mistrust. Because the stakes are so high, the potential for mistrust is great, particularly when people perceive that government representatives are not attempting to achieve the best outcomes for a child. Every parent we interviewed expressed this feeling of mistrust when they felt government representatives were withholding information or obstructing the process of statementing, for example. In this relationship, trust centres around intention, and specifically whether the individuals who are making decisions on behalf of the parent(s) have the child's best interest in mind.
Evolution of expertise Due to the high impact and breadth of the circumstance of having a special needs child, parents have to evolve from a position of knowing little to becoming experts in their child's condition. Though parents may initially have varying levels of experience in getting things done through legal and official channels, the situation forces them to be highly familiar if not expert in these areas. In fact, in order to ensure the best outcomes for the child, parents must become near experts in both subject and process. While the people we interviewed complained that they wished they were given instructions in "layman's terms" at the beginning of the process, they showed (in interviews) a greater-than-average understanding of the language and procedures of government, health and education authorities.
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Experience Model: Special Needs
Pivotal people While involved in the process of statementing a child or applying for benefits, parents of children with special needs experience government through interactions with local government authorities and support people employed by government (health visitors, speech therapists, parental supporters, etc.). Parents also seek help from support organisations (often made up of volunteers) who may specialise in benefits processes and/or a particular condition. From the perspective of the parents we interviewed, government representatives and independent supporters fall into one of three groups - people who are "on my side," people who act as gatekeepers, and those who are "against me." "On my side" This group consists of independent support people who had been contacted through support organisations, members of the organisations themselves, or parental support people (often affiliated with government) assigned to the case. When discussing interactions with people in this group, parents characterise them as, first and foremost, on the side of parents in the fight for what's best for the child. Parents perceive these individuals to be valuable sources of latent knowledge about process, which is highly valued.
Gatekeepers This group tends to be people in positions of authority with the power to make decisions, referrals and recommendations in the child's case. When discussing their experience of people in this group, parents characterise their support as more passive. Although gatekeepers can offer assistance, parents often have to request this assistance. Parents feel that gatekeeper types have a mixed allegiance or are too overworked and stretched to provide any substantive or active help. "Against me" Members of this group are usually people who are in the position of making decisions affecting the child's education (e.g. educational psychologists, school administrators, and members of the LEA statementing board). Parents perceive people in this group as having agendas that conflict with and work against what parents feel is best for their child. In stories about interactions with people in this group, parents characterised them as ignorant of the best solutions, and arrogant and capricious in their decisionmaking.
So What? Meet them where they are Over a period of time that varies by individual, people in this group make a significant shift from having little to no knowledge about the logistical processes that surround statementing and applying for benefits, and about development and education options for their child, to being sophisticated and knowledgeable about processes and resources. Parents need steady instruction and support to begin with, forms and procedures expressed in layperson's terms that are annotated and easy to understand. As they are involved in a process of lifelong learning, they would also benefit from a glossary of terms and instruction surrounding the processes that they must deal with over time.
I asked my health visitor why she didnt tell me I was entitled to a new buggy for Lauren. Jenny
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Redundancy
Here our research focused on the experiences of people who have recently been made redundant and are now looking for another job. The three participants all took personal responsibility for finding their own jobs. One had direct contact with government to sign on for Job Seekers Allowance. One had visited a Job Centre once but felt he was treated "like a piece of dirt" and so refused to go back. Even though they differed in terms of where they lived and the type of work they wanted, all felt that the Job Centre did not have jobs for them. All looked on the redundancy as an opportunity for positive change in their lives (to leave a job they didn't like, to have a break or to change career direction). The longer they were out of work however, the more difficult it became to remain positive.
Becoming redundant and looking for a new job is an all-encompassing transitional event but only for a period of time until re-employment.
Interaction with Government Government as a provider of benefits and assistance in finding a job Indirect relationship - redundancy processes within a company take place against a backdrop of government legislation Little or no direct contact with government while looking for a job Single regular touchpoint via Job Centre if signing on Other touchpoints if moving into contract work or setting up own company
If I cant find a job in a couple of months Ill consider moving the family or taking a lower salary. Neil People who are made redundant want to make sure that they have covered all possible job avenues. They have a great deal of information to juggle.
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Trust relationship Trust in this relationship with the government centres around intention of the staff at the Job Centres who people feel treat them with disrespect and suspicion. Trust is also connected to how people view the information that is provided at the Job Centres where people feel there is no job for them.
Evolution of expertise People going through redundancy and re-employment are likely to have varying levels of experience in getting things done through official channels. Depending on how long they have been out of the job market, they may have some familiarity with job seeking. People we interviewed were largely selfmotivated and able to educate themselves about the job market. They only needed to be generally familiar with both bureaucratic processes and with job strategies to do well enough. For those people who are less self-motivated, resourceful and experienced, bureaucratic processes need to be clear and easy to follow.
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Experience Model: Redundancy

Pivotal people Job Centre: These people experience government largely through interactions with people at the Job Centre should they go there. None of our participants reported a positive experience with Job Centre employees. Job Agencies: Some people use job agencies and have varying experiences. Positive experiences occur when people feel like the agency people are on their side, follow up after interviews, and proactively keep them in touch with current job options. Colleagues: Our participants tended to keep in touch with colleagues who were made redundant at the same time, and met with them regularly for social activities and for sharing job opportunities. Family and friends: Local networks of family and friends are also key support people and can also provide avenues into new jobs. So What? Help them ensure they have all options covered This group does not generally expect government to find them a job but they do see a role for government in facilitating their job search. Suggestions included providing a clearing house of job agencies and online job sites, and providing advanced search facilities over this collection; allowing them to search locally for appropriate work. Change the Job Centre experience Staff can be trained to proactively help people identify possible job options. One suggestion was for an Internet caf style facility and supportive staff on hand to help as needed. Make it clear which job and salary levels the Job Centre jobs are geared to. Otherwise provide services adapted to different job and salary levels.
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Student Loans
For this issue area we focused on the experiences of people who have taken out student loans at various stages in their student careers and during a period of change in government policy on financial support for students. Even though each participant was in a different place in the student loan process and affected by different government policies, they each had similar levels of low awareness about student loans, and in particular, when and how to pay them back. One of the most important features of the student loan process is that it occurs at a time when people (or at least, more conventional, younger students) have less awareness and knowledge of financial and government processes. This lack of awareness and life experience makes it difficult for students to know how and where they may need guidance. It also makes it difficult for them to navigate the process, and in particular, how to manage communication among
different parties involved in the process (e.g. LEA, parents, bank, university admissions, housing office). While taking out a student loan is planned, the process occurs during a period of life characterised by change and a need for high levels of support, due to low levels of experience with similar processes. As was the case with the participants we interviewed, parents often play an important role in facilitating the process, either by submitting financial information and/or by taking a lead in completing the application. While the level of support and guidance in the process that was available to users through official channels was similarly minimal, the levels of support students received from informal channels (such as parents or friends) differed from one participant to the other. As government is currently in the process of changing the student loan policy, it is a good opportunity to improve and simplify the process.
Interaction with Government Relationship continues and develops over several years as students begin to pay back loans Low contact in this process, but interactions with government in other areas may increase Touchpoints mainly indirect and through official government forms Though high need for guidance from government, overall lack of experience in this process and other government processes makes it hard for students to understand how they need help
The student loans process occurs over a period of many changes: Sam shows us the folder of important stuff, which he has taken with him in the various places he has lived.
Alyson is unclear how and when she will pay back her student loan and had problems understanding the statement she received.
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Trust Relationship Trust in this relationship with the government is focused on the efficiency (or inefficiency) of the process. As most students don't yet have a framework in place for understanding the student loan process or government processes overall, the process can feel inaccessible. Once the application is submitted students have a need to follow the process of the application so they know what to expect and when to expect it. Trust in the process is undermined when people have to submit the same information on an annual basis. Trust is also undermined when people become aware of having to repay their loan because they feel they have not been given sufficient warning or enough guidance on how they can repay it.
Evolution of Expertise Due to their lack of experience with government processes, life management skills, and subjects such as finance, students need to learn a lot of things in tandem, or call on the experience of their parents or friends, in order to complete this process successfully. While they are learning, they often feel they have very little control over the application process. By the end of their term of study those receiving a student loan have often reached a point of familiarity with a specific stage in the process. At this point, they must also learn about and become familiar with other stages in the process (e.g. paying back the student loan). Leaving university also signals a start to a new period in their lives - entering the work force. The transition from
student to full-time worker is made easier if people are able to apply the knowledge they've learned to other aspects of their lives, such as managing their finances and interacting with government on other issues.
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Experience Model: Student Loans

Pivotal people Currently the people who are central to this process are the applicant's parents and friends. Extended networks such as other family members and friends of parents can also play a role here. Parents: Parents are sometimes directly part of this process as they themselves have to submit financial information. The parent's role in the process can complicate matters as student and parents attempt to negotiate the areas in which the child can act independently and those areas where the parent continues in the role of training the child in "life skills." Friends: Friends play a role by informing each other about the loans and how to complete and monitor the process. Friends who have either gone through the process themselves or who have older siblings who have gone through the process can be important sources of knowledge. So What? Support what students need to learn. People in this group move through various life stages during the period when they apply for, receive and pay back their loans. There is a need to support them in building a framework of understanding that can then be applied to other government interactions. To support awareness, inform the potential applicant of the opportunity to apply while she is involved in related processes, such as going through the UCAS application process. Make the process visible Since student loan applicants often have little to no experience of financial matters or government processes they need to be treated as novices as they begin the process of applying. One way to familiarise them with the process and guide them through it is to give them a view (even a map or a picture) of the entire process before they apply so they have a better idea of what to expect. Reminding them of what they need to do and well before they need to do it and putting it in the larger context of the overall process will reinforce their learning. Likewise, showing them how to do it correctly while they are involved in doing it and using actual examples will make explanations more relevant and realistic. Support the supporters Since the applicants are not familiar with the process it is important to give support - in the form of information, training materials, glossary of terms, and any updates on policy changes -- to people, such as career advisors or teachers, who are best positioned to facilitate the process. Changing policy When government policy is going through a period of transition, as is the case with student loans, it is crucial that the impact of these changes be communicated to those who will be directly affected.
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Opportunity Maps
Opportunity Maps
Opportunity Maps
Experience Models describe the current experience of users and begin to identify gaps in that experience. The Opportunity Map builds on the Experience Model, and is used to identify opportunities for supporting areas of user experience not previously targeted. It exposes gaps in each of the experiences where people's needs are not being met, and starts to outline the ways in which government, given its core assets, can better support people both online and through other channels. Drawing from our analysis of patterns across the areas we studied, we have built an Opportunity Map by isolating the dimensions that play the key role in interactions between government and citizens. These dimensions include the modes, or the ways that users approach interactions with government, and the qualities of service government should deliver when interacting with citizens. Though there is one Opportunity Map blueprint, we have considered each issue area separately and created three unique maps showing the high and medium opportunities relevant to each issue. Opportunity Maps can be used as tools to generate ideas and solutions for how to meet needs and exceed the expectations of users in both the short and long term. In the Opportunity Mapping session held at Sapient on October 19th and attended by several representatives from the Office of the e-Envoy, the team demonstrated how to use the Opportunity Map as a tool for generating new ideas for improving the experience of citizens. In the appendix to this document we have included two working examples from the Opportunity Map that the Sapient team developed prior to the Opportunity Mapping sessions, as well as a summary of the solution example developed during the session. These can serve as guides for future generative discussions. They show the beginnings of a process that the Office of the e-Envoy can use as a structured way to identify the important interactions and solutions from a user's perspective. This section is divided into three parts, each part corresponding to a particular issue area. Each issue has two Opportunity Maps. One version of the map gives an overview of the opportunities we've identified. A second version provides a richer description of the current user experience within each highlighted intersection point, as well as the potential "changed" experience; the gap between the two represents the opportunity for exploration.
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Special Needs
Parents of children with special needs have to learn a great deal both about their child's specific condition and about how to deal with government on these issues. Since government has a broad contact base, we have identified that there is a medium level opportunity for it to help parents learn about their child's condition by putting them in touch with relevant contacts and information.
The government also has a high opportunity at the intersection of subject learning/process learning and making it relevant to help parents learn about government processes related to their child by making available benefits and resources visible to them. Both of these opportunities support parents of children with special needs by making things relevant to them. The following Opportunity Maps emphasises these and other opportunity areas.
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Redundancy
People who are made redundant have to cope with a large amount of information that they receive and gather, and keep track of all the jobs that interest them. Helping them to consolidate this information and making sure they have covered all the job avenues that they are interested in both represent high areas of opportunity for government at the intersection of getting it done/monitoring and facilitating consolidation. The following Opportunity Maps highlight these and other fruitful opportunity areas.
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Student Loans
Potential applicants for student loans often have low awareness of them, and of similar procedures and services. Making student loans relevant to them, therefore, helps them to grow in awareness and is a high area of opportunity for government at the intersection between potential applicants becoming aware and making it relevant to them. The following Opportunity Maps highlight this and other opportunity areas that exist for government.
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Generic Context Types
While our research has focused on specific issues, the findings around those issues point to ways in which we can start to generalise about issues that are of a similar type. We call these like-issues user contexts. In this section, we characterise three different user-related contexts and outline the ways in which people might want to interact and transact with government in each. These context types are: Life journey Life transition Simple event For each context type, we provide an overview of: The general characteristics of the context The nature of the relationship with government within that context The Trust Relationship and Evolution of Expertise issues The opportunities and recommendations While not an exhaustive nor exclusive list of user contexts, this approach begins to build a toolkit and a language for discussing other government services and how they might fit into the context of people's lives, and how they might be supported through ukonline. The Office of the e-Envoy can use these context type descriptions and maps as guides for exploring how to improve other relevant services and issues. In effect, they act as a filter through which to examine the viability of potential solutions.
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Generic Context Types: Life Journey
Context Type: Life Journey

Context definition: Key user questions: life-changing, all-encompassing journey "How do I negotiate with government to set up the environment I need to support this journey?"
Trigger Unexpected Can involve emergent partial diagnoses Circumstance is the focus of the concern with many related activities Steep learning curve to becoming an expert in subject and process Broad learning / both subject and process focused Process Unfamiliar and emergent Strong and ongoing impact on life Unpredictable processes and procedures Involves a myriad of interconnected and iterative processes Resource intensive (support intensive and service intensive) Information is fragmented, distributed, complex
Relationship with government "Government as gatekeeper" "Government as relief worker" Relationship derived from government's role as sole source of public sector benefits and services and its discretionary power to provide those benefits and services. Ongoing relationship created Can be adversarial at times Likely to involve multiple departments, agencies and levels of government that will change over time Goals based on lifestyle and well-being Heavy interaction, often on the phone or face-to-face Frequent touchpoints Multiple contacts within government Individuals play a key role in the delivery of government services Users develop expertise, often greater than that of government
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Trust Relationship: Trust is largely influenced by the perceived intentions of government, especially as experienced in direct contact. It is also influenced by the efficiency and competency of processes and transactions.
Evolution of Expertise: People can come into this life journey at any level of experience in engaging with government processes but are likely to be novices in the subject area. There is a steep learning curve where people quickly become experts in the subject and in government processes. They want to engage as experts in order to most effectively negotiate with government.
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Generic Context Types: Life Journey
Opportunity Map and potential solution filters: The key intersections and associated solution filters are: Getting It Done + Facilitate better consolidation/Ensure continuity/Make things accessible Provide a view of the whole process and everyone's role in it. Facilitate effective sharing of information and effective coordination of activity across the different agencies, departments and levels of government. Provide a consolidated usercentred view of information from across all transactions. Process Learning + Make things accessible Empower people in their interactions with government by making it easy for them to find out about services and benefits. Make the processes and procedures around those services and benefits visible and accountable. Creating Networks + Make it relevant/Make things accessible Support the supporters - make information available to both the citizen and the support people. Help people connect with other people "like them" to enable peer support and knowledge sharing.
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Generic Context Types: Life Transition
Context Type: Life Transition

Context definition: Key user questions: Going through a life transition event "What does government do in this circumstance?" "How can they help me?" "What's my responsibility?"
Trigger Event triggered Can be unexpected or expected when life event is planned Sets off a focused set of activities Medium to low learning curve Narrow learning / process focused Process Process defined by social convention and experience User context evolves according to inherent life event qualities, relatively independent of government Generally unfamiliar High impact on life for a limited time period Clear goals with variable processes Information is highly focused and goal directed Bounded in time
Relationship with government "Government as peripheral recorder or supporter of the transition" Relationship derived from government's role around notification, registration and providing support benefits. Transitional relationship created as needed Likely to involve one or more departments or agencies (as appropriate to the life event) Known interaction points with clearly defined goals Light interaction with government Can involve regular touchpoints Learning targeted life skills
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Trust Relationship: Trust in the relationship with government is mainly centred on the quality of the information received and on the efficiency of the processes or transactions involved.
Evolution of Expertise: People need to gain a good level of familiarity with government processes and some familiarity with the subject matter. They are likely to come to the interaction with some familiarity with government processes and may be novices or have some familiarity with the subject.
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Generic Context Types: Life Transition
Opportunity Map and potential solution filters: The key intersections and associated solution filters are: Getting It Done + Heighten responsiveness/Make things accessible Make each stage of the processes transparent and accountable. Provide guided support as many of these transactions will be "one-offs". Provide clear feedback at each stage of a multi-stage process. Process Learning + Make things accessible Make it easy for people to understand what government requires of them in this life transition. Make it easy for people to see what benefits might be available to them.
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Generic Context Types: Simple Event
Context Type: Simple Event

Context definition: Key user questions: Pursuing a goal or fulfiling an obligation "What do I need to do?"
Trigger Expected or unexpected Goal-directed activity or set of activities Outcome self-contained Learning curve dependent on life stage (steep for young people) Narrow learning / process focused
Process Process defined by government User context evolves according to institutional conventions May be familiar or unfamiliar Periodic attention required, momentary impact on life Clear and consistent stages and clear outcome Repeated cycles at regular, predictable intervals Information required is highly focused, goal-oriented Process may be logically or temporally associated with other events
Relationship with government "Government as vending machine" Relationship derived from consequences of pursuing a personal goal or fulfiling an obligation as a citizen. Simple transactional model e.g., complete form, supply proof, get back response Likely to involve single department or agency Ongoing relationship created through repeated transaction or through reciprocal obligation Light interaction, usually through mail or other mediated form May be regular touchpoints Part of learning life skills
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Trust Relationship: Trust in the process or transaction is the key area for building trust in this context.
Evolution of Expertise: People only need to move to being basically familiar with both the subject and with government processes to get by. Young people engaging in simple events are likely to start off being very inexperienced with government processes and also be novices in the subject area. Other people are likely to start off with some familiarity with government processes.
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Generic Context Types: Simple Event
Opportunity Map and potential solution filters: The key intersections and associated solution filters are: Becoming Aware + Make things accessible Take advantage of related contexts and known transition points to provide information and increase awareness Getting It Done + Making it accessible / Increase responsiveness Make the process explicit Enable people to complete transactions in a simple and convenient way. Provide good feedback at each stage of the process. Provide a choice of channels. Getting It Done + Ensure continuity Recognise people when they come and reuse information. Process Learning + Make it relevant/Heighten responsiveness Identify processes where people are more likely to be inexperienced and target guidance and support. Give guidance to people when interactions happen infrequently. For people familiar with the process, placing the significant modes of Becoming Aware (reminding in this case) and Getting It Done close together serves them well, e.g., an email that reminds a person about a payment due, and gives them the ability to pay it immediately online.
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Moving Forward
Moving Forward
Moving Forward
Working toward a Service Innovation Process for developing ukonline In approaching the challenge of how to develop the ukonline site, it is instructive to look at the nature of "tame problems" and "wicked problems" as defined in the work by Rittel and Webber (1973). The Office of the e-Envoy is essentially dealing with a class of problems called "wicked problems". Wicked problems are situated in an inherently complex social domain where there are multiple stakeholders, diversity of opinions and evolving constraints. These problems can never be definitively characterised nor is there a single definitive solution. Understanding of the problem and solution co-evolve - learning more about the problem only comes from developing, reflecting and iterating on solutions. As such, solutions can never be right or wrong; they can only be better or worse, good enough or not good enough. This is in contrast to "tame problems" that can be completely specified up front and can be solved by more traditional problem-solving techniques. Many technical problems, however difficult, are essentially "tame". They can also be objectively assessed (a website loads within N seconds or it doesn't). This is not the case for wicked problems.
In developing the ukonline site, the Office of the e-Envoy is dealing with the wicked problem of how to provide an online service to the diverse citizen base of the UK, a service that involves multiple stakeholders with diverse opinions and needs - government departments and multiple tiers of government and other agencies - in the context of constantly changing political, financial and technical constraints. Dealing with such wicked problems requires different problem-solving techniques. The Office of the eEnvoy has already learned more about the provision of online services from the first iteration of ukonline, which in turn has been fed into the short-term changes currently being implemented by the Groundhog team.
The work presented in this document - in particular the Opportunity Maps and the Context Types - represents a suite of concepts and tools that can be used by the Office of the e-Envoy to further advance the co-evolution of problem definition and solution exploration. This suite of concepts and tools together can be used to support a Service Innovation Process that will enable the generation and evaluation of evolved government services. In this final section, we outline how the Office of the e-Envoy can use the tools to move forward on the specific issue areas, how these can be applied more generally, and what the specific learnings are for ukonline.
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Moving forward on the issue areas Each of the annotated cells in the Opportunity Maps for each of the issue areas - special needs, redundancy, and student loans represents opportunities for the government to better support citizens. The working examples presented in the appendix show how the intersection of user mode and quality of service at the cell can be used to generate ideas and explore the possible solution space. Continuing the process towards a decision about a "better" solution, members of the Office of the eEnvoy might want to hold a number of sessions with people representing different government departments and use the generic opportunity map to brainstorm possible solutions. The group could, for example, brainstorm the issues from a number of different perspectives such as technical feasibility, service delivery feasibility and business case implications. Then the group could spend some time evaluating, iterating and converging to a preferred approach.
Moving forward across all contexts The context types present a generalisation of user contexts and relationships with government as indicated by the three specific issue areas. These descriptions can be used as a guide for starting to think about other government transactions and processes and the particular ways in which they can be better supported for citizens. The Opportunity Maps for the generic context types suggest potential solution filters that can be applied to the process or issue at hand. The Opportunity Map can also serve as a starting template where it can be populated with user perspectives from future field research or from consideration of new government processes or transactions. The Opportunity Map can then be used as outlined above to explore the opportunity space through iterative generation and evaluation of possible solutions.
Moving ukonline forward The recommendations for moving forward ukonline in the short-term have already been fed through to the Groundhog team (as can be seen in the appendix). For the longer-term direction, our findings point to the following key issues.
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Moving Forward
Get the basics right first - support specific purpose People come to government with a particular problem or need in mind, one that relates to their relationship to government. It can be a specific question or a general question about a specific issue. Getting the basics right means delivering core information and core services easily and efficiently. Delivering core information is about providing powerful search engines, clear content structure and effective filtering so that people can access the information they need and find answers to their questions quickly. Delivering core services well is about making those transactions that are amenable to online delivery easy to use. From a customer relationship perspective, it is also about delivering services in a way that makes people feel government is effective in responding to their needs. Because of the ways in which people build up trust in government, as identified in the Trust Relationship Map, it is critical that ukonline offer consistent and reliable functionality around its core information and services if it is to build a relationship with citizens. It is also critical that ukonline shows that it is consistently responding to the feedback of users. Support different user modes for specific purpose Once the basics are in place, ukonline could be evolved to support the different user modes by offering flexibility and choice in how people engage with the site. One obvious example is to support process learning; users could be given the choice of selecting a link that takes them through a guided process for completing a transaction, suitable for inexperienced users, or a link that takes experienced users directly to the transaction point. Move to consolidation and personalisation In the longer term, the emphasis of ukonline could be moved from specific-purpose and isolated interactions to a relationship model, with the site providing the base for multiple interactions. Facilities can be provided to enable people to set up personalised views that consolidate all their interactions with government. This could include value-added functionality such as automated reminders of renewals, single entry of information, a tracker that checks the progress of a given transaction, and the bundling of related transactions. Next steps Over the next weeks, the Office of the e-Envoy and Sapient will need to explore ways of integrating the recommendations coming out of this work into plans for near and longer-term development of the ukonline site.
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Appendix
Appendix contents
69 Groundhog Findings 75 Participant Profiles 84 Core Assets of Government 85 Strengths of Online Transactions 86 Working Examples
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Groundhog Findings
Appendix - Groundhog Findings
Introduction
This document summarises user research findings directly related to ukonline. These findings were presented to members of the Groundhog re-design team at a story session and to a larger client team during the Data Circus on 5 October. The Groundhog team has used some of the shorter-term findings to inform the initial re-design of the ukonline site. These findings are based on research conducted with nine participants in their homes and, in particular, the "web shadow" part of the sessions. We also did online testing and web shadowing with 3 participants (1 of whom was a repeat participant) who came to Sapient on 8 October. During web shadowing, we directed participants to the ukonline site and asked them to talk about their expectations of the site based on the Homepage. We also asked them to choose one or two of the areas (Life Episodes, Citizen Space, Do It Online) to search. While using the site, each participant talked to us about what they expected from each section, what they were attempting to do, and how their needs were met or not. As a way to not compare the ukonline site experience to the participant's overall web experience, we asked participants to choose a transactional site that they use frequently in order to get a sense of how they prefer to search, navigate and transact. During the testing that took place at Sapient, we observed and asked questions of participants using ukonline as well as sites more familiar to them. The goal of this testing was to get more detailed feedback on look and feel, nomenclature, content and navigation of ukonline to inform Phase One of the re-design (Groundhog). We also asked questions about e-democracy in the context of Citizen Space and about e-security and issues related to privacy. Of the eleven study participants, four were experienced Internet users, three were novice users, and four were fairly familiar with the Internet.
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Overall findings related to ukonline site
Limited awareness of ukonline Of the eleven participants we interviewed and tested, only two mentioned that they thought they had heard of ukonline, the website. Most people were aware of the ukonline campaign and would cite Tony Blair's promise to give people access to the Internet and to computers by 2005. This awareness of a general initiative did not extend to an awareness of the website. Many people asked, "How would I find this site if I didn't know about it in the first place?" On the other hand, many people had used and were aware of other government websites - Inland Revenue, NHS Direct. Importantly, these other government websites have strong name and brand recognition. Expectations and disappointment People had high expectations of the content, navigation, information, and transactional capability of the different sections of the site. Once people started to search each of the individual sections, however, they were often disappointed. Disappointment was at many levels Participants felt that Quick Find didn't produce relevant or easily accessible information, and filtered searches in Life Episodes didn't turn up relevant information. People felt they had to dig down too many layers to see what was offered within this area. When people discovered they couldn't do
much in the Do It Online section (e.g. filling in the passport application form) they were visibly disappointed. Identification and e-security In validation of findings from Phase One research, participants in Phase Two have stated that they don't mind giving personal information to government as long as they are confident that people outside government (e.g. other private citizens) do not have access to their information. The common sense explanation they give for this is that government already has information on individuals and that if giving out information facilitates better interactions then people support it. Perceptions about security on the Internet vary according to level of experience people have with using the Internet. Those who are less experienced with the Internet and who have never purchased online, are wary about giving out their credit card details even if they are comfortable giving credit card details over the phone. Additionally, the level of confidence people have in a site relates to the level of trust they have in the site and the company backing it. The more trusted online brands are those that either have a physical presence in the world (e.g. high street banks or Sainsbury's) or are familiar online brands (e.g. Amazon). People stated that the presence of online
security measures such as security padlocks and privacy claims and the use of passwords before entering personal pages helped to allay worries they might have about security. e-democracy Aside from voting in national elections, people were not likely to get involved in national issues. Most felt that Westminster was distant, far from the concerns of their everyday lives, and that it would take too much effort and energy to get involved in political issues. While most people said it was important to vote, only a few said they participated in community or political activities. Those who did wish to get involved did so because of issues that directly related to their core concerns and the things that affect them. Several parents of special needs children, for example, have attempted to influence government policy through letter writing campaigns and working with advocacy groups. A forty-nine-year old mother gets involved in the community centre and with the local school authority and recently wrote a letter to her local council about the under use of the local community centre. Several years ago, she campaigned to keep the local public pool and library open. Another woman expressed a desire to talk to her local council about the condition of roads after she had an accident because of a
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pothole. In all of these instances, people felt they could have the most influence by working through local channels and representatives. One student searched in vain on the site to find his local CAB because he believed that there he would be able to complain directly about a recent incident of racism in his local area. He suggested it would be more helpful if he could search the site using his post code. Navigation The desire to search is prevalent and consistent but navigation was confusing at many levels. More experienced Internet users had high expectations for the search function (Ask Jeeves, Google and AOL were most common best practice references). An experienced user of the Internet commented that "Government is so broad I wouldn't know where to begin." Overall, people wanted clearer descriptions of what each area contained. Many seemed reluctant to click on a link until they had a good idea of where it would take them. Several people were disconcerted when they went into a section of the site and weren't able to return to the homepage. As one person put it, "I'm trapped in pension land." It was difficult for people to determine when they had left the
ukonline site and how to get back. One woman said she wanted a lefthand navigation bar so she could know where she was in the site at all times. Only two people clicked on the ukonline logo to return to the homepage; even these two people hesitated before they did this, however. People said that keyword search would be useful because it would save them from having to "trawl through" multiple layers of information. Several people said they would like to type in a question so they could find relevant information more quickly. Look and feel One participant found images of people and colours on the ukonline homepage to be "too light hearted and jokey," an image that he felt deflected from the "seriousness" of the site and the subject matter. People were very aware that any images on this site would need to be representative of ethnic groups, different national groups, geography and sites from throughout the UK. Darker and more solid colours were preferred over pastels because they looked "more official" and "serious." In the "look and feel" board exercise, the sites people favoured were less cluttered (more like the Tate Liverpool or vielife site than BBC), had clear lettering, larger font sizes, and clear descriptions of what one could find.
Nomenclature Most people were unclear about what might be in each area of the site after reading the high-level name. Even after reading some of the descriptions, many people were not clear about what they might find. See individual sections below for more details. Location and language selection No brand consistency (logo consistency) between the different country sites. People were surprised that when they clicked on Scotland or Wales, they felt they were in the same site. The same was true of England. The ukonline site is, by default, the site for England. Several people asked why the site wasn't translated into languages other than English and Welsh.
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Findings Related to Specific Areas of Site
Homepage Expectations when looking at homepage: Content: full transcripts of speeches: policy briefs; issues and information relevant to government. Navigation: "It should have all the main departments." Audience: both older people (in their mid to late 40s) and younger people (in their 20s) we interviewed were not able to say with certainty that the site was "for them." One student said, "This site is for family-oriented people. Maybe they should make it more for students (e.g. have a link to the NUS site). If they had activities that related to students, students would see there is more information for them and would come back more often." A couple in their late 40s with children in their teens and twenties thought the site would be helpful for their sons because it would teach them things their parents already know. In general, participants found it difficult to say what the purpose of the site was when they came to the homepage. "Do It Online" made the most sense as a descriptor while "Life Episodes" and its relationship to government was harder for people to articulate.
As one male student put it, "It looks like quite a serious site. The focus should be on the information rather than flashing pictures. I would go to a travel agent if I wanted to plan a trip. I wouldn't browse on this site. I think people would know what they wanted to find here. I don't think this is much of a tea break site." "Maybe more government-based stuff should be on the Homepage," was one frustrated participant's response after he made numerous attempts to find his local CAB site. News People expected the news delivered on the site to be unmediated, news they would receive "before the BBC received it". They wanted government to be the author of the news rather than interpreters of the news in newspapers. They expected that the information would be upto-date and relevant. Highlighting the "horse's mouth" strength of the site would increase trust in the information. Only one person clicked on the "ticker" running across the top of the site; other people didn't notice it. 10 Downing Street is trusted as a brand. Do It Online When first coming to the ukonline website, participants were drawn to the "Do It Online" section because, unlike the other sections, they could understand what it offered and thought it would be very useful. They also found it easier to navigate.
As this area of the site becomes more robust, it will be necessary to make it explicit to people how much they can accomplish online in any given transaction. A few people were disappointed in the passport application area because they would want to complete the entire process online. Some people assumed "Life Episodes" and "Do It Online" had a stronger connection than it currently does. For example, a student expected to find more of the transactions associated with finding a job to be housed in the Do It Online area. Life Episodes Most people interpreted this section as a place on the site where people could learn "life skills" and get advice for "going through life." One man suggested it be renamed as "day-to-day life" or "running your life." A few people wanted to hear stories about how other people have taken out a mortgage, etc. and as a way to get advice related to particular processes. Some participants in their 40s commented that while they wouldn't need to learn how to do things, it would be good for younger people to learn. Some people felt it should have facts first and then how people experience the "facts".
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One of the students didn't expect to find her own life episode (finding a job after university) on the site because she didn't believe government was supportive of her situation. (students). Before entering this area, people expected it would "relate to me, deal with issues that are relevant to my everyday life." This pragmatic expectation was somewhat dashed when people found it difficult to search, difficult to find information, or things (to do) that related to government or their situation. One common refrain was "I would go to a travel agent not a government site if I wanted to plan a trip."When one young man searched within the pensions area of Life Episodes, he was disappointed that the results of search for financial planning advice listed a Financial Times publication before the government publication. He found it "worrying" that a government site would not list its own publication first. "If government doesn't think its pension scheme is better than the FT's scheme, then that's worrying." He stated that he believed information coming from government would "be more neutral and would appeal to everyone." Nomenclature of each life episode going away and learning to drive seemed categorically different from "Having a baby". One person equated the name of this section with soap operas and TV, while another said it "Sounds a bit Oprah Winfrey." Citizen Space Most participants, both younger and older, were interested in interacting with government if issues directly related to them, their friends and their families. When questioned about how and when they do participate in government, people stated that dealing with local government was more relevant. There was interest in having site "area based" - ability to put in post code and connect to local community. Many would prefer to write to their local MP and to have the MP collect the various viewpoints from constituents and then send them on to the relevant departments. For consulting and complaining, people wanted to know who they would be complaining to, who would be responsible for making sure their complaint went to the right people, and who would be accountable for getting back to them. This finding supports the need for responsiveness, for people to know that when they communicate with government it has an impact and doesn't just enter a "black hole". To make complaints, one participant would like to select from different categories and in a particular order - issue or what it's about, geographical area, and who is responsible for getting back to them and seeing it through. While in Citizen Space, many participants spoke about their views on privatisation of government services. The consensus among participants was that privatising public services did not lead to improvements. In fact, people frequently cited the case of Railtrack as just one example of the incompatibility of private and public sectors. Most participants thought there was a direct contradiction between a private company with profit motives and not-for-profit government who should be working in the name of the public good.
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Participant Profiles
Appendix: Profiles
Janet and Peter | Special Needs

Age: 49 Location: Langley/Slough, London area for past 22 years Household: Lives with husband Peter and three sons age 23, 20 and 13.
Youngest son Christopher is a special needs child in a mainstream school system. Computer Expertise: Both have little experience with computers, although recently took course on using computers and the Internet.
"We felt like were being intimidated [by the LEA] and that they were trying to keep secrets from us . It felt like us versus them. . . we know our child."
Experience Highlights Since being a baby, Christopher had health problems. At age 3, he developed meningitis, which was a clue that something else was wrong. Two health visitors (a nurse with extra training in infants and seniors) involved in case: 1st health visitor said that they shouldnt worry while the second one said that if youre worried, that should be reason enough to have him checked. Inconsistent advice and support over time. Official statementing process started when Christopher went to school at age five, and they moved him to a program where he got special attention. When Christopher was 6, they found an occupational therapist and a speech therapist who they felt were more independent" and "on their side". Janet and Peter fought to keep Christopher in a "normal" school, and now do everything they can to protect him from feeling different from other children. Triggers and Pain Points Schools give them no preparation for meetings ("We were expected to drop everything"). Feels like the people who work on the case were out of touch with ordinary people and their concerns. Believed that there was not a lot of consistency across councils. Within education, it seemed that every council was " out for itself." Support and Finding Out People they relied on were those who were independent from the school, would send letters on their behalf, and "back them up." Story of advocate who came to a meeting to help them argue that C. should stay in the normal school. As they were leaving, school administrator said to advocate, "I thought that he should be in a special school, and advocate replied, "Im glad we proved you wrong." Parents in Partnership acted as an interpreter of the process. Difficult to find materials on the Internet about learning difficulties and special needs more generally when parents trying to find out. Attitudes about Government Janet against public/private partnership because it taints government and public services, by introducing a need for profit. Feels there are no success stories (e.g. Railtrack). Janet involved in her local community. Attends community meetings on issues that directly affect her family (e.g. community centre). Government agencies changing names: "You think you know the language, and then it changes." Attitudes about Identification and Security More comfortable giving out their credit card number over the phone. Use Sainsburys online delivery service. Because trusted brand, they feel its safe to give credit card number. Believe government "has most information on you" already and therefore wouldnt mind giving information on ukonline if they knew it would remain secure (e.g. use of a password). Make analogy to supermarket loyalty cards when presented with idea of digital ID. Worry about the effect of viruses on their computer.
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Jenny | Special Needs

Age: early 30s Location: Peckham, London Household: Single parent who lives alone with her daughter, Lauren,
aged 6.
Computer Expertise: Although she doesnt have a lot of time for computer
work, she is very comfortable using the Internet.
"I know who to go to now, but nothing is easy. Always another person to go to, always a different manager."
Experience Highlights Works full time at the Job Centre at the Elephant and Castle, London Found out Lauren had special needs when woman at a nursery stopped an initial interview to tell her that they dont take special needs children. Her health visitor later apologised for wrongly diagnosing Lauren. Health visitor told her she was eligible for Disability Living Allowance, but it was through Contact a Family that she learned she was eligible for a higher rate. Mother of Jennys friend cared for Lauren during the period before she located a special needs school. After many years of being a client of Contact a Family, a support organisation, she joined the management committee. Triggers and Pain Points When first concerned about Lauren, Jenny asked her health visitor about her daughters development and was told "Lauren will catch up." Most benefits that she receives she applies for through "referrals" from her health visitor. She feels her assigned health visitor is competent, and gets the job done, but does not actively help. She must fight for specific services for Lauren: "Being around my daughter, I know what she needs." Support and Finding Out Jennys support system consists of one person and one organisation: Parental support advisor gave her advice about schools, what she should be asking for, what to ask for in the statement, and other educational advice. Contact a Family told her about benefits shes entitled to, about activity days and sessions, and helped her write letters. She uses Angelmans Syndrome website, which has up-to-date research and stories about children when theyre older. Attitudes about Government Deals primarily with local government, Southwark Council, in relation to Laurens care, as well as finding out about events that are happening in the borough. She votes, but feels that political parties have the same agendas, so she doesnt know if it changes things. In general, feels she doesnt speak same language as government, and would want language in lay persons terms. "If youre looking at a government site, you would expect it to be the most accurate information." Attitudes about Identification and Security No worries about transacting online, and has bought online when its more convenient. Does online banking and has an icon on her desktop which takes her directly to her bank.
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Appendix: Profiles
Lucy | Special Needs

Age: Early 30s Location: Queens Park, London Household: Husband; Oscar, 6 (special needs child); Connie, 5;
Felix, 6 months
Computer Expertise: Uses Internet, mainly with her husband.
Organised, managed, and entertained a team of seven people over two years to educate Oscar, It was really me doing it myself.
Experience Highlights Vague awareness of Oscars condition and initially went to experts about Oscars physical problems. His mental problems were then identified and mental and physical were inter-linked thereafter. Official statementing process ran in parallel to their own attempts to find out how to deal with Oscars condition (e.g. Lovas therapy). Having built up their own knowledge in parallel with the official process, they were prepared to challenge the official and expected outcome (at tribunal) and were able to get what they really needed. Accepted that Oscar needed to go to a special school, and negotiated with the LEA that he be allowed to attend Treehouse. Triggers and Pain Points Recognised it was necessary to act quickly to support Oscars development as a result of own research. Triggered to act independently, as professionals involved seemed unable to provide appropriate and timely information and support. Not being recognised as important to Oscars development. Found LEAs destructive as they themselves would not provide help but did not want them to take action independently Support and Finding Out Main information came from people with similar experiences. Receives emotional, practical and financial support from family and friends. Receives practical and emotional support from PEACH. Got a packet from PEACH, which helped her to negotiate the system. Attitudes about Government Became more politically involved since having Oscar. Now writes to MP to object to change in statementing process. Hopes to become more politically active on these issues when all her children go to school. Attitudes about Identification and Security Has no problem with identity cards and digital ID if make life easier. Trusted Tesco and gave credit card details. .
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Steven | Redundancy
Age: 27 Location: Broxburn, West Lothian Household: Lives at home with his wife who is pregnant with their first child Computer Expertise: Not an experienced computer user. Just learned how
to send an email after 2 months of trying. Has trouble finding sites he wants on the web. Manufacturing technician for 23 months with Motorola. On one months paid leave before officially ceasing work Sept 30.
"I believe in myself. I believe in my abilities. I have confidence in what I can do."
Experience Highlights Aware that company was having problems and thought it was a blessing in disguise when he was given 90 days redundancy notice. Company provided access to an outplacement service after one month of unpaid leave. He wont use it as he prefers to do things himself. Job search includes searching through newspapers, writing letters to all of the factories in the area. He plans to drive around the area, drop into factories and speak to the personnel officer. Also relies on family and friends - getting a job in a small town is all about who you know and where your uncle works. Went to Job Centre once before he finished work to get a sense of the market. Thinks that the government can come up with something better than sticking cards on boards. Wants to stay in the area to be close to family support with the baby on the way. Normally he would be prepared to move anywhere. Willing to take any work as long as he feels he is getting paid enough. Triggers and Pain Points Job Centre experience: "the staff treat you like a piece of dirt and make you feel like you are worthless". Not being told that he could have access to home health care services following his surgery. Support and Finding Out Keeps in regular contact with others who were also made redundant. Friend searches the web and prints out pages of job ads for him. Both extended families live very close by. Found out about home health care from his mother who asked her community nurse. Community fire brigade provided Steven with practical support during his recovery from surgery. They also provide him with training. Attitudes about Government Voted every year since he turned 18. Associates national government with London, which feels far away and distant. Likes having a Scottish parliament because they are kept up-to-date everyday with whats happening. Feels that individuals dont get heard enough and maybe local council leaders and local MPs are more likely to be heard. If he did participate actively, he would talk to government about issues such as road tax, and people who cheat the government. Attitudes about Identification and Security Having passwords before entering personal pages is important. Wants to know that individual systems are secure and not easily accessed. Happy to make information available online so long as only the right people can access it.
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Appendix: Profiles
Neil | Redundancy
Age: mid 40s Location: Windsor, Berkshire Household: Lives in his own home with his wife, a 13 year old son and
a 10 year old daughter. Computer Expertise: Experienced computer user. He recently had a high speed cable connection installed. Became redundant mid-June after 13.5 years with Xerox as a Financial Controller.
"Its a total change in life, what you do, your morning routines. Its tiring doing nothing."
Experience Highlights Neil was aware that Xerox werent doing well when the share prices fell drastically in Sept 2000. The company started a long frustrating consultation process but in the end it wasnt needed as people took voluntary redundancy. He accepted a package in March. For the next 2 months his job at Xerox was to find a job. He wasnt expected to come into the office and was given access to an outplacement agency. Although the group sessions didnt address his particular job level needs he found that access to resources such as databases and library was helpful. He views situation as a chance to move into Interim Management. He is concerned not to "dirty his CV" by taking more typical contract jobs but will do so eventually if nothing comes up. Registered with a number of agencies specialising in this area. Actively uses the Internet to search for work and to research potential companies. As he is hoping to get work within a 1.5 hour drive, he often drives around the area to literally "size up new companies" that look like potential candidates for his type of work Triggers and Pain Points Getting first Interim Manager job- chicken and egg problem of moving into a new area but people want experience. Unable to claim job seekers allowance as he is technically on 6 months notice "in limbo". Misses support and mentoring of his immediate manager. Support and Finding Out Keeps in regular touch with others who were made redundant at the same time. Web, network of friends, driving around, outplacement agency resources. Attitudes about Government Voted in every election since he was 18. Thinks voting should be compulsory. Instrumental as school governor in getting local legislation changed about parking outside schools. Issues that affect him personally such as taxation, petrol rises, education policies could motivate him to get involved. To get involved depends on time, the extent to which an issue impacts him, and being able to make an impression. Attitudes about Identification and Security Fine with the idea of digital ID but it needs to be foolproof and he believes government should spend money investigating different options. One web site he uses asks for random letters from his username and password; this makes him feel more confident. Doesnt mind providing personal information but doesnt want to provide his financial information or pictures of his children.
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Nigel | Redundancy
Age: 45 Location: Ruislip, Harrow (about an hour outside of London)
Household: Nigel lives with his wife and 14 year-old son. Has lived in the same house for 27 years. Made redundant after 15 years working as a maintenance engineer. Company that bought plant where he works plans to move plant to Nottingham. Computer Expertise: Bought a computer for his sons schoolwork. His son has taught him to a level of moderate competency.
"The Job Centres not as bad as I thought it would be, but they treat everyone as if theyre on the fiddle."
Experience Highlights Company offered to let him keep his job if he would move to Nottingham and accept a 40% pay cut, so he chose redundancy. Initially, excited by the redundancy as some time off, but after a few months, is getting restless. Doesnt use the Job Centre except for signing on; feels jobs they offer are too low paying and not specific to his skills. Routinely checks newspapers and the Internet in his job hunt, but also uses agencies and recommendations from friends. He wont move and focuses his search around jobs within a fifteen mile radius. If he doesnt find a job soon, hell consider retraining or a lower wage. Triggers and Pain Points Nigel learned about the job web sites to visit from advertisements on television. "The worst thing about being made redundant, at this point, is having nothing to do." He felt there was a general lack of responsiveness from potential employers, and often would hear not hear from them at all after applying for a job. On worktrain.com, Nigel was excited by the feature that allowed him to search locally, but was frustrated when he got results as far away as Glasgow. Support and Finding Out Nigel did not and does not seek out guidance on finding jobs from professionals or from the Job Centre. He knows which jobs suit him better than others. He received no assistance from his employer related to the redundancy beyond the money he received. Early on, they had promised some assistance in helping employees find other work, but they never followed through. He wrote his own CV and since then has been handling the job search himself. Nigel went to the Job Centre on the Monday following his job ended. He found it disorienting the first time, but since then has found signing on fairly easy. He receives job-seekers allowance, but no other benefits because of his redundancy package. He says he didnt expect any more. He said that the Job Centre is not as bad as he thought it would be, but that they treat everyone as if theyre "on the fiddle". He keeps letters he received in response to his job inquiries as proof that he is looking. Attitudes about Identification and Security Nigel has no worries about using his credit card on the web, although he says his wife does. He is new to transacting online, but will buy football tickets there. Also bought tickets to the Worldwide Wrestling Federation show on his last trip to Las Vegas. Nigel doesnt register at the job sites that he goes to. Hes not worried about security, but thinks that its a hassle and hes able to use most features of the site without signing up.
Attitudes about Government

Appendix: Profiles
Sam | Student Loans

Age: 24
Location: (Oxford for BA); Edinburgh Household: (College for BA); Sam now lives in a share house with 2 PhD
students.
Computer Expertise: Experienced computer user. Has a Computer
Science degree from Oxford and has worked in a web agency in London.
"I havent gotten around to letting them know that my circumstances have changed."
Experience Highlights Applied for first student loan 5 years ago when he started his BA in Computation at Oxford. College provided the forms and helped fill them out. Also received a grant and funding for tuition fees, both from his LEA. He recalls that these forms were more complicated to fill out. Renewed his loan for the 2nd and 3rd years of his degree. Not aware of how he would be required to pay back the loan. Worked for a London web agency in Dec 1998 for a year and a half. A few months into his job, he received a "threatening letter" about paying back the loan money started to be deducted from his bank account. Took 6-month break during which he applied for PhD positions. Never got around to deferring his loan re-payments now that he was no longer working. Started his Ph.D. with an EPSRC grant at the University of Edinburgh. Phoned Student Loan Council to request a form to defer his re-payments in Oct 2000 just after he started the degree. Now receives a letter every year notifying him that his deferral is running and giving him the option of extending the deferral period. Triggers and Pain Points Not aware of how to pay back his student loan. Didnt get around to deferring his loan in a timely way. Hasnt got around to changing his address with the SLC and his bank since his move to Scotland. Support and Finding Out Doesnt remember a lot of detail about the loan application processes. To apply for EPSRC funding for his Ph.D., he looked up the EPSRC web site. Spoke to friends, visited Edinburgh University and talked to a professor there, and checked the web site before making decision to apply there. His Ph.D. supervisor is a key support person for his Ph.D. Attitudes about Government Wanted to vote in last election but found he wasnt on the electoral roll. Thinks local representation is important as many issues such as local services, transport, local schools, are not relevant at a national level. Thinks there is a bigger difference between London/SE and the North than England and Scotland. If he were to talk with government, the issues that interest him are about privacy on the Internet, student funding, and the abolition of tuition fees. Attitudes about Identification and Security Sceptical about legislation that tries to control what people do on the net. Considers much of it impractical and to be a mechanism for government to spy on Internet traffic. Aware of the investigatory powers act that the government invited comment on last year. Occasionally watched what others said and tended to agree with them but didnt comment himself. Often uses his passport as a form of identification.
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Alyson | Student loans

Age: 22 Location: Caerphilly, Cardiff
Household: Mother, Father (when not in Hong Kong working), and older sister Computer Expertise: Frequent Internet user
Experienced several transitions over recent years school, university, work. Has just begun to work and therefore, has lots to remember."
Experience Highlights Initially had a grant and parental support and didnt know about student loans until she saw that her friends were getting them. Friends encouraged her to get a loan to go to the US in her 3rd year. Found this useful as it meant she didnt need financial support from her parents. Applied for another loan the following year (her final year of study) but was unsure why it was a lesser amount than her first loan. Unclear about how and when she will pay back the loan. Recently received a statement from Student Loan Company but found it difficult to understand as it was "all figures". Triggers and Pain Points Triggered to get loan to go to the US in her 3rd year. Travelling to university. Finding out about student loans. Learning to take responsibility. Support and Finding Out Parents and friends are main support. Found out about student loans through friends. Did not find out about signing on for unemployment benefit until two weeks after she was entitled to it. Attitudes about Government Thinks Welsh assembly is a very good thing since Westminster is far away and assembly means Wales is not ignored. Active in local community Would participate more frequently in politics if it were easy to do, and concerned issues that she cares about, such as class sizes and potholes. Attitudes about Identification and Security No problems with having digital ID if secure, but worries that people other than the government would gain access to her information. Recognises padlock symbol although does not fully trust it. Not sure that giving credit card details online is safe but sometimes "you have to take a chance".
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Appendix: Profiles
Aftab | Student loans

Age: Early 20s Location: Slough, Berkshire Household: Lives with his parents and two younger brothers Computer Expertise: Frequent Internet user, but not for serious things,
works part time for PC world
Surprised to discover that going to university meant having more responsibility for study and life.
Experience Highlights First became aware of the existence of student loans when he started college and saw his friends collecting their loan cheques. On questioning them he discovered that he too could apply for a student loan, although he was too late to do so that year. Applied for student loans for next two years of study. Parents are usual source of information but because he is first in his family to go to university, they were not aware of the need to apply for student loans. Has no idea how and when he will pay the loan back, even though hes currently in his third year. May go to student union to find out more about paying back the loan. Triggers and Pain Points Triggered to apply for a loan when realised that they existed. Not knowing about student loans in the first place and missing out. Pursuing and tracking loan applications. Knowing where, when and what else required to collect payment. Support and Finding Out Support from family -- financial, practical and emotional. Found out about student loans from friends. Unable to find out from family as they had no prior knowledge. Unsure how he will pay back loan. Attitudes about Government Believes voting should be compulsory. Generally not politically involved. Would get more involved politically if it concerned things that interest him, such as the abolition of student grants. Attitudes about Identification and Security Trusts in padlock icon, and likes to see text that tells him site is secure. Has had credit card details misused in a shop, is therefore cautious about submitting credit card details online. No problem with concept of digital ID. Suggested would be useful with information such as birth certificate on it.
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Appendix: Core Assets of Government
Core Assets of Government
We present the following as a candidate list of some of the core assets of government, distilled through interviews with participants and workshops with the Office of the e-Envoy. We make reference to this list when starting to explore the opportunities for government as highlighted in the Opportunity Maps. Candidate core assets: Proprietary information Make and control policy Final word and arbitration Inclusive Broad range of services & concerns Not profit driven Impartial Captive audience Broad contact base
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Appendix: Strengths of Transactions
Strengths of Online Transactions
As part of the context research in Phase One, we analysed various web sites and developed a categorisation of the strengths of online transactions. These strengths are listed below. We make reference to this list when starting to explore the opportunities for government as highlighted in the Opportunity Maps. Strengths of online transactions: Supporting data intensive activity Prototyping scenarios Providing authoritative information Bringing the public together Leveraging offline brand Leveraging existing knowledge Enabling progressive ease of use Allowing anonymous transaction Providing 24-hour service Product suited to online purchase Supporting repeated activities Bringing together elements related to me
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Working Examples from the Opportunity Maps
As stated in the Opportunity Map Section, opportunity maps identify gaps between the current and changed state of the user experience. These gaps represent opportunities for government to better serve the needs of citizens, both online and more generally. As such, Opportunity Maps can be used as generative tools to explore the opportunity space for how to fill the gap and meet user needs. In preparation for the Opportunity Mapping Workshop, held with representatives from the Office of the e-Envoy at Sapient on October 19 2001, we identified a cell from each of the Special Needs and Student Loan Opportunity Maps and developed working examples to start to explore the opportunity space. We present these here in the following sections: Special needs opportunity: Make relevant information accessible to all parties Student loan opportunity: Make it real In the third section, we present a summary of the discussion that took place within the workshop around the following opportunity: Special needs opportunity: Act as an ally
In each of these examples, we begin by re-stating the current state and changed state of the user experience in the specified cell of the Opportunity Map. We then outline possible solutions and go on to brainstorm related issues. These working examples are meant to give a flavour of the types of generative discussions that can happen through use of the Opportunity Map. They demonstrate the beginnings of a process that moves toward decisions about possible solutions, where those solutions are clearly grounded in user needs.
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Appendix: Working Examples
1. Special needs opportunity: Make relevant info accessible to all parties In the Special Needs Opportunity Map, "Make relevant info(rmation) accessible to all parties" is the cell at the intersection between the Creating Networks mode from the user axis and the Facilitating Better Consolidation role from the government axis. This is a cell we prepared for the Opportunity Mapping Workshop. The description of the current experience and the changed experience for "Make Relevant Info(rmation) Accessible To All Parties" is the following: Current state: Parents devote a great deal of time to coordinating the schedules and activities of people employed to help in the education of the child and the recording of the child's development. Changed state: Parents are assisted in coordinating schedules and activities of people responsible for child's development and in keeping a shared record of the development log; comparison against best practices is available to parents and educators. The gap between the current state and the changed state represents where the opportunities for government lie; this is the defined opportunity space. The following begins the exploration of this opportunity space by outlining an example solution and related issues.
Example Solution An online portfolio: An online space in which to put information related to the child. Provides a consolidated, childcentred view of the case that can be shared by the multiple people involved in the child's care. The parent has control over who shares the information on the child. Related issues Trust People don't trust the process: why do I have to give this information so many times. People do not trust that everyone involved in the child's care has the full picture. A single transparent information source is needed: a snapshot of what's going on. Efficiency: builds on rather than recreates. Consistency: helps create a consolidated relationshipbased picture rather than a fragmented episodic picture. Security: who would have access to the records? Core government assets Government as a provider of services: Creates a hub in the middle of the wheel of the various processes. A legitimate source of contact for all parties. Covers health, education and welfare issues.
Online transaction characteristics Brings together elements related to "me": potential to bring in other sources of information. Data intensive activity: a way for complex information to be managed. Partnerships Within agency partnerships (e.g., Occupational Therapist and Speech Therapist in NHS), cross-agency partnerships (e.g., LEA and local NHS), cross government level partnerships (e.g., local council and national benefits agency): requires information sharing and process documentation. Needs to be functional from an employee's point of view: not duplicating documentation efforts. Complementary channels and connections Allows for contributions of NGOs and other support organisations. Provides a source for learning quickly about the case when there is high care provider turnover. User states Control: gives the parents more control over information about their own child and builds on the expertise that they have; acknowledges that they use a variety of support services. Control visibility and coordination: allows all involved to sign off on a course of action. Control consolidation: acknowledges the allencompassing nature of a special needs child.
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2. Student loan opportunity: Make it real In the Student loans Opportunity Map, "Make it real" is the cell at the intersection of the Getting it Done mode from the user axis and the Making it Relevant role from the government axis. The description of the current experience and the changed experience for "Make it real" is the following: Current state: Filling in application forms is difficult and students are confused about what they are being asked. Changed state: Students can see how others have done it, and have questions answered when filling out the form. The following begins the exploration of this opportunity gap between the current and changed state by outlining an example solution and related issues.
Example solution The following solutions are based on a premise of supporting the students where they are: Provide examples from those who have completed the process. Provide links to support networks and those who have already gone through the process. Relate the process to something which they already have experience of and are already familiar with, such as UCAS forms. Use language that they understand. Related issues Trust Young students tend to have little trust in themselves: having little or no prior experience. Direct contact can make the information more relevant. Core government assets Sets the loan policy at the national level. processes implemented at the local level. Has a captive audience. Online transaction characteristics Prototyping scenarios working in your own time, checking your work, understanding the value of the student loans through rates comparison (this also provides coincidental financial management education). Progressive ease of use building on this transaction and creating knowledge for future and similar activities.
Partnerships NUS could be a trusted partner. Links required between national and local government. Links could also be made across local governments to increase consistency in the implementation of national policy. Complementary channels and connections Possible avenues for pro-active information dissemination and awareness promotion: Students unions UCAS Schools, colleges and universities Banks Post offices Final child benefit payment notifies parents about existence of student loans. User states Helping people who are subject novices and inexperienced in process. Moving the control horizon: teaching them life skills that will be more broadly applicable. Making the process accessible to them; meeting them where they are.
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Appendix: Working Examples
3. Special needs opportunity: Act as an ally In the Special Needs Map, "Act as an ally" is the cell at the intersection of the Process Learning mode from the user axis and the Creating Trust role from the government axis. This is the cell we worked on together at the Opportunity Mapping Workshop. The description of the current experience and the changed experience for "Act as an Ally" is as follows: Current state: Parents come to suspect that the LEA is not concerned with the child's development, but in policing money. Changed state: Parents feel that the LEA is interested in supporting the work that parents and educators are doing to create the optimal development for the child. The following notes were captured in the Opportunity Mapping Workshop. They begin the exploration of the opportunity gap between the current and the changed state by outlining an example solution and related issues.
Example solution Make a map of the overall process available to all stakeholders: Makes the framework transparent creating trust and helping set expectations. Makes visible all the actors, the hand-over points and the next steps. Gives a bigger picture to individual representatives of government, and allows them to see how their part fits in, making them more informed. Shows the user how they are making progress - gives successful or unsuccessful outcomes at every stage.
Related issues Trust Parents can mistrust the intention of the LEA in implementing government policy. Parents are more likely to distrust government when there is a lack of cohesive information from different government departments and when there is no obvious bigger picture that everyone is working towards. Trust is likely to be enhanced if parents and representatives of government have the same information. Core government assets Owns the process Covers a broad range of services and concerns. Not profit driven (but is cost conscious). Online transaction characteristics Providing authoritative information in the process. Partnerships Existing support groups NGO's Complementary channels and connections All government departments involved. User states Control: gives the parents more control, makes the process more visible and accountable.
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If you have further questions about this document please contact Elizabeth Anderson or Paul Ratliff.
1 Bartholomew Lane London EC2N 2AB Tel: +44 (0)20 7953 3429 www. sapient.com
Sapient | 2001
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Summary of experience modeling research findings and implications

Office of the e-Envoy for

47 Generic Context Types

61 Moving Forward 65 Appendicies

ukonline: KANE | Confidential

ukonline: KANE | Confidential

ukonline: KANE | Confidential

Introduction: Document Map

ukonline: KANE | Confidential

ukonline: KANE | Confidential

Findings: The Building Blocks

ukonline: KANE | Confidential

ukonline: KANE | Confidential

Findings: General Principles

ukonline: KANE | Confidential

ukonline: KANE | Confidential

Findings: General Principles

ukonline: KANE | Confidential

e-Security and e-Democracy

ukonline: KANE | Confidential

Findings: E-Security and E-Democracy

ukonline: KANE | Confidential

User modes evolve from those in Phase One

ukonline: KANE | Confidential

ukonline: KANE | Confidential

ukonline: KANE | Confidential

Findings: Qualities of Service

ukonline: KANE | Confidential

Trust Relationship Map

Findings: Trust Relationship Map

Trust Relationship Map

ukonline: KANE | Confidential

I want simple and direct answers on a need to know basis Steven

Findings: Evolution of Expertise

Evolution of Expertise matrix

ukonline: KANE | Confidential

ukonline: KANE | Confidential

ukonline: KANE | Confidential

Experience Model: Special Needs

ukonline: KANE | Confidential

ukonline: KANE | Confidential

Experience Model: Redundancy

ukonline: KANE | Confidential

ukonline: KANE | Confidential

ukonline: KANE | Confidential

Experience Model: Student Loans

ukonline: KANE | Confidential

ukonline: KANE | Confidential

ukonline: KANE | Confidential

ukonline: KANE | Confidential

ukonline: KANE | Confidential

Generic Context Types

Generic Context Types

Generic Context Types

ukonline: KANE | Confidential

ukonline: KANE | Confidential

Generic Context Types: Life Journey

Context Type: Life Journey

ukonline: KANE | Confidential

ukonline: KANE | Confidential

Generic Context Types: Life Journey