Department of Health and Human Services 
OFFICE OF 
INSPECTOR GENERAL 
S C S
TATEWIDE  HILD  UPPORT 
A T S
UTOMATED  ELEPHONE  YSTEMS 
JANET REHNQUIST 
Inspector General 
September 2002 
OEI-06-00-00460  Office of Inspector General

http://oig.hhs.gov 
The mission of the Office of Inspector General (OIG), as mandated by Public Law 95-452, as 
amended, is to protect the integrity of the Department of Health and Human Services (HHS) 
programs, as well as the health and welfare of beneficiaries served by those programs.  This 
statutory mission is carried out through a nationwide network of audits, investigations, and 
inspections conducted by the following operating components: 
Office of Audit Services 
The OIG's Office of Audit Services (OAS) provides all auditing services for HHS, either by 
conducting audits with its own audit resources or by overseeing audit work done by others. 
Audits examine the performance of HHS programs and/or its grantees and contractors in 
carrying out their respective responsibilities and are intended to provide independent 
assessments of HHS programs and operations in order to reduce waste, abuse, and 
mismanagement and to promote economy and efficiency throughout the department. 
Office of Evaluation and Inspections 
The OIG's Office of Evaluation and Inspections (OEI) conducts short-term management and 
program evaluations (called inspections) that focus on issues of concern to the department, the 
Congress, and the public.  The findings and recommendations contained in the inspections 
reports generate rapid, accurate, and up-to-date information on the efficiency, vulnerability, and 
effectiveness of departmental programs. 
Office of Investigations 
The OIG's Office of Investigations (OI) conducts criminal, civil, and administrative 
investigations of allegations of wrongdoing in HHS programs or to HHS beneficiaries and of 
unjust enrichment by providers.  The investigative efforts of OI lead to criminal convictions, 
administrative sanctions, or civil monetary penalties.  The OI also oversees state Medicaid fraud 
control units, which investigate and prosecute fraud and patient abuse in the Medicaid program. 
Office of Counsel to the Inspector General 
The Office of Counsel to the Inspector General (OCIG) provides general legal services to OIG, 
rendering advice and opinions on HHS programs and operations and providing all legal support 
in OIG's internal operations.  The OCIG imposes program exclusions and civil monetary 
penalties on health care providers and litigates those actions within the department. The OCIG 
also represents OIG in the global settlement of cases arising under the Civil False Claims Act, 
develops and monitors corporate integrity agreements, develops model compliance plans, 
renders advisory opinions on OIG sanctions to the health care community, and issues fraud 
alerts and other industry guidance.    E X E C U T I V E  S U M M A R Y  
OBJECTIVE 
To evaluate the quality of parent access to child support enforcement information and customer 
service through State-level automated telephone systems and identify opportunities for 
improving these systems. 
BACKGROUND 
Recent legislation and child support enforcement agency initiatives have increased the overall 
awareness of the need to provide quality customer service to child support enforcement clients. 
Automated telephone systems play an integral role in how State child support enforcement 
agencies communicate with clients and provide customer service. We reviewed all State-
operated automated child support enforcement telephone systems, using a standardized 
protocol which focused on system content, accessibility and usability. The basis for much of 
our analysis is our development of a list of model system traits. We evaluate the potential 
usefulness of systems to callers, and outline a number of model traits exhibited by the best 
systems. We describe State use of the systems, identify model system traits, and highlight 
recurring limitations that inhibit system usefulness. 
FINDINGS 
Forty-nine child support enforcement agencies use automated systems, and 14 
operate model systems that provide callers superior access to useful information 
Forty-nine States, including the District of Columbia, operate at least one State-wide 
automated telephone system. Thirteen of these States operate more than one State-wide 
system, for a total of 69 systems nationwide. Fourteen State systems exhibit model traits which 
set them apart from other systems, including comprehensive system content, ready accessibility, 
and high usability.  Twenty-six other States have systems which meet most, but not all, of our 
model system traits and were rated highly by reviewers for overall usefulness.  The nine 
remaining States operate automated systems that are missing more than two model system traits 
and were also rated poorly for overall usefulness. 
Callers receive case-specific payment information through 61 of the 69 systems; 
payment instructions and program descriptions are also common 
Automated systems typically consist of a series of menus from which callers can choose to 
access information and services, the most common of which is case-specific payment 
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Child Support Enforcement 
i 
Automated Telephone System  OEI-06-00-00460 information. Recorded descriptions of child support services offered by automated systems are 
typically brief, but give useful program overviews on a broad array of topics such as paternity 
establishment and wage withholding. The more highly rated systems allow for quick automated 
access to the most important topic areas, bypassing topics less likely to be of interest to the 
caller. 
Caller access to information is generally good, with 57 automated systems 
available 24/7, 49 offering toll-free service, and 57 answering calls on first attempt 
Initial system access does not appear to be a substantial barrier to use. Among the 12  systems 
that required more than one attempt to reach, six were accessed on the second or third attempt 
and six required upwards of 10 attempts before our calls were answered. The automated 
portion of 57 systems is available to callers all day, every day, and 49 systems provide service 
toll-free nationwide. Of those systems without toll-free service, many are available free if 
calling within the State. To further broaden access to service, 19 systems provide recorded 
messages in both English and Spanish. 
Navigational tools improve caller ease of use, and 48 systems use optional live 
representatives to supplement automated service 
Systems typically include navigational tools to ease use. For example, 55 systems allow callers 
to repeat menus, and 61 allow callers to make a menu selection without listening to the entire 
list of options. However, these features are not always clearly identified for inexperienced 
callers. Fourteen of the 55 systems offering repeat functions do not inform callers of the option, 
and only 49 systems offer general instructions for using their menus. Forty-eight systems also 
offer callers the option to speak with a live representative in addition to automated information, 
typically to provide details specific to a clients case. 
Problems commonly inhibiting usefulness for callers include systems that are 
overly complex, are not user-friendly, and include outdated information 
Further analysis of systems that were not rated highly or not identified as model systems 
revealed a number of limits to usefulness. Systems limitations include overly complex menus 
that bury key topics, cumbersome navigation, and use of a negative tone in communicating with 
clients.  Some systems also appeared less suited for first-time users, lacking clear information 
on topics of interest to the new client, such as the application process.  Other limitations include 
an over reliance on live representatives to provide information that could be automated and 
inclusion of inaccurate or outdated information. 
CONCLUSION AND SUGGESTIONS FOR IMPROVEMENT 
Conclusion.  Our analysis of model child support enforcement automated telephone systems 
identifies key content and features employed by the most useful systems. These 
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ii 
Automated Telephone System  OEI-06-00-00460 traits, including comprehensive content, ready accessibility, and usability features, combine to 
create systems which are helpful to both new and experienced callers.  In terms of system 
content and information, we found that it is critical for systems to provide clear and quick 
access to the most important topic areas, such as case-specific payment information. Among 
features of accessibility and usability, we found that automating key topic areas and providing 
basic navigational tools is highly important to improving caller experiences. In reviewing 
systems not identified as models, we found a number of limitations to usefulness and make 
suggestions for improving child support enforcement automated telephone systems and enhance 
service to callers. 
Suggestions for Improvement.  To improve the content, accessibility, and usability of State 
child support enforcement automated telephone systems, we suggest that the Administration for 
Children and Families (ACF) help States enhance their systems. Particular emphasis could be 
placed on improving operations in the nine States identified as using poor automated systems. 
The model system traits listed in the primer on page 5 could serve as a model for basic system 
features, and could be promoted to States by listing these traits on the ACF website. We 
suggest ACF could provide technical assistance to help States: 
<	 Focus on key topic areas.  Assist States in simplifying their automated telephone 
systems, both in content and function, to help them emulate the model States. The most 
useful systems provide substantive information but allow callers to access key, critical 
issues, such as payment information and case initiation, quickly and easily, without requiring 
callers to listen to unnecessary menus or information. 
<	 Make systems more user-friendly.  Assist States in building systems that center on 
services to parents, offering 24-hour access and features that ease use.  Technical 
assistance to States could target creating systems that include useful mechanical features, 
using the traits listed in the primer on page 5 as a model for basic system features. These 
model traits could be promoted through the ACF website. 
<	 Target first-time callers.  Foster State efforts to include messages, features, and content 
specifically targeted to first-time callers unfamiliar with procedures. These callers might 
benefit from the provision of a separate menu built for new or prospective clients. 
<	 Automate functions when possible. Encourage States to automate key information, 
such as payment details, rather than relying primarily on live representatives.  Systems could 
attempt to answer basic caller questions through recorded messages and automated 
interaction, reserving live representatives for unique inquiries. 
<	 Update information frequently.  Encourage States to keep information available on 
automated systems accurate and current.  Most critical is the accuracy of further contact 
information, such as county office addresses and telephone numbers. 
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Automated Telephone System  OEI-06-00-00460 AGENCY COMMENTS 
ACF concurs with the findings and suggestions for improvement included in our report. Additionally, 
ACF plans to publicize the traits of model automated telephone systems on their agency website. ACF 
also indicates that it will target the nine States rated poorly in our report for further review and technical 
assistance. In commenting on our report, ACF outlines details of web-based training it is currently 
offering to State child support enforcement agencies. These efforts appear to address many of the 
limitations to effective customer service that we identify for automated telephone systems. As our 
report indicates, similar technical assistance could be of value in improving automated telephone 
systems. 
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Automated Telephone System  OEI-06-00-00460 T A B L E   O F   C O N T E N T S  
PAGE

EXECUTIVE SUMMARY ...................................................... i

INTRODUCTION ............................................................. 1

PRIMER ON ITEMS REVIEWED AND MODEL SYSTEM TRAITS .................. 5

FINDINGS

Overview of State systems ..................................................6

System content ........................................................... 7

System accessibility .......................................................9

System usability  .........................................................10

Limitations to system usefulness  .............................................12

SUGGESTIONS FOR IMPROVEMENT ........................................ 16

ENDNOTES ................................................................ 18

AGENCY COMMENTS  ...................................................... 19

ACKNOWLEDGMENTS ..................................................... 22

Child Support Enforcement 
Automated Telephone System  OEI-06-00-00460  I N T R O D U C T I O N  
OBJECTIVE 
To evaluate the quality of parent access to child support enforcement information and customer 
service through State-level automated telephone systems and identify opportunities for 
improving these systems. 
BACKGROUND 
Recent legislation and initiatives increased the overall awareness of the need to provide quality 
customer service to child support enforcement clients.  The Government Performance and 
Results Act (GPRA)1 of 1993 focuses on improving Federal program effectiveness and public 
accountability by promoting results, service quality, and public satisfaction.  Under a GPRA 
pilot project, the Office of Child Support Enforcement (OCSE) lists improving customer service 
delivery and quality among its chief goals.2 
Automated telephone systems play an integral role in how State child support enforcement 
agencies communicate with clients and provide customer service.  They can efficiently and 
economically provide useful information and client services from virtually any location, at any 
time. A 1995 report by the Federal Performance Review estimates that government agencies 
spend three times more money to respond to inquiries by letter than by telephone.3 Automated 
recordings can relay general information about child support enforcement services and give 
clients access to case-specific information, such as dates and amounts of support payments. 
These systems can also often link clients to child support enforcement staff, to handle further 
inquiries and case management tasks. 
The most effective automated telephone systems are both accessible and user-friendly. A 
recent Federal Consortium Benchmark study identified several desirable traits among telephone 
systems that it reviewed.4 It suggests systems that offer 24-hour access, short wait times 
between selections, live representatives, accurate information, and clear recordings in plain 
language.  It also indicates systems that should allow callers to navigate within menus for easy 
location of information. Additionally, systems should offer options in the languages most often 
used by clients. 
State policy stemming from welfare reform has also recently altered the way the child support 
community thinks about the customer base for which automated systems are designed.  While 
OCSE and its State partners traditionally view custodial parents as their primary customers, 
many now also see noncustodial parents as clients.  Consequently, States may augment systems 
to provide information and services to both parent groups. 
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Automated Telephone System  OEI-06-00-00460 METHODOLOGY 
Study Focus 
Automated telephone systems typically consist of a series of menus, of varying complexity, from

which callers access information and services.  In reviewing system content, we focused on the

topics addressed, and the depth and accuracy of the information provided. Studying the

mechanical features, we focused on how easy the system is for callers to use. Mechanical

issues include the ability to reach the system, the clarity of recorded messages, the extent of

instructions provided, and the use of functions designed to provide greater maneuverability

within each system.

This report examines six aspects of State-level automated telephone systems:

<  use of systems by States and identification of model traits

<  comprehensiveness of system content

<  system accessibility to callers

<  system usability by callers

<  limitations to system usefulness

State-level Automated Systems 
To compile our list of telephone systems, we requested child support enforcement agencies in 
all States and the District of Columbia to provide us with a list of all State-level and local-level 
automated telephone numbers that were available for clients in August 2001.  Because some 
States had more than one system, or multiple lines to a single system, States submitted 101 
State-level telephone numbers (Table 1). We called all of the telephone numbers to verify that 
they were automated systems, rather than live service, and currently in operation. We 
eliminated non-working numbers and 
Table 1: State-level automated telephone systems 
those which duplicated other 
systems. Our final list consisted of  Classification  Systems 
69 State-level numbers from 49  Automated systems  69 
States, and we base our report  Live representatives  14 
statistics on this set. The remaining  In-State-only access  9 
two States did not have automated  Duplicates  4 
systems. We further reviewed a 
Other  3 
sample of local-level systems to 
Disconnected  2 
provide additional insight regarding 
Total  101 
the possible experiences of child 
support enforcement clients seeking  Source:  Verification of State-reported telephone numbers, 
Office of Inspector General 
information and services in States 
which operate local systems. 
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Automated Telephone System  OEI-06-00-00460 Because we found no significant differences between these local-level systems and the State-
level systems reviewed, we do not include data regarding local-level systems in our report. 
Data Collection 
Two OIG analysts separately reviewed each State-level system between August and October 
2001. Using a standardized protocol, reviewers systematically recorded and assessed multiple 
factors regarding content, accessibility, and usability. We developed the protocol through a 
review of literature describing customer service efforts in child support enforcement and other 
fields, and pre-inspection data collection and analysis using a sample of State systems.  We 
attempted contact of each State-level system during three time slots, to verify access at different 
times of the day and different days of the week. The primer on page 5 of this report outlines 
the items we reviewed by category. 
Once contact with a system was successful, reviewers accessed all menus, noting mechanical 
features and creating a tree of all available selections. Reviewers also rated the 
comprehensiveness of the information given. A system was considered to have provided 
substantive information about a topic if the level of detail and practicality of the information 
contained in the recorded messages appeared sufficient to inform callers without referral to a 
live representative or other source.  If such substantive information covered an array of topic 
areas, we considered the system as a whole to provide comprehensive information. We also 
determined whether any referral numbers given by systems were accessible and what 
information they provided. 
When selections culminated in transfer to a live representative, we recorded at what point in the 
menus this option was offered, whether staff were available, and how quickly they answered. 
Because case-specific information often requires a client access code, our access was limited, 
but we reviewed as much of this service component as possible. Although most criteria could 
be reviewed objectively, ratings of a few factors, such as voice clarity and pace, were based on 
the judgment of the two reviewers. When the judgment of reviewers differed, we combined 
ratings for average measures of items. 
Data Analysis 
We conducted our data analysis at two levels: State-centered (using the 49 States with at least 
one operating system); and system-centered (using the total of 69 State-level systems).  For the 
State-centered analysis, we identified the most expansive system with the most service options 
in each State. This State-centered analysis is presented first in the report, to characterize the 
level of national coverage of automated telephone systems, as well as to identify the number of 
States with exemplary systems. The remainder of the report uses all 69 State-level systems to 
focus on describing overall system characteristics. This system-centered analysis enumerates 
the types of information and services offered, and rates their accessibility and usability on a 
number of factors. The combination of State-centered and system-centered analysis provides 
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3 
Automated Telephone System  OEI-06-00-00460 both a complete national view of State use of systems and an operational view of how they 
work. 
The basis of much of our analysis is our development of a list of model system traits.  After 
dissecting all system traits captured by the standardized data collection protocol, we developed 
a guideline, which describes traits of the best systems.  In addition to identifying these model 
characteristics, our subsequent analysis uses the model as a guideline for comparing and 
describing various specific system traits regarding content, accessibility, and usability. Last, 
reviewers gave all systems an overall rating, to provide a collective view of the quality of each 
system, serving as a confirmation of our systematic evaluation of specific items within systems. 
We used positive ratings to confirm our selection of model systems and negative ratings to 
help identify limitations to system usefulness. We describe these recurring limitations, and 
highlight features and modifications that could improve system quality. 
Data Limitations 
We note a few limitations to our data collection process.  The first is that our calls to State 
automated systems occurred during a three-month period in 2001, and we recognize that States 
may have subsequently modified their systems. Also, the use of OIG analysts to complete the 
standardized protocols may introduce a bias toward callers who are more adept at using 
automated systems. On this point, analysts were instructed to view system traits from the 
perspective of a less-experienced caller to the extent possible.  Callers to automated systems 
are assumed to typically be parents, but may include other interested parties, such as 
employers.  Thus, we will use the term callers for those who used these automated systems. 
Last, our focus on State-level automated systems should not be taken to mean that clients might 
not also receive telephone service from local-level automated systems or strictly through live 
representatives. 
This study was conducted in accordance with the Quality Standards for Inspections issued by 
the Presidents Council on Integrity and Efficiency. 
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Automated Telephone System  OEI-06-00-00460 Primer On State Child Support Enforcement Automated 
Telephone Systems:  Items Reviewed and Model Traits 
Our evaluation focused on the content, accessibility, and usability of all State-level automated systems. 
We developed a standardized protocol to record and rate their characteristics.  Consideration was given to 
customer service literature in child support enforcement and related fields, and pre-inspection data 
collection using a sample of State systems.  After dissecting all system characteristics, captured by the 
standardized data collection protocol, we created a guideline for model traits, which describes 
characteristics of the best systems.  We selected these traits because we found them to be indispensable 
to providing effective service to the broadest number of callers.  The following table lists items reviewed, 
within the three evaluative categories, and denotes the resulting model traits we determined to be most 
critical to system usefulness. 
Automated Telephone Systems: Items Reviewed and Model Traits 
Items Reviewed  Model System Traits 
Case-specific information (payment and other)  Provide payment information 
T Program information (paternity, enforcement, etc.)  Provide comprehensive program information 
N
E Introductory recorded message 
T
N Instructions for making payments 
O
C Instructions for application process 
Local office contact information 
Other social service program information 
Primary system function 
T
LI
BI Attempts to access  Accessible on first attempt 
SI Hours of operation  Operate 24 hours, 7 days a week 
S Toll-free status  Provide toll-free access 
E
C Live representatives and hours available 
C
Rotary caller access 
A
Spanish language access 
Access variability (by time and day) 
 
Y Overall usefulness  Rated high in overall usefulness 
T
LI Ease in reaching a live representative  Direct transfer to live representatives 
I
B Shortcuts to advance through menus  Allow repeat callers to skip ahead 
A
S Option to repeat menus  Allow system to repeat menus 
U
Use of technical jargon  Avoid problematic jargon 
System instructions  Instruct callers on their use 
Clarity and pace of narration 
Narrative consistency 
Wait time between selections 
Navigation errors 
Menu sequence 
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Automated Telephone System  OEI-06-00-00460 F I N D I N G S  
Automated telephone systems play an integral role in how State child support enforcement 
agencies provide customer service. To assess the provision of information and services, we 
directly accessed and reviewed all 69 Statewide automated telephone system that States 
reported operating in August 2001. Based on our guideline of model system traits, we found 
that 14 States have systems that could be considered models of operation.  These systems 
provide substantial information, are readily accessible, and easy to use. The 69 systems 
generally provide information about a variety of child support enforcement issues, and 61 
systems allow clients to access case-specific information. Although we found that all systems 
provide useful information, we identify a number of limitations to usefulness, such as recorded 
messages that are too complex and  over reliance on live representatives to provide key 
information and services. 
OVERVIEW OF STATE SYSTEMS 
Forty-nine State child support enforcement agencies use automated telephone 
systems to provide customer service 
Forty-nine States, including the District of Columbia, operate at least one State-wide 
automated telephone system, as a means of communicating with clients. 
Of these 49 States: 
<  37 provide substantive information and service through their automated system; 
<  6 use their systems to direct callers to obtain information elsewhere; and 
<  6 	use their systems to provide assistance only to existing clients, by requiring a case 
number or personal identification number to access their systems. 
Of the two remaining States, one reports to operate an automated system, but we could 
not access it after repeated attempts over several months, and therefore, assume it is not 
available to callers. The other State reports that it provides all telephone service through live 
representatives. Thirteen States operate more than one State-wide automated system. 
In 14 model States, callers have superior access to comprehensive and useful 
child support enforcement information 
These 14 States exhibit a number of traits that set them apart (see primer on page 5). The 
combination of comprehensive system content, ready accessibility, and high usability, allow 
them to provide customer service effectively and efficiently. In addition to thorough assessment 
of each item in our protocol, reviewers gave a rating of overall usefulness, after pursuing all 
menu options for each.  All 14 model States have all of the 
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Automated Telephone System  OEI-06-00-00460 traits we considered critical to identifying automated systems as models, and were also rated 
highly on this broader measure.  The 14 States with model child support enforcement 
automated telephone systems are Hawaii, Indiana, Kentucky, Massachusetts, Minnesota, 
North Carolina, North Dakota, New Hampshire, New Jersey, Texas, Utah, Virginia, Vermont, 
and Wisconsin. 
Twenty-six other States have systems which meet most, but not all, of these model system traits 
and were rated highly by reviewers in overall usefulness. The nine remaining States operate 
automated systems that are missing more than two model traits. Reviewers experienced 
difficulty in accessing these systems, found them frustrating to navigate, and reported that they 
typically contained less substantive information than their model counterparts. 
The remainder of the report uses all 69 State-level systems to outline overall system characteristics. 
SYSTEM CONTENT - Model system content provides both case-specific payment information 
and comprehensive program information. 
Callers receive case-specific payment information through 61 of the 69 systems; 
payment instructions and program overviews are also common 
Case-specific information.  Information about individual cases, primarily related to tracking 
child support payments, is available through 61 of the 69 State-wide systems (Table 2). 
Payment information is usually 
Table 2:  Information provided by automated telephone 
provided in an automated fashion, 
systems 
following client entry of a personal 
Topic:  Of 69 
identifier.5 Common items offered in 
Systems: 
payment menus are the dates of 
Case-specific information  61 
payment receipt and disbursement, 
Payment instructions  52 
as well as the total amount of any 
Program overviews  47 
arrearage due.  Introductions to 
Instructions for application process  43 
case-specific menus often clarify 
County contact information  33 
how current the payment information 
(telephone, address, etc.) 
is and when the system will next be 
Paternity establishment procedures  27 
updated.6 Eighteen of the 61 
Enforcement information (tax intercept)  25 
systems which give case-specific 
Referrals to related programs  22 
information rely exclusively on live 
representatives to provide these  Source: Analysis of 69 systems, Office of Inspector General 
details, having no automated 
information about cases.7 
Payment instructions.  Fifty-two systems offer information about how to make payments 
and how the child support enforcement agency processes payments. Wage 
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Automated Telephone System  OEI-06-00-00460 withholding is the most prominent payment-related topic, with 10 systems giving instructions for 
establishing, adjusting, and canceling wage withholding orders.  Other instructions outline paying 
by mail or through Electronic Funds Transfer.  Menu options may also provide information 
about payment of arrearages and interest policies. Although all 69 systems reviewed are 
primarily intended for child support enforcement clients, 28 systems also target payment-related 
information to employers. For example, employers can provide information about new hires 
and changes in employment through live representatives or voicemail. 
Program overviews.  Forty-seven systems provide recorded descriptions of child support 
enforcement services, which are typically brief, but give useful program overviews. These 
automated systems describe child support enforcement agency policies and procedures, and 
outline the stages of the enforcement process:  paternity and order establishment, location, 
enforcement, and disbursement. The portion of the enforcement process that is most often 
covered thoroughly (27 systems) is paternity establishment, including information about 
voluntary paternity acknowledgment, and locations for submitting to genetic testing. Potential 
clients can receive varying degrees of information about the application process from 43 
systems, and 33 systems also provide contact information for local child support enforcement 
offices.  Other topics appear geared toward management of existing cases, including review 
and adjustment, case closure, and suggestions for pursuing interstate cases or adding medical 
support to an order. 
Referrals to related programs.  Twenty-two systems give callers guidance regarding other 
social service programs or court-related services. Social service programs covered by 
automated systems include TANF public assistance programs, family counseling, and 
healthcare services. These systems typically provide contact information for the relevant 
agency, with a few giving more substantive details, such as program descriptions and 
qualifications.  Nine systems provide information about issues related to, but outside, the realm 
of the child support enforcement agency, such as referrals for court-related services or job 
training. 
Enforcement information.  Systems also provide information about specific enforcement 
tactics, such as tax and insurance intercept initiatives, interstate enforcement procedures, 
passport denial, and reports to credit bureaus.  Systems may also be able to provide individual 
information about their use in specific cases.  Tax intercept information, covered by 25 States, 
is particularly detailed and includes explanations of related tax code and how intercept is 
handled for joint returns. Systems appear to anticipate calls from noncustodial parents, who 
may only make contact with the child support enforcement agency after these measures have 
been used in their case.  For example, some recorded messages explain the legal basis for the 
enforcement measure and provide information for appealing an enforcement action. Other 
topics appear targeted for custodial parents, such as instructions for reporting overpayment, 
delayed payments or lost checks, as well as messages describing how clients might take better 
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Automated Telephone System  OEI-06-00-00460 advantage of enforcement strategies, such as providing additional information about the 
noncustodial parent. 
Model systems are accessible on the first attempt, operate
SYSTEM ACCESSIBILITY -
24/7, and provide toll-free service. 
Caller access to information is generally good, with 57 systems available 24/7, 49 
offering toll-free service, and 57 answering calls on the first attempt 
Hours of operation.  We found that  Table 3: System accessibility features 
57 of the 69 systems operate 24 hours a 
Features:  Of 69 Systems: 
day, seven days a week (Table 3). 
24-Hour access
 57 
Those not operating around-the-clock 
Access on first attempt
 57 
are typically limited to business hours, 
approximately 8:00 a.m. - 5:00 p.m.  Toll-free access
 49 
Systems with limited hours often have  Rotary caller access
 28 
after-hours recorded messages which tell  Spanish language access
 19 
callers when they should call back for full 
Source: Analysis of 69 systems, Office of Inspector General 
service.  One system offers more 
extensive automated information after 
business hours, because live representatives provide most of the information during regular 
hours. 
Attempts to access.  Fifty-seven of the 69 automated systems answered reviewers calls on 
the first attempt. Among the 12 systems that required more than one attempt to reach, six were 
accessed on the second or third attempt, and six required upwards of 10 attempts before our 
calls were answered. When they were not answered, systems typically either return a busy 
signal or continue ringing indefinitely with no response. Two systems play recorded messages 
indicating that because all lines are busy, callers should try again later. 
Toll-free status.  Forty-nine systems are accessible toll-free from anywhere in the continental 
United States. Among the 20 systems that are not toll-free, eight have calling areas that cover 
the entire State in which they operate. Twelve systems require a toll call, but one of these 
offers to accept collect calls in its introductory message. 
Rotary caller access.  Twenty-eight telephone systems specifically notify callers using a 
rotary telephone that they can choose either a speech-activated menu or a live representative 
for information. However, at least some of the systems that do not mention services for rotary 
callers, nevertheless, appear to route such calls to a live representative, if no menu selection is 
made after several seconds. 
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Automated Telephone System  OEI-06-00-00460  Callers to 19 systems can access menus and recorded messages in Spanish; no 
other alternative languages are offered 
Spanish is the only language alternative to English offered by automated systems, with 19 
systems providing recorded messages in both languages.  Callers to these systems are typically 
offered a choice between Spanish or English, prior to the first menu.  The U.S. Census Bureau 
identifies California, New Mexico, New York, and Texas as having the largest proportion of 
adults who speak Spanish but do not speak English well.8 All four of these States offer a 
Spanish language option within their child support enforcement automated telephone system. 
Among the 50 systems that offer information only in English, four indicate in their recordings that 
staff are available to communicate in other languages. However, this service may require calling 
another number or leaving a voicemail message requesting a return call. 
Model systems allow callers to make selections and repeat menus 
SYSTEM USABILITY -
before menus end, feature system instructions, avoid problematic 
jargon, and directly transfer callers to live representatives. 
To ease navigation, callers may select items before menus end and repeat menus, 
but systems may not give instructions or alert callers to use these features 
Navigational tools and
 Table 4: System usability features 
instructions.  To ease navigation,

Features:  Of 69 Systems: 
systems let callers make selections

Shortcuts to advance through  61 
and repeat menus before menus end,

menus 
but these systems may not give

Option to repeat menus  55 
instructions or alert callers to these

Instructions for system use  49 
features. Sixty-one systems allow

callers to make a menu selection
 Source: Analysis of 69 Systems, Office of Inspector General 
without listening to the entire list of

menu options (Table 4). By using the early selection function, callers can more quickly access

desired information. However, this option is not always explicitly indicated, so that reviewers

only discovered the function by attempting to make selections before messages ended. 

Fifty-five of the 69 systems allow callers to repeat menus, and five of these automatically repeat

menus when callers delay making a selection. The option to repeat menus helps callers avoid

making multiple calls to get all the information needed.  We found the easiest to use systems

include information on repeat functions in the introductory message. They also briefly remind

callers how to use the repeat function at the end of each recorded message, and automatically

repeat the menu if no selection is made. However, 14 of the 55 systems that have the repeat

function do not inform callers of the option, and seven other systems only mention their repeat

function well into menus.

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Automated Telephone System  OEI-06-00-00460 Forty-nine automated systems offer callers specific instructions for use, as either a part of the 
introductory message or a separate menu item. These instructions are particularly valuable for 
callers unfamiliar with the system, as were our reviewers.  They typically inform callers how to 
repeat menus, make selections before the end of a list of options, and return to the main menu. 
However, we found no need for instructions when a system was well-designed and 
straightforward. 
Callers encounter clear and well-paced recorded messages in 57 systems, and 
only 4 systems use difficult technical language or jargon 
System narration.  Recorded voices used by the systems are usually clear and well-paced. 
Using three factors (voice clarity, voice consistency, and pacing), reviewers rated 57 of the 69 
systems easy to understand. When recordings were difficult to decipher, it was typically due to 
inconsistency in narration, computer-generated voices, or rushed delivery. Narrative 
inconsistency, such as voice changes with each menu option, appears to be the result of systems 
incorporating messages recorded at various times.  While such inconsistency is not necessarily 
disruptive, it sometimes distracts from the message and appears less professional. Messages 
spoken too quickly also make it difficult for callers to write down information. Pacing is 
particularly important when systems provide contact information, such as local office addresses 
and telephone numbers. To alleviate problems caused by message pacing, a few systems 
automatically repeat referral information. 
Use of technical language. While 47 automated systems use at least some technical terms, 
only four use such language or jargon to a degree that reviewers found problematic, using 
technical terms or jargon frequently without explaining the terms. Examples of more difficult 
terms we encountered include arrearage, obligor, skip trace, and adjudicate, and acronyms not 
in wide use such as EFT (Electronic Funds Transfer).  Although usually defined by the narration, 
we also found that systems overall tend to rely heavily on acronyms or abbreviated agency titles, 
such as IV-D, DCSE or Kids First.  Forty-seven systems use technical terms in some 
capacity, but most terms are defined or further explained. 
Forty-eight systems provide callers with the option to talk with a live 
representative, and other systems provide voicemail service 
Use of live representatives.  Forty-eight systems supplement their automated services with

the option to speak with a live representative.  Of these 48 systems: 

<  38 offer live service during weekday business hours;

<  9 offer extended weekday hours; and

<  1 offers weekday hours plus Saturday service.

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Automated Telephone System  OEI-06-00-00460 When selecting this option, callers are typically connected with customer service specialists or 
child support enforcement caseworkers who either provide callers with information or direct 
them to where they can obtain information. Some systems route calls to representatives by 
topic. Representatives can typically inform callers about recent payments or perform general 
administrative tasks, such as updating a clients mailing address.  Beyond these basic functions, 
the level of personal service varies.  Examples of other services include fielding questions 
regarding policies and procedures, case-specific services unrelated to payment, such as 
scheduling an appointment, or adding new information to the case file. 
Reviewers found live representatives fairly easy to reach.  Representatives answered 
immediately for 19 of the 48 systems, within three minutes for 25, and exceeded three minutes 
for only four systems.  When callers had to wait for a live representative, they were typically on 
hold rather than listening to a continuous telephone ring. Despite generally short wait times, 
reviewers found the live representative option difficult to use for seven systems. Problems 
include difficulty finding the option within the menus, persistent busy signals, lost connections, 
and connection to a voice mailbox rather than a live representative. 
Voicemail alternative. Nineteen of the 21 systems that do not offer a live representative 
allow callers to interact with the system by leaving voicemail messages. A common use of 
voicemail is to allow callers to request a change of address or documents, such as case payment 
histories. Another use is to encourage callers to leave voicemail with tip-offs about the 
whereabouts or income of a non-paying parent. 
LIMITATIONS TO SYSTEM USEFULNESS 
Upon completion of their comprehensive review of each systems content, accessibility, and 
usability, reviewers gave each an overall rating.  They rated 44 systems as easy or very easy 
to use, 18 as neither easy nor difficult to use, and seven systems as difficult or very difficult 
to use.  Further analysis of the 25 systems that received a neutral or negative overall rating 
revealed limitations to their usefulness for callers.  In this section, we identify these limitations and 
contrast less useful systems with model systems. 
Problems commonly inhibiting usefulness for callers are systems that are too 
complex, are not caller-oriented, and include outdated information 
Overly complex.  When systems provide a wide array of options, they may become very 
detailed without enhancing usefulness or properly directing callers to key topics. Reviewers 
found navigating systems frustrating when they are highly detailed but do not provide the 
thorough content and full service expected from such exhaustive systems. These systems tend to 
include vast menu options within which the most critical topics can easily be lost. For example, 
arcane tax code descriptions might be listed within the initial menu, while the payment address is 
provided deep into a second or third tier menu. In 
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Automated Telephone System  OEI-06-00-00460 other cases, numerous menu options seem to promise substantive information, but are really just 
elaborate routing systems for voice mailboxes. This was particularly frustrating when callers had 
screened through several menu layers to get to their topic of interest. Even when the options 
provide substantive information, the recorded messages are often wordy and complicated, such 
as the system which provides citations from State law for each policy issue discussed. 
Model systems provide a large number of recorded messages without added complexity and 
with features which assist caller use. Reviewers identified three strategies that allowed them to 
better absorb and handle the multiple options.  One strategy involves systems using screener 
questions in the main menu which lead to menus with more specific options.  Another strategy 
involves placing topics likely to be of greatest interest, such as county contact and payment 
information, among the first offered in initial menus. A third strategy provides separate menus for 
custodial and noncustodial parents. These menus often include some of the same information, 
but allow parents to avoid wading through many options that did not apply to them.  Equally 
important to all strategies was the use of brief messages in simple, clear language. 
Not user-friendly.  When systems were rated difficult to use overall, it was often because their 
features, content, and tone are not conducive to assisting or serving callers. Model systems 
present content from the perspective of offering service to customers, predicting caller needs and 
easing experience with respectful tones and user-friendly features. One ineffective system 
instructs callers to contact their county first, and then sternly admonishes them to call us only if 
you have a problem.  Sometimes systems include adequate information and features, but 
reviewers felt that using the systems would not be comfortable or reassuring to clients. This was 
caused by a combination of the voices and language used, such as very formal program 
descriptions recorded with a fast-paced and monotone delivery. 
We found other examples of inattentive service.  One system requires callers to submit questions 
in writing rather than offering live representative or voicemail options.  Another directs callers to 
the telephone book to find contact information for local offices instead of providing the 
information. This lack of direction is especially confusing when recordings refer to the office by 
its acronym, such as DCSE. Another system, referring callers to local offices, disconnects those 
who do not know how to spell their county name, rather than providing a list of counties or a zip 
code directory as other systems do. Sometimes indifference to callers concerned mechanical 
features, such as the complex system that has a time limit of five minutes for the duration of 
telephone calls, or several that disconnect callers for exceeding the number of options a caller is 
allowed. Full voicemail boxes were another service issue, with reviewers finding some full for 
days. 
Ill-suited to new callers.  New clients may not find automated systems to be as useful as 
veteran callers, particularly when a telephone call is the first attempt to gain access to services. 
As shown in Table 2, only 43 of 69 automated systems offer specific instructions 
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Automated Telephone System  OEI-06-00-00460 about how to apply for child support enforcement services. Systems lacking information about 
applications sometimes offer messages explaining the various stages of enforcement, but do not 
include simple, clear instructions for the novice client to begin pursuing enforcement. 
Additionally, system mechanics sometimes do not appear to consider new callers. As shown in 
Table 4, only 49 systems offer instructions for navigating menus, and only 55 offer callers the 
option to repeat menus. First-time users in particular might require information to be repeated in 
order to write down telephone numbers, addresses, or additional information. 
So as not to burden repeat callers, one system uses a screening option that separates new from 
existing clients.  New callers receive menu options outlining program services and how they 
might apply, while existing clients reach options that focus on case management, such as 
payment and order modification. This allows both types of callers to access useful information 
more quickly, and might also make the system less overwhelming to novices. 
Over-reliance on live representatives.  Generally speaking, live representatives contribute 
to system usefulness by allowing clients to gain additional information not provided through 
recordings and automated features. However, reviewers found that too much reliance on live 
representatives to provide information and services limits the overall usefulness of systems. As 
noted, live representatives are available only during certain hours and days, and reviewers 
experienced some wait time on a majority of systems with live service. Additionally, some live 
representatives are tasked only with directing callers to where they can obtain information rather 
than providing the information. Because of these limitations, callers cannot access information 
except during live service hours and must make additional calls to gain any information and 
services that are not automated. 
Model systems tend to respond to all of the most commonly anticipated client inquiries through 
automated functions, making live representatives available primarily for unusual client needs. In 
particular, all model systems make automated access to payment information available around 
the clock.  Additionally, model systems provide recorded messages about many child support 
enforcement topics.  It makes them not only more available than live information, and it also 
helps to insure that all callers hear the same information on any given topic.  In addition to being 
more useful to clients, the Federal Performance Review suggests that automated information is a 
cost-effective means of providing customer service. 
Inaccurate or outdated information.  Reviewers encountered information that was 
inaccurate or had not been updated recently.  For example, five systems provided telephone 
numbers for local child support enforcement offices that we found to be either wrong or 
disconnected.  Callers seeking these local office telephone numbers would have to obtain them 
elsewhere.  One system referred to the long-defunct Assistance for Families with Dependent 
Children (AFDC) program which had been replaced by the Temporary Assistance for Needy 
Families (TANF) program at least four years prior to our data collection. While such outdated 
information is not inaccurate, reviewers found it tended to 
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Automated Telephone System  OEI-06-00-00460 slow the flow of recorded messages and created questions about whether more critical 
information, such as payment data, would be current. Model systems update frequently, 
notifying clients of recent events or policy changes that might affect their cases or payment 
processing. Model systems also appear to update at least their introductory messages almost 
daily and inform callers about the timing of the last automated update. 
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Automated Telephone System  OEI-06-00-00460 SUGGESTIONS FOR IMPROVEMENT 
CONCLUSION 
Our analysis of model child support enforcement automated telephone systems identifies key 
content and features employed by the most useful systems. These traits, including 
comprehensive content, ready accessibility, and usability features, combine to create systems 
which are helpful to both novice and experienced callers.  In terms of system content and 
information, we found that it is critical for systems to provide clear and quick access to the most 
important topic areas, such as case-specific payment information. Among features of 
accessibility and usability, we found that automating key topic areas and providing basic 
navigational tools are highly important to improving caller experiences. While all systems 
provide valuable information, we found limitations to their usefulness.  Following review of both 
model and less effective systems, we developed a number of suggestions for improving 
automated telephone systems and enhancing service to callers. 
SUGGESTIONS FOR IMPROVEMENT 
To improve the content, accessibility, and usability of State child support enforcement automated 
telephone systems, we suggest that the Administration for Children and Families (ACF) provide 
technical assistance to help States enhance their systems.  The traits listed in the primer on page 
5 could serve as a model for basic system features, and could be promoted to States by listing 
them on the ACF website. In carrying out these suggestions, particular emphasis should be 
placed on improving operations in the nine States identified as using poor automated systems. 
<	 Focus on key topic areas.  Assist States in simplifying their automated telephone 
systems, both in content and function, to help them emulate the model States. Without 
sacrificing comprehensive content on a variety of program components, service should 
focus primarily on key areas, such as payment and case initiation. The most useful 
systems contain substantive information, but in a streamlined fashion.  The information 
provided focuses on key, critical issues by making select information on such things as 
payment immediately accessible and allotting space deeper in the menus for information 
that is less likely to be of value to all callers. 
<	 Make systems more user-friendly.  Assist States in developing automated 
telephone systems that focus on service to parents, are available around the clock, and 
provide features to improve caller experiences.  This would likely involve technical 
assistance to States targeted at creating systems that include useful navigational tools and 
mechanical features.  Consideration should also be given to conveying information to 
parents in a respectful and courteous tone. 
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Automated Telephone System  OEI-06-00-00460 <	 Target first-time callers.  Foster State efforts to include messages, features and 
content specifically targeted to first-time callers and those not familiar with child support 
enforcement procedures. These might include instructions to apply for enforcement 
services, more comprehensive descriptions of program services, and detailed county 
office contact information.  Callers might benefit further from the provision of a separate 
menu built specifically for new or prospective clients. 
<	 Automate functions when possible. Encourage States to automate all key 
information and services, particularly case-specific payment information. Although the 
provision of live representatives gives clients a choice about how to interact, these 
representatives are not always available.  Systems should attempt to answer basic caller 
questions through recorded messages and automated interaction, reserving live 
representatives for unique inquiries. 
<	 Update information frequently.  Encourage States to develop ways to keep 
information available on automated systems accurate and current. Most critical is the 
accuracy of further contact information, such as county office addresses and telephone 
numbers. Attention should also be paid to temporary, time-sensitive messages included 
within the introduction and subsequent menus, as well as policy and program information 
relevant to clients. 
AGENCY COMMENTS 
ACF concurs with the findings and suggestions for improvement included in our report. Additionally, 
ACF plans to publicize the traits of model automated telephone systems on their agency website. ACF 
also indicates that it will target the nine States rated poorly in our report for further review and technical 
assistance.  In commenting on our report, ACF outlines details of web-based training that it is currently 
offering to State child support enforcement agencies. These efforts appear to address many of the 
limitations to achieve effective customer service that we identify for automated telephone systems.  As 
our report indicates, similar technical assistance could be of value in improving automated telephone 
systems. 
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Automated Telephone System  OEI-06-00-00460 ENDNOTES

1.  Government Performance and Results Act, Pub. L. 103-62, August, 1993. 
2.	 Office of Child Support Enforcement, Administration for Children and Families, U.S. 
Department of Health and Human Services, Child Support Enforcement Strategic Plan. 
Washington, D.C., February 1996. 
3.  Ibid, page 4. 
4.	 Federal Benchmarking Consortium. Putting Customers First Serving the American 
Public: Best Practices In Telephone Service, Washington, D.C., National Performance 
Review, February 1995. 
5.	 Typically, these unique identifiers were any one or a combination of a clients Social Security 
number, case number, or personal identification number (PIN). A few systems require multiple 
identifiers, using numbers, such as the dependents date of birth. 
6.	 In all cases that designated how current the payment information is, the date was the last 
business day prior to our call. 
7.	 These staff, as well as live representatives available through more fully-automated systems, can 
typically also provide case-specific information not related to payments, such as court hearing 
dates. 
8.	 The Census 2000 Supplementary Survey, Table 3035: Age by Language Spoken at Home by 
Ability to Speak English, U.S. Census Bureau, Washington, D.C., 2001. 
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Automated Telephone System  OEI-06-00-00460 __________
Child Support Enforcement

19 
Automated Telephone System  OEI-06-00-00460
 COMMENTS OF THE ADMINISTRATION FOR CHILDREN AND FAMILIES ON THE OFFICE OF THE INSPECTOR 
GENERAL (OIG) DRAFT REPORT: STATEWIDE CHILD SUPPORT ENFORCEMENT AUTOMATED TELEPHONE 
SYSTEMS: (OEI-06-00-00460) 
General Comments 
The Administration for Children and Families appreciates the opportunity to comment on this draft report, which 
addresses the use of technology to support exemplary customer service. The Office of Child Support Enforcement 
(OCSE) has been working closely with the OIG on this effort. OCSE and OIG were panelists at the National Child 
Support Enforcement Association annual meeting in New Orleans in August 2002 discussing the need for improving 
customer service and increasing the use of automation to serve child support clients. 
ACF Response 
OIG presents five (5) opportunities for improvement. Our response addresses the opportunities as a group rather 
than individually. The reason for taking this approach is that the OIG's report focuses on the use of voice response 
units to provide 24/7 access to child support clients and OCSE is currently focusing efforts on encouraging states to 
provide 24/7 access to child support customers via the internet. The technologies differ while the goals are shared. 
OCSE proposes to support these goals by providing a web-based customer service training course which will address 
several of the OIG recommendations including making systems more user-friendly, automating functions when 
possible and updating information frequently. 
While OCSEs focus is on a customer service web initiative, OCSE is also planning to conduct level of automation 
reviews for states. The nine states identified in the OIG report could be targeted for assistance by the OCSE staff 
during our automation summits and level of automation reviews. OCSE also has a best practices compendium and 
searchable web site, where we can publicize the best practices identified in this OIG report. 
Here are the details of our web-based training curriculum. In FY 2002, OCSE contracted with State Information 
Technology Consortium (SITC) to develop training and provide 2-day training sessions on customer service web 
development. This course will showcase best practices and lessons learned from states and provide information for 
participants in defining, building, and operating a child support enforcement (CSE) web-based customer service 
system in states or territories. The training will be delivered five (5) times over the course of September 2002  March 
2003. At the end of this course, participants will be able to create a high-level system description, tailored for each 
participants state or territory, including information on some or all of the following system life cycle areas, as 
appropriate: 
	 Analysis implications, including functions and features, and locations for use of a CSE customer 
service website; 
	 Design implications, such as existing technical architecture, portals, other agency websites, data 
confidentiality and access controls, security and privacy, and system reliability considerations; 
	 Development implications, such as development platforms, testing procedures, multiple languages, 
and the degree of automation of interactive information; 
	 Implementation implications, such as training, piloting, promotion and publicity, and client 
awareness; 
  Operations implications, such as ongoing maintenance and enhancement; and 
  Management implications, such as tangible benefits, cost estimates, risk management, and lessons 
learned. 
Participants will receive relevant information and documentation collected from other states and a contact list of 
Federal and state personnel who can assist after the course ends. Participants will also leave the course with a to 
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Automated Telephone System  OEI-06-00-00460 do list of three to five specific actions they can take after training to facilitate progress in their agencies toward 
initiating or enhancing a web-based CSE customer service system. 
The courses were announced in Dear Colleague Letter-02-16, dated July 8, 2002. Here is the delivery schedule: 
  September 23-25, 2002 in Arlington, VA 
  November 14-15, 2002 in New York City; 
  January 13-14, 2003 in Dallas; 
  February 25-26, 2003 in Atlanta; and 
  March 25-26, in Seattle. 
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Automated Telephone System  OEI-06-00-00460 A C K N O W L E D G M E N T S  
This report was prepared under the direction of Judith V. Tyler, Regional Inspector General for 
Evaluation and Inspections in Region VI.  Other principal Office of Evaluation and Inspections staff who 
contributed include: 
Ruth Ann Dorrill, Team Leader  Linda Hall, Program Specialist

A. Blaine Collins, Program Analyst  Joan Richardson, Program Specialist

Deborah McGurk, Program Analyst 
Clark Thomas, Program Analyst 
Scott Whitaker, Program Analyst 
Lisa White, Administrative Officer 
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Automated Telephone System  OEI-06-00-00460