User Research
Summary Report
Chatbots - Oxford City Council

User Research Summary Report

Contents

Introduction
Executive summary
Training and on boarding
Research methodology and findings
Conclusion

User Research Summary Report

Introduction

Local councils want to adopt new ways of working to triage
inbound enquiries to reduce the burden on call centres, improve
services for their customers and become more efficient. Chatbots
and AI present an opportunity to help solve these challenges.
However, local councils currently lack shared understanding ofbest practices in the development and delivery of chatbots toserve customer needs. This lack of knowledge and process
presents the risk of inappropriate solutions being developed.
Torchbox developed a framework for local councils to evaluate
whether Chatbot and AI technology should be considered to help
increase efficiency, improve the user experience and reduce theburden on call centres - with the ultimate aim of developing arobust business case.

User Research Summary Report

Introduction

This report focusses on the user research element of this projectand is part of a wider programme of work. A summary of the fullproject activities and conclusions may be found in our final report:
Project Summary Report | April 2019 | Council Chatbots | Torchbox.

If you want to read all of our findings in detail please refer to ourreports:
ROI Analysis and Market Summary | April 2019 | Council Chatbots | Torchbox
Technology Landscape Review | April 2019 | Council Chatbots | Torchbox
Example Shared Architecture | April 2019 | Council Chatbots | Torchbox
Case Studies | April 2019 | Council Chatbots | Torchbox

A blog has been published by the project lead, Neil Lawrence ofOxford City Council. To read articles covering each stage of the
project please visit the blog here.

User Research Summary Report

Executive Summary
All findings are based on user interviews conducted within the four
research areas in the respective selected councils.
Supplementary research was also provided by additional
participating councils to either validate or challenge findings.

Executive summary

Nature of each service
Planning
A complex and subjective topic requiring humanassistance to progress through typically longexperiences. Users will engage with the council toprogress or check progression of a task.
Waste and recycling
A simple topic which can be easily resolved byboth self service and quick interactions with thecouncil. Poor service has a significant impact on
people’s lives, increasing propensity for calls to
the council.

Revenues and benefits
This emotional and complex topic requires
certainty, guidance and reassurance as it is aservice that can significantly affect people’s lives
and finances. Users will not hesitate to call forclarity and support.
Highways
A varied topic with a wide range of tasks - withmore emotional interactions than expected due toits health and safety nature. Users will call to
discuss complex urban planning concerns or tocheck progression of a report, request or query.

Executive summary

Key user needs
Throughout our research sprints we identified
universal user needs that were present in eachservice area.
Generally speaking, users want to feel heard. They
want to feel like their voice has value. However, they
understand that there are limited resources and they
don’t expect to always get their way, but they do
expect, at least, a response.

Users have high expectations led by the modern
service industry. They expect communication
turnaround times to be short and customer support
teams to be knowledgeable and caring. However, theyalso understand that government services are limited
in resources and don’t expect staff to work late.
Ultimately, users need to feel safe in the hands ofthe council, particularly as they do not have a choice.
There is no competitor that they can switch to if thecouncil does not meet their expectations.

Executive summary

Calling the council
Factors which contribute to calls to the council:
Is the task urgent?
If a user is dealing with an urgent the task, thehigher the need to speak to someone and getreassurance that it will get resolved.
Is the task unfamiliar?
If dealing with a new or unfamiliar process, and if
the information or ability to self-service is notavailable or easily accessible, then users will not
hesitate to pick up the phone.

Is the task complex?
If users cannot quickly or easily self serve orcomplete a task - if they require Council
assistance, guidance or authentication - they are
more likely to pick up the phone or use a blend ofchannels over a long period of time.
Is the task emotional?
If a user is emotional or distressed it will either benecessary to get additional assistance orreassurance over the phone. But sometimes,
users just want to voice their feelings - particularly
if they are angry, frustrated or resentful.

Executive summary

Forces influencing behaviour switch
Forces that are blocking change:

Forces promoting a new choice:

Habit: Users find that picking up the phone is easy
and familiar. It is the channel that enables them tocommunicate with the least amount of effort.

Situational push: Users are pressed for time, theywant to self serve, they need to get a job done outside
working hours. They need to find information orcomplete a simple task.

Anxiety: Users fear that other channels might notenable them to communicate as effectively, that they
won’t feel as valued, they might not know how to use
another communication tool (talking is second nature)or that ultimately, other channels will take longer to gettheir job done.

Appeal of new solution: Users would like an easy
and accessible way to self serve to solve simple tasks
and information requests. Users would like to be
notified of important information to avoid needing tocall or reach out to the council.

Executive summary

Informing UX principles
User needs and current experiences can inform user experience (UX) principles that should guide future design
decisions and technology selection when considering a Chatbot solution.

User needs:

User experiences can be:

UX principles:

To get a ‘job’ done

UrgentEase, Speed & ResponsivenessTo feel heard and valued

Complex

Self service & Accessibility (24/7)

To have an informed answer

Unfamiliar

Proactivity, Information & Alerts

To feel safe

Emotional

Trust, Reassurance & Accountability

User Research Summary Report

Training and on boarding
How to carry out user research in order to develop and deliverproducts and services that serve customer needs.

Training and on boarding“When designing a government service, always
start by learning about the people who willuse it. If you don’t understand who they are orwhat they need from your service, you can’t build
the right thing.”
gov.ukTraining and on boarding

Introduction
This project had the dual purpose of conducting user
research with four chosen councils per research area,
and training Councils to conduct their own user
research.

Torchbox focussed on one location per researcharea across four research sprints, with other councils
doing their own user interviews, following the methods
shared during training for consistent project outputs.

Planning

Waste and recycling

Revenues and benefits

North East
Derbyshire /BolsoverRedditch &Bromsgrove

OxfordHertsmere

PrestonCheltenham

Rotherham
Adur & Worthing
Doncaster

Highways
SurreyTraining and on boarding

User
researchtraining

We conducted user research training at two locations, withrepresentatives from 13 councils.
During training, we covered an introduction to user researchvalues and methodologies, with a strong focus on userinterviews.
We shared training materials and provided the councils with aframework, templates and tools to conduct user interviews.
You can find a PDF copy of our user research training slides
here.

Training and on boarding

Purpose of
research in a
discoveryphase

To identify and explore the current experience of people whowant to do the task your service provides.
To use interviews and visits to explore relevant aspects of theirlives and work.
Have a detailed map that presents the current experience of
likely users, descriptions of different types of users (eg:personas) and a set of needs for different types of users.
To get the service team involved in research during discovery /talking to users from the beginning helps everyone understandthe problems you’re trying to solve.

Training and on boarding

Researchaims for thisproject

To understand the user experience of customer support ineach research area - user motivations, triggers, frequency ofaccess, success and pain points.
To understand users’ mental models and terminology usedduring communication, search and navigation. Are there
regional variances?
To understand user experience of, and attitude towards, digitalchannels and technology. For example: social media,
communication channels and chatbots / automated services.

Training and on boarding

Templates
and tools

All councils were instructed to collect, analyse and synthesise
data using the shared templates. This saved time during tightproject timescales and allowed us speak a common language
when sharing learnings and insights.

Training and on boarding

Sharing inShow & Tells

We held weekly Show and Tells with the participating councils
to provide a highlight of that week’s key research findings.
We were able to consistently share findings and hear insightsfrom other participating councils - to either align or challenge
each other’s findings.
We also used this opportunity to relate experiences and reflect
on key points of learning regarding the user research process.

User Research Summary Report

Research Methodology& Findings
The research methodology and framework were devised to captureuser insights to add to the wider programme of work. These would help
to either validate or challenge data analytics and stakeholder interviewsfor each council.

Research Methodology & Findings

Methodology
We followed a repeatable process acrossfour research sprints to uncover customer
needs in each council service area.

Methodology

Research Sprints
Below are the relevant times, service themes and locations for each research sprint. Other councils also
contributed supplementary user research data.
11/03/2019

18/03/2019

25/03/2019

01/04/2019

Planning

Waste & Recycling

Revenues & Benefits

Highways

Redditch & Bromsgrove

SurreyTorchbox conducted user research at these locations:
OxfordNE Derbyshire

The following councils conducted their own user research:
Hertsmere
Cheltenham

Bolsover
Rotherham
Doncaster

PrestonAdur & Worthing

Methodology

Research Sprints
This project was set up so that Torchbox would conduct four x four day research sprints. A fixed schedule was set
up and this process was repeated across the four weeks.

1

2

3

4

5

MondayTuesday

WednesdayThursdayFridayTorchbox

Interviews & Analysis

Interviews & Analysis

n/aAnalysis & Synthesis

Reporting & Demo

Council *Interviews & Analysis

Interviews & Analysis

AnalysisAnalysis & Synthesis

Demo* Other councils doing their own user research could conduct their research as and when they could,
so long as data synthesis and documentation could be shared ahead of our weekly show and tells.

Methodology

Research Sprints
We allowed an hour per user interview followed by half an hour of post interview analysis. This enabled us toanalyse findings whilst insights were fresh in our minds and improve efficiency during a tight four day sprint.
MondayTuesday

10:00 - 11:00

User Interview

10:00 - 11:00

User Interview

11:00 - 11:30

Mini Analysis

11:00 - 11:30

Mini Analysis

11:30 - 12:30

User Interview

11:30 - 12:30

User Interview

12:30 - 13:00

Mini Analysis

12:30 - 13:00

Mini Analysis

Lunch : 13:00 - 14:00
14:00 - 15:00

User Interview

14:00 - 15:00

User Interview

15:00 - 15:30

Mini Analysis

15:00 - 15:30

Mini Analysis

15:30 - 16:30

User Interview

15:30 - 16:30

User Interview

16:30 - 17:00

Mini Analysis

16:30 - 17:00

Mini Analysis

Methodology

User recruitment
As this project was operating under tight timescales, user recruitment was one of the biggest
challenges we faced - particularly for the first research sprint.
User recruitment requirements per sprint:
Minimum of six - maximum eight users
Face to face - alternatively, phone interviews£60 gift voucher was recommended as an incentive to boost appeal and decrease risk ofno shows
Any channel recommended for recruitment - posters, social media, marketing emails - solong a varied group of participants were recruited.

Methodology

User interviews
Scripts were set up to uncover insights on:

Consent forms were devised for users to either:

Experience of service - step by step, successes
and pain points

Consent to this particular research only

Motivations - triggers and desired outcomes

Consent to being part of future research *Access of service - time and frequency of access
Mental models - terminology used by customers
Channels - preferred and used
Technology - the experience of and attitudes
towards* This enables councils to engage with these users for future user
research. By building a cohort of users who are interested in taking
part in research, it can save time in finding relevant participants infuture research projects.

Methodology

User interview data
User interview data was analysed and synthesisedusing the templates shared during training. To
document the end-to-end user journey for eachservice area, we:Documented user needs with user stories
To communicate what users want to do, and why
they want to do it

Visualised experience maps
To communicate key findings that map out a user’s
experience of a service, including:User Needs
Tasks
Channels & Devices
Emotional state

As a… [which type of user has this need?]
I need/want/expect to… [what does the user want to do?]So that… [why does the user want to do this?]Pain Points
Compelling forces

Research Methodology & Findings

Research
Areas
Our research sprints focussed on:
Planning
Waste and recycling
Revenues and benefits
Highways

Research Areas

Research Limitations
Recruitment:
The councils were able to recruit users representing a
range of ages, physical ability and socio-economic
background.
However, given the tight timeframes on this project,most users were either people with irregular work
patterns, self-employed, part time employees,
unemployed or retired - thus, having the flexibility totake part during working hours.

Council-specific user insights:
The user insights found in this report are specific tothe chosen leading councils for each research area.
During weekly show and tells we ascertained thatvariances in user insights were mostly due to1) councils’ operational delivery, and2) broad topics with user insights being drawn fromsix to eight user interviews.
However, councils still shared key findings, trends andpatterns regarding user needs.

Planning in Oxford
Chatbot Project User Research

Planning in Oxford

Key Findings
Six user interviews based in Oxford. Five face-to-face andone over the phone.

Two key journeys identified: 1) Users who are managing
their own planning application, and
2) Users who are checking or challenging someone else’s
planning application.

Both journeys involve complex and subjective interactions
and exchanges.

In both journeys, there are high stakes and users are
generally very invested. However, challenging a planningapplication is a more ‘emotional’ journey from the outset.

Web and self help are the first port of call - however, if users
are stuck, confused or need reassurance they will not
hesitate to call.

Planning in Oxford

User Quotes
About contacting the council…
“I wouldn’t need to phone if someone actually answered my emails!”“The council might or might not call, it’s unsettling. If I call them I canfind out sooner.”“I would rather wait to speak to customer services, so long as waiting
means you get the right information the first time round”“Being able to call 24/7 seems unrealistic, but at least until 7pm”

“I would prefer to speak with someone… but as acouncil tax payer and as an economist, I understandspeaking isn’t always possible”

Planning in Oxford

User Quotes
Nature of the Planning service…
“The FAQ's are too generic, there is nothing that fits my needs”“You would have to do most of this on desktop because there is
too much information and too many files to be able to see
properly on a phone…”“I can see new draft local plans - but it is unclear which ones are
already being adopted and which are not… How can you
challenge an application without knowing this?”“It is difficult because it is so subjective - lots ofcomplex information you need to get your headaround”

Planning in Oxford

User Quotes
Types of communication…
“If you’ve got it in writing, you’ve got proof of what you’ve said!
Good to have a record, to be clear on whats happened and toremember whats been said ”“So many times something is misinterpreted, like on social
media, people misread what others have written… its
dangerous!”“Trying to explain things in an email just doesn’t
work, sometimes speaking to someone is the only
option… but calling tends to be the last resort.”

My planning application
experience
User experienceMy planning application experience

User Stories
Initial Contact

Ongoing contact & development

Submit application

Council response

Potential appeal

I want to engage with the council

I want to get detailed advice regarding
my application

I want to submit my application

I want to hear if I have been successful
with my application

I want to appeal the rejected
application

So I can start work as soon as possible

So I can get approval to do work thatmatters to me

So I can kick off the application process

So I can reduce the risk of mistakes andfailureI want to understand the application
process
So I can request the correct
documentation and plan my time andactions accordingly

I want to get detailed advice
regarding my application
So I can get the most value out of
my investment

I want to get detailed advice
regarding my application
So I can be legally compliant

So I can get legal approval from theProcess of checking and /or challenging someone’splanning application
experience
User experienceProcess of checking and / or challenging someone’s planning application experience

User Stories
Awareness

Initial search

Detailed research

Submit comments

Ongoing communication

I want to know whats happening in mycommunity

I want to seek details about a local
planning application

I want to seek details about policies,
legislation and local plans

I want to submit my comments to thecouncil

I want to be kept informed

So I can understand how to get themost value out of my own property

So I can understand how it can / does
affect me

So I can make a strong legal case whenchallenging the application

So I can have them reviewed and taken
into legal consideration

I want to know whats happening in mycommunity

I want to seek details about a local
planning application

So I can challenge bad planningapplications to protect and preserve mycommunity

So I can challenge it if I do not agreewith it

I want to know whats happening in mycommunity
So I can protect my home, my family lifeand my best interests

So I can know the outcome of theapplication

I want to be kept informed on changes
to my community
So I can understand any value being
added / challenge bad applications

Waste and recycling
in NE Derbyshire
Chatbot Project User ResearchWaste and recycling in NE Derbyshire

Key Findings
Six user interviews based in Chesterfield, NE Derbyshire.
Four face-to-face and two over the phone.

Most of the tasks were simple information or service
requests - all users who called the Council said that thecalls were dealt with quickly and easily.

Majority of users defaulted to mobile use - this reflects
users’ perception that waste and recycling tasks are simple
can can be addressed via their mobile phones.

All users had difficult web experiences on the Council
website - resulting in going back to Google to search for the
information elsewhere or calling the Council directly.

All users voiced a preference to self serve where possible- if this is not possible, or if it is difficult, they would nothesitate to call.

These are paying customers - but they can't switch if they
have a bad or unsatisfactory service. If their issue is not
resolved, they usually have to adopt inconvenient
alternative solutions.

Waste and recycling in NE Derbyshire

User Quotes
About contacting the council…
"I call when it’s something I can't access myself.”“I could text to ask for a new bin, and get a response to tell me itwill get sorted - if someone gave me a timescale I would be
confident that it would get sorted.”“I don’t have time to look around - saves me time by just calling.”"The world isn’t so 9-5 anymore... people lead very different lives
and have different schedules.”“I wouldn’t expect people to work 24/7.”

Waste and recycling in NE Derbyshire

User Quotes
Nature of the Waste and recycling service…
"I expected to be given some informationby the council when I moved in…"
“When I couldn’t get a bigger bin - they told me to ask a neighbour to switch
bins with me. I’m sure they were just trying to help but I thought it was quite
unprofessional - I wasn’t too happy about that.”"Its really frustrating when bins get collected and you already have abacklog of 3 bin bags because your bin is too small.”"I got a call to sort out my council tax - that was really handy! One less thing
on my list.”Waste and recycling in NE Derbyshire

User Quotes
Types of communication…
"I don’t want to come across as someone whocomplains…"“Texting isn’t so formal… I wouldn’t reply to PDP [delivery service] ‘I look forward to meeting Wayne in due course’ - you just get helpful
notifications.“"I quite like when it’s just a robot and you can get all your things
down and not have to worry about speaking to someone.”“I wanted to get in touch with {payment provider} - I was getting
scammed, so I needed to get in touch with someone immediately. I
used their 'automated assistant' - I was writing about scams and it
was sending me links to related articles instead of putting me
through to a person. I start getting Tourettes at the computer!”Waste and recycling user
experience
User experienceWaste and recycling Experience

User Stories
Trigger need

Online searchCouncil website

Contact council

Task resolution

I want to understand what the rules arein this council

I want to find information about my
Waste and recycling query

I want to find information

I want to contact the council

So I can live by the rules and get my life
in orderSo I can resolve my issue

So I can know what to do about mywaste & recycling

So I can resolve my issue / ask for
information

I want to know when my bins /components are being delivered

I want to make a complaint / request

I want to call the council

So I can resolve my issue and get backto normal

So I can make a payment

I want to ensure everything is in order

I want to find information from theright council

So I can get rid of my household waste
as normal

So I can contact and resolve myissue

So I can know when to expect theirdelivery (especially if I have paid forthem)

I want to resolve this issue
So I can get on top of my household
waste & recycling

I want to call the council
I want to contact my local council
So I can set up my life in my new home

I want to search for council information
using an effective and familiar searchengineSo I can find the information quickly andeasilyI want to find contact details for mylocal council
So I can contact them about myquery and get things resolved

I want to find a contact number
So I can call the council and resolve
my issue

So I can report an issue
I want to have further information
about the service
So I can use it appropriately

I want to able to rely on the council
services
So I can avoid inconvenient alternative
solutions

Revenues andbenefits in Redditch
Chatbot Project User Research

Revenues and benefits in Redditch

Key Findings
Seven user interviews based in Redditch. Six face-to-faceand one over the phone.

Two key journeys identified: 1) Billing and enquiries, and
2) Applying or switching council housing. These were bothfocussed on Benefits only - no interviews based on
Revenues.

All users started journeys at a point of anxiety anddisadvantage due to life circumstances or frustration due toerrors made by the council.

Reassurance and control is a key need of users’ overall
experiences due to the high risk and potential negative
impact on life if issues are not resolved.

Users are more likely to call rather than self serve online.
For those who do try to self serve online, their online
experience is so bad that they call - as its quicker andeasier to resolve their query or issue.

Trust issues were also prevalent - this is due to thefinancial nature of the service and the potential for real
impact on people’s lives.

These experiences can be cyclical as users need toperiodically ask for support or give supporting evidence. The
pace of the experience can also change from ‘slow’ to‘urgent’ as users can be suddenly expected to react quickly.

Revenues and benefits in Redditch

User Quotes
About contacting the council…
“Having copies gives me reassurance that I have my back covered - I got
an email saying that I was off the list because I didn’t send documentation so I sent them the trail of emails.”“A text would be fine if I want to know when my bill is due… It’s quick fire,
don’t want to wait for ages on the phone for an answer to a simple
question.”"I don’t have much trust in the council answering my email… [quality of
response and time of response].”“If I had just had a heads up that there was abacklog I wouldn’t have called. Just nip it in
the bud.”

Revenues and benefits in Redditch

User Quotes
Nature of the Revenues and benefits service…
“I need someone to explain things to me - it’s quicker than me taking
forever to figure things out myself.”“Problems don’t always arise between 9-5, Monday - Friday…. and I might
not be available then!”“My husband is disabled and we need a bungalow so its easy for him to
move around. We were waiting for over a year to find a place and now
we’ve had to start all over again!”“I like doing things myself, but I
needed help.”

Revenues and benefits in Redditch

User Quotes
Types of communication…
“If people wanted to talk to me I'd rather see in writing so I can see
things in my own time.”"If I had emailed I might have asked a few more questions! I hangthe phone then go, oh I should have said this and that! Oh nevermind.”“I prefer calling - makes it easier to express yourself. Talking is betterto be understood.”“If I had a slot I would happily wait to talk in detail - I
would feel important, so many times you don’t feellike people are giving you the attention you deserve.”

Billing and enquiries
experience
User experience

Billing and enquiries experience

User Stories
Event - Push

SearchContact

Resolve

Confirmation

I want to be kept up to date withcouncil costs / income

I want to search for contact details

I want to contact the council

I want to contact the council

So I can get in touch with the council
who can help me

So I can complain about a mistake andresolve the issue

So I can follow due process tocomplete my task

I want to receive confirmation of taskcompletion

I want to research my rights

I want to contact the council

I want to submit forms / evidence

So I can be prepared forconversations with the council

So I can enquire about service
eligibility

So I can follow due process andcomplete my task

I want to respond to a council letter

I want to contact the council

I want to contact the council

So I can understand the implications /rectify mistakes

So I can ensure my issue / request is
being resolved

So I can ensure my issue / request is
being resolved

I want to get receipts / copies ofcommunications

I want to get receipts / copies ofcommunications

So I can cover my back in case things
go wrong

So I can cover my back in case things
go wrong

So I can plan my finances and makeends meet

I want to adapt to recent changes in mylife
So I can make things better and makeends meet

So I can have peace of mind

I want to get receipts / copies ofcommunications
So I can cover my back in case things
go wrong

Applying or switching
council housing
experience
User experienceApplying or switching council housing experience

User Stories
Push - change in context

Contact council

Coordinating

Final steps

Unresolved

I want to adapt to recent changes in mylife

I want to contact the council

I want to contact the council

I want to contact the council

I want to contact the council

So I can complain about a mistake andresolve the issue

So I can ensure my issue / request is
being resolved

So I can ensure my issue / request is
being resolved

So I can ensure my issue / request is
being resolved

I want to contact the council

I want to contact the council

So I can enquire about service
eligibility

So I can follow due process tocomplete my task

I want to contact the council

I want to contact the council partners(housing association)

I want to contact the council

So I can follow due process tocomplete my task

So I can ensure I have all theinformation needed to resolve my issue

So I can make things better and makeends meet

I want to educate myself about my
options
So I can plan and act appropriately

I want to search for contact details
So I can get in touch with the council

So I can arrange / change my housing
benefits

I want to get receipts / copies ofcommunications

I want to contact the council

So I can cover my back in case things go
wrong

So I can ensure I have all theinformation needed to resolve myissue

I want to contact the council
So I can be up to date on my place inthe queue

I want to submit forms / evidence
So I can follow due process andcomplete my task

I want to contact the council partners(housing association)
So I can follow due process tocomplete my task

Highways in Surrey
Chatbot Project User Research

Highways in Surrey

Key Findings
Eight user interviews based in Leatherhead, Surrey. All
face-to-face interviews.

Two key journeys identified: 1) Reporting an issue orrequesting an improvement, and 2) Complex urban planningenquiries.

The key motivation for engaging with the council wasaround safety and reducing both existing and potential
negative impacts on daily life and the community (forexample: traffic, road safety, parking).

This is a subjective issue - how does one classify andprioritise highways issues? Do residents agree with this?

Users were predominantly frustrated about not feelingheard. Not getting a response, not getting meaningful
justifications, not getting reassurance that they are notasking for the unreasonable.

Confusion around how councils are organised, who is
responsible for what, who should they call?

Users expect organisations to display joined up thinking particularly with complex urban planning enquiries.

Users expect the councils to have established processes
for commonplace issues such as potholes

Highways in Surrey

User Quotes
About contacting the council…
“Nowadays you’d expect to have access to things 24/7. Being able tobook appointment outside of work hours is expected. But I wouldn’t
expect someone to talk to me about this at midnight.”“We need to take responsibility for it - we need to report issues, it is thecouncil's responsibility to mend things.”“Hard to tell how councils are organised... its very Blancmange-y… it’s
not quite set.”(self help) “I’ve used internal search but 50 options come up - all these
irrelevant documents and meeting minutes.”"I might not have agreed with it... but I expected
some kind of response, some kind of answers or
justification / rationalisations for plans - awarenessof anticipated changes to traffic.”Highways in Surrey

User Quotes
Nature of the Highways service…
“People make it sound like we are all just making a big fuss about
potholes… but I once got 50 stitches on my face because of one.
They are dangerous!”“I have left notes on their car [person who parked where theyshouldn’t on users driveway] - I don’t want to have to aggravate
others about it - I wouldn’t want my car scratched or having a brickthrough my window.”“People get abusive with my wife and daughter [regarding parking
on tight driveways] . Not with me because I look like this. When I
leave notes on people’s cars I leave my house number on it - its notanonymous!”“If I had tarmac or yellow paint I'd do it [fix pot
holes / paint double yellow lines] myself! Its notreally something I can go and do myself.”

Highways in Surrey

User Quotes
Types of communication…
“Sometimes you speak to humans and you really haven’t moved
forward much…”“If you have to wait a few hours, you might have plans... You callwhen it is convenient for you.”“Difficult to speak to call centres in India - communication issues...
ability to understand what we are talking about.”“I’d take time to word an email properly and thatmight not reflect how I’m feeling. Sometimes it’s
important to let someone know how you’re feeling.”

Complex urban planningenquiries experience
User experience

Complex urban planning enquiries experience

User Stories
Awareness / Push

Meeting

Follow up

Escalation

Response

I want to aware of things happening in
my community

I want to meet with the council

I want to be kept informed
So I can know I have been heard

I want to have a considered response

So I can ask questions and express myconcerns and objections in person

I want to contact someone withauthority

So I can respond and ensure I live in asafe place

So I can make my voice heard

I want to be kept informed
I want to be kept informed ofcommunity updates
So I can respond and challenge
anything I don’t agree with

I want to check if the community isalready engaged in a process
So I can figure out if I have to takeresponsibility

So I can understand the council's next
steps

So I can know my voice has been heard

I want to have information andjustifications for proposed plans
So I can understand reasons andimpacts on my community

I want to have information andjustifications for proposed plans
So I can judge if the council has madea well informed decisionReporting an issue or
Requesting an
improvement
experience
User experienceReporting an issue or Requesting an improvement experience

User Stories
Awareness / PushI want to take responsibility to reportissuesSo I can do my civic duty

SearchReportResponse

Resolution

I want to know who is responsible fordifferent issues in the community

I want to report an issue

I want to be kept informed

So I can assign responsibility to thecouncil to get it fixed

So I can know I have been heard

I want to see that the problem is being
resolved

So I can get in touch with the right
person / organisation

I want to report an issue
I want to be aware of things happening
in my community

So I can get the council to make mycommunity safer / better

So I can have peace of mind

I want to be kept informed
So I can understand the council's nextsteps

I want to chase up the council
So I can ensure my voice is heard

So I can respond and ensure I live in asafe place
I want to chase up the council
I want to report an issue
I want to know what qualifies as an issue
So I can get in touch about issues thecouncil will / can resolve

So I can get the council to make mypersonal circumstances better

So I can ensure the council is going toresolve the issue

Drivers for choosing
communication
channels
Insights were gathered across all service themes on
peoples attitudes, perceptions and preferences forcommunication channels.

Drivers for choosing communication channels

How users perceive channels
There were some strong trends coming across the service themes. We have outlined users’ preferences
towards each channel based on what it enables them to do or how it hinders them. These include:In person

Email

Phone

Text / WhatsApp

Online chat

Automated
Chatbot

How users perceive channels

In person - Users are able to…
Build a rapport and relationship with anotherpersonPhysically point out specifics in physicaldocuments and media

Read body language

Get formal receipts when documents are handed
over to the council

Communicate complex and detailed information

How users perceive channels

In person - Users are hindered by…
Inconvenience - the need to do this during
working hours or having to take time off work
(Planning specific) Being unable to send
documents ahead of time

(Planning specific) Not being assigned to a
specific case worker - so having to start every
conversation from scratch
Tight meetings - not being able to have prolonged
periods of time with council staff

How users perceive channels

Email - Users are able to…
Add more detail within the text
Take a more considered and planned approach
Have an accurate historical log of allconversations - enabling accountability, memory
and reminders

Get a quick response when not in a hurry expectations are three days, or a working week atthe latest
Read at their own convenience and pace
Take time to find information they need to respond
appropriately

Attach files and documents
Reply in a formal format and channel

How users perceive channels

Email - Users are hindered by…
An impersonal one way conversation
Taking longer to get a response than a phone call- not a dynamic interaction
No confirmation emails - uncertainty if email has
been received / read
Getting pushed down the queue / getting lost in alarge volume of emails

Inability to understand tone / ability to
misunderstand content
User’s bad eyesightNot being tech savvy
Skip-reading emails (compared to reading every
word on letters which are more formal)

How users perceive channels

Phone - Users are able to…
Get a quick or immediate response

Feel like they are getting a ‘proper service’

Follow up on emails if they are not getting a response

Handle complex queries

Have a dynamic conversation and dialogue

Assign more accountability (get a name / tell council
to expect an email)

Scheduled phone call to fit within a busy day
Clear ambiguities and articulate reasonings
Express and understand tonality
Have a personal interaction
Feel heard and get reassurance

How users perceive channels

Phone - Users are hindered by…
Having to wait in queues or on holdFear that councils could deny that the call happened
if calls aren’t recorded or followed up by an email

Bad timing of inconvenient impromptu calls
Poor hearing
Forgetting to say everything you wanted to say or ask
in the moment

Unidentified numbers - users don’t like to pick up thecalls from people they don’t know

Anxiety of having to speak on the phone

Wasting the council’s time for simple enquiries

Inability to see peoples faces

Not having answers on the tip of their tongue (boththe user and council staff)

Not being able to schedule a call back due to working
hours

How users perceive channels

Text / WhatsApp - Users are able to…
Read and respond at their convenience

Have a log of conversations

Communicate in a quick and easy way

Can share images for free (WhatsApp)

Keep communication short and sweet

Quietly text at work

How users perceive channels

Text / WhatsApp - Users are hindered by…
Channel is not perceived as being professional

It costs to share images by SMS

Message can get misconstrued (shortermessages and writing style)

Lack of flexible dialogue (users don’t feel like it is
as reactive as speaking)Communication is staggered

How users perceive channels

Online chat - Users are able to…
Copy and paste excerpts from emails

Get in touch with someone who is knowledgeable
and can help resolve their issue

Ask questions and get a response
Have the convenience of out of hours support

How users perceive channels

Online chat - Users are hindered by…
Unresponsive interaction

Time spent typing - it could be much quicker toexplain an issue by talking

Delays in conversation or response
Support staff who are not knowledgable and are
just doing what the system tells them toHow users perceive channels

Automated Chat Bot Users are able to…
Get answers to simple questions

Get things done more easily - have barriers
removed for convenience

How users perceive channels

Automated Chat Bot Users are hindered by…
The fact that it doesn’t always work - it could be awaste of time

It will make them feel like what they have to say is notimportant

It might not be able to answer nuanced questions or
solve complex issues

Fear that it is just going to redirect them to customer
support anyway - it could be a waste of time

It might not understand what they are saying - orhave to try harder to use plain English

Perception that they have to ‘chat’ - instead of justfocus on getting their job done

Fear of not knowing how to interact with it

Fear of being ‘watched’ - some users do notunderstand how digital technologies work

Research Methodology & Findings

Trends andobservations
Across the research themes we observedsome key trends and patterns in ourfindings.

Key user needs andexpectations

Key user needs and expectations

Users want to feel heard
Users want to feel like their voice has value. Personal
interactions and timely, informed and detailed emails
make people feel like they are getting ‘a proper
service’.
Whilst some users expect to get support in getting
their ‘job’ done, some users don’t expect to always get
their way, but they do expect, at least, a response.
Some users just feel the need to have their
sentiments and opinions heard.

However, the vast majority of users expressed theirunderstanding that there are limited resources. That
they understand that councils are under financialpressure, and that there are greater priorities at playthan their own needs.

Key user needs and expectations

Users have high expectations
Users have high expectations led by the modern
private service industry. Most people will have a goodunderstanding of what a good service looks like, andat what point they would consider making a complaint.

Users are also stuck - they know there is noalternative. They cannot switch to a competitor - thisexacerbates the frustration when services don’t meettheir standards or expectations.

They expect communication turnaround times to be
short and customer support teams to beknowledgeable and caring. Whilst they understandthat councils are local government services, they still
expect a good standard of service as a tax payer.

However, users understand that local government
services are limited in resources and don’t expect, forexample, for staff to work 24/7.

Key user needs and expectations

Users want to feel safe
Ultimately, users need to feel safe in the hands of thecouncil. Users tend to contact councils or government
services when they need to act on somethingimportant or fundamental. It is vital for users to feelreassured that their reason for contacting has been
logged and that appropriate action will be taken.
The more important their reason for contacting, themore trust and reassurance they require to havepeace of mind.

Users will seek ways to hold councils or individual
council staff accountable for getting their ‘job’ done.
This is again particularly true as people do not have a
choice. There is no competitor that they can switch toif the council does not meet their expectations.

Key user needs and expectations

Ultimately…
“To a user, a service is simple.
It’s something that helps them to do something.”
gov.ukBest Practice

A goodgovernment
service…

A user can do what they need todo, from start to finish

What the service is for andwhat it involves is clear

A user has to do as few things
as possible

How decisions are made is
clear

There are no dead ends

The service is consistentIt’s straightforward to get humanassistance

The service works in a familiar
wayInternal structures are not shownto users

Everyone can use andunderstand the service

The service is easy to find

Users and their information aretreated with care and respect

gov.ukDrivers for calling thecouncilDrivers for calling the council

Perceived value and utility
In person
personal, formal, bureaucratic

Text
quick, simple, convenientEmailconsidered, detailed, formal

Online chatdynamic, convenient, expert support

Callpersonal, dynamic, reassuring

Automated chat bot
convenient, simple, transactional

Drivers for calling the council

Key contributing factors
Throughout all the service themes we have identified
key contributing factors to users’ experiences which
affect the ‘first port of call’ communication channel ofchoice.
Users with tasks which are complex, urgent,
unfamiliar or of an emotional nature are more likely to
opt for a phone call.

OPTIONAL

URGENT

FAMILIAR

UNFAMILIARSIMPLE

Users with tasks which are simple, familiar or optional- with users who feel generally passive - are more
likely to opt for alternative channels.

A PAT H E T I CCOMPLEXEMOTIONALDrivers for calling the council

Calling the council
Factors which contributed to calls to the council:
Is the task urgent?
If a user is dealing with an urgent the task, thehigher the need to speak to someone and getreassurance that it will get resolved.
Is the task unfamiliar?
If dealing with a new or unfamiliar process, and if
the information or ability to self-service is notavailable or easily accessible, then users will not
hesitate to pick up the phone.

Is the task complex?
If users cannot quickly or easily complete a task if they require bureaucratic assistance, guidanceor authentication - they are more likely to pick up
the phone or use a blend of channels over a long
period of time.
Is the task emotional?
If a user is emotional or distressed - it will either
be necessary to get additional assistance orreassurance over the phone. But sometimes,
users just want to voice their feelings - particularly
if they are angry, frustrated or resentful.

How to influence aswitch in behaviour

How to influence a switch in behaviour

Forces that influence customer switch“My current way just won't cut it anymore.”P U S H O F T H E S I T U AT I O N“This new way looks pretty good to me.”PULL OF NEW SOLUTION

NEW WAY

CURRENT WAY
HABIT OF THE PRESENTANXIETY OF NEW SOLUTION“There’s things holding me back from changing.”“I’ve got a few concerns about this new way.”How to influence a switch in behaviour

Forces that influence customer switch
I don’t have time / I don’t want to take up council’stime / It is out of hours and I need to urgently:

It is available 24/7

– get an answer to simple question

I can get answers to simple questions without having
to call– find information– complete a simple task

CURRENT WAY
PHONE

I can get simple jobs done without bothering anyone

I will be notified of any sudden changes to avoid
unwanted surprises

P U S H O F T H E S I T U AT I O N

PULL OF NEW SOLUTION

HABIT OF THE PRESENTANXIETY OF NEW SOLUTION

Calling is quicker and easier than anything else

It won't understand how I’m feeling

Phoning is easy and familiar

It won't make me feel valued

It is less effort to talk than type

It won't understand what I’m saying
I don’t know how to use it
Its just going to direct me to a phone number
anywayIt won't help me get my job done

NEW WAYCHAT BOT

User Research Summary Report

Conclusion
How user needs and current experiences should inform UX
principles that guide design decisions and technology selection
when considering a Chatbot solution.

Conclusion

Informing UX principles
User needs and current experiences can inform user experience (UX) principles that should guide future design
decisions and technology selection when considering a Chatbot solution.

User needs:

User experiences can be:

UX principles:

To get a ‘job’ done

UrgentEase, Speed & ResponsivenessTo feel heard and valued

Complex

Self service & Accessibility (24/7)

To have an informed answer

Unfamiliar

Proactivity, Information & Alerts

To feel safe

Emotional

Trust, Reassurance & Accountability