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    • 1. Integrated Approach toward Data Dissemination and Customer Communication at the U.S. Census Bureau A Case for Action U.S. Census Bureau May 23, 2004
    • 2. Customer Communication and Data Dissemination Page 2 The U.S. Census Bureau Mission The U.S. Census Bureau Mission “The Census Bureau serves as the leading source of quality data about the nation's people and “The Census Bureau serves as the leading source of quality data about the nation's people and economy. We honor privacy, protect confidentiality, share our expertise globally, and conduct our economy. We honor privacy, protect confidentiality, share our expertise globally, and conduct our work openly. We are guided thisthis mission ourour strong and capable workforce, our work openly. We are guided on on mission by by strong and capable workforce, our readiness to innovate, and our abiding commitment to our customers.” readiness to innovate, and our abiding commitment to our customers.”
    • 3. Customer Communication and Data Dissemination Page 3 Table of Contents 1.0 EXECUTIVE SUMMARY...................................................................................................4 2.0 CURRENT APPROACH TO DATA DISSEMINATION: HISTORY AND ADVANTAGES............................................................................................................................6 2.1 ORIGINS OF CURRENT APPROACH ..................................................................................................6 2.2 POSITIVE OUTCOMES OF CURRENT APPROACH ................................................................................6 3.0 CHANGES IN CURRENT ENVIRONMENT....................................................................8 3.1 INTERNAL PRESSURES TO CONSOLIDATE..........................................................................................8 3.2 POTENTIAL CENSUS BUREAU SERVICE IMPROVEMENT AREAS.............................................................9 3.3 EXTERNAL PRESSURES TO PROVIDE BETTER SERVICE......................................................................10 3.4 CURRENT RESPONSE TO PUBLIC DEMAND.....................................................................................11 3.5 URGENCY OF THE NEED TO CHANGE............................................................................................12 4.0 KEY INITIATIVES FOR AN INTEGRATED APPROACH TO DATA DISSEMINATION.....................................................................................................................14 4.1 ANALYZE THE CUSTOMER...........................................................................................................14 4.2 EVALUATE TECHNOLOGY AND CURRENT BEST PRACTICES...............................................................15 4.3 DEVELOP POLICIES AND STANDARDS............................................................................................16 4.4 IMPLEMENT FACILITIES AND INFRASTRUCTURE................................................................................16 4.5 IDENTIFY AND IMPLEMENT MEASUREMENTS OF SUCCESS..................................................................17 5.0 SUMMARY..........................................................................................................................18 APPENDIX A. BIBLIOGRAPHY........................................................................................A-1 APPENDIX B. CURRENT CENSUS BUREAU POINTS OF CONTACT.........................B-1 APPENDIX C. SAMPLE USES OF CENSUS DATA..........................................................C-1
    • 4. Customer Communication and Data Dissemination Page 4 1.0 Executive Summary The U.S. Census Bureau serves a vital role in the U.S. economy, American society, and its government at all levels. The data collected and supplied guides decision-making in local planning of schools, roads, and other facilities; in the distribution of federal entitlement funds; in retail site planning; in attracting new businesses to local communities; in disaster planning; in demographic research; in choosing a neighborhood to live. The many consumers of Census Bureau data range from members of Congress to the media, individuals, researchers, businesses, and public planners and policy-makers. However, the range and depth of the value of Census Bureau data to the economy and public policy is not widely understood nor fully utilized. Congressional offices and other trusted gatekeepers such as advocacy groups and the media cannot easily find and use relevant data directly from the Census Bureau, thus dampening their ability to serve as “validators” of the Census Bureau benefit. In addition, while the Internet has “democratized” data access for the public, many inexperienced users of Census Bureau data have difficulty finding and using what they need. Better information architectures, less Census Bureau jargon, and other human factors improvements are needed to expand the audience who could be actively advocating the importance of the Census Bureau mission and programs. Two primary and related factors lay beneath the difficulties in accessing and utilizing Census Bureau web-based information. First, product design and dissemination at the Census Bureau are done from a program/survey perspective rather than a data user perspective. The individual offices within the Census Bureau take great care in producing and disseminating the data products and survey results for which they are responsible. To take Census Bureau data products to the next level of public value will require a coordinated and consistent enterprise-level policy and focus around the needs of data users. These needs will have to be central to designing the next generation of data products that will make it easy to compare data across different surveys and to draw valid conclusions about demographic and economic trends. These kind of insightful comparisons are not possible with the existing program/survey perspective. Similarly, each of the many Census Bureau Web sites generally disseminates data only for a single program. To get their desired data, users must understand both the Census Bureau’s organization as well as its specialized language in order to locate and interpret the information they need. The Census Bureau has closely analyzed the public as survey respondent, recognizing the importance to response rates of keeping the data both confidential and non-political, and demonstrating significant improvement each decade in the differential undercount of targeted minority populations. However, the same level of scrutiny has not been applied to the public’s needs as consumers of Census data. A methodical, comprehensive approach to gathering and understanding the needs of Census Bureau data users and of understanding their capabilities is needed to do so. Without such a coordinated effort communication overlaps and gaps will most likely increase, with some groups being contacted by several Census Bureau divisions and some being overlooked entirely. As a result, users seeking Census Bureau information for professional or personal use currently perform their own integration after gathering pieces data via the various Census Bureau Internet sites and other customer communication and outreach channels such as call centers and product sales venues. For their searches to be most effective, the users need specific knowledge of the Census Bureau’s internal organization and its respective surveys and products. Even then, when users successfully identify services and data of potential use, they are given only moderate levels of guidance from the Census Bureau to help them understand, evaluate, and compare the myriad of survey results the data represents.
    • 5. Customer Communication and Data Dissemination Page 5 As public expectations for user-centric data dissemination increase, a consistent enterprise approach to data dissemination and customer communication is needed to maintain the Census Bureau’s reputation for relevant high-quality data and its ability to obtain funds for important new programs. Although improved quality and better customer service in data dissemination may not directly result in higher response rates, dissemination is and will continue to be as important a part of the Census Bureau’s mission and reputation as its excellence in data gathering and statistical analysis methodologies. Likewise, a better informed public and a more satisfied set of data users could indirectly affect higher response rates with certain surveys. In keeping with the realized benefits and the increased emphasis on improving government service to the public, better understanding customer needs and an enterprise approach to data dissemination are critical to accomplishing the evolving scope of the Census Bureau mission. To address this problem from a user standpoint, the Census Bureau should pursue a market research approach to data dissemination, analyzing user needs and applying this knowledge to customer service and data dissemination program planning. User information requirements can be gathered and analyzed through such methods as analysis of user traffic on existing Census Web sites, user surveys and feedback, interviews, advisory committee discussions, and focus groups. The range of users and their requirements can then be categorized and prioritized, with data dissemination services planned to meet each user segment’s needs, using where applicable, best practices from the public and the private sector and the international community. The potential role of technology in data dissemination should be thoroughly analyzed as well. Distributed databases, increased use of metadata, web services, and online facilitation of data distribution should be included in the evaluation. Regardless of the optimal back-end and middleware environment, a single Web site, built from a solid understanding of Census Bureau data users and organized to serve these user segments, could increase customer satisfaction and help the Census Bureau remain agile and responsive with future data products. Previous analysis in this area indicates that the development of an integrated corporate data warehouse as a storehouse of Census data intended to support customer needs and feed this new Web site would be a critical success factor and therefore a top priority in an integrated dissemination effort. Additionally, the user segments created for this single Web site could be used to target strategic public communications and be reflected in all of the Census Bureau’s communication and outreach channels, from its Web site to its call centers. The challenges for the implementation of an integrated, Census Bureau-wide approach to data dissemination and customer service will not be insignificant. Meeting these challenges will entail a strategic, coordinated effort to create new policy, work together across organizational boundaries, introduce new technology, and implement creative new ways of doing business. Nonetheless, these challenges must be addressed in order to meet the government and the public’s increasing demands for better access to Census data, and for the Census Bureau to fully achieve its mission.
    • 6. Customer Communication and Data Dissemination Page 6 2.0 Current Approach to Data Dissemination: History and Advantages 2.1 Origins of Current Approach Over the years, the Census Bureau has developed a nuanced organizational understanding of how to target various populations of the general public for survey participation. However, it has not yet consistently applied the same level of strategic corporate attention to the public’s needs in their roles as Census Bureau customers. Each program within the Census Bureau works hard to understand customer requirements, but generally is limited by the context of its own program. The Census Bureau has historically encouraged each of its programs to operate more or less independently of the others. The source of this autonomy is the Census Bureau’s historical and primary focus on ensuring the accuracy of collected data and protecting confidentiality, rather than focusing on optimizing Congressional and other stakeholder data use. Staffed primarily by highly educated and experienced statisticians, the Census Bureau has long fostered a climate of collegial, academic research rather than customer-driven products and services. Each program is staffed by experts within their own field, who are respected for their knowledge and domain expertise and considered sovereign within their own sphere of influence. When the Census Bureau has worked together across programs, it has traditionally done so via coordinating committees rather than organizationally or hierarchically under executive leadership. The cultural result is a set of established programs within the Census Bureau which are individually effective, but whose singularity of mission focus must be addressed for the level of integration needed to overcome the increasingly complex challenges of an integrated approach toward data dissemination. 2.2 Positive Outcomes of Current Approach The decentralized Census Bureau culture has led to many positive results, both technical and programmatic. Each office has been able to make decisions and implement programs more quickly and easily, without the need to consider wider implications outside its own programs. Technical advances have also come from this research-driven culture. The Census Bureau’s need for rapid data processing of high volumes of data led to the development of the punch card by Herman Hollerith in 1890, and more recently to the invention of the FOSDIC image reader in the 1960’s. Perhaps most importantly, the Census Bureau’s dedication to accuracy and survey excellence above all else has largely insulated it from charges of political influence. During its 100-year history as a separate government organization, it has managed to develop and maintain an untarnished reputation as a provider of accurate, unbiased information about the people and economy of the U.S. The Census Bureau’s reputation for collecting, processing, analyzing, and disseminating data in a non-partisan, non-political manner is recognized as key to its success in maintaining its credibility and in obtaining responses from the public for its censuses and surveys. The individual Web sites and data dissemination programs produced by the various program offices are also worthy of positive note. Although no one office has been given the authority or responsibility to manage the customer communication and outreach and the data dissemination programs across the Census Bureau, each individual program has done its best to satisfy users of its data, despite limited budgets. Several programs have created very thorough data dissemination services and Web sites with excellent features and a loyal user base, including the Decennial and Economic Directorates, the American Community Survey (ACS) program, and others. Other programs, most notably QuickFacts and FERRETT, have consolidated data from multiple sources, and provide important services to segments of the user population. The Census
    • 7. Customer Communication and Data Dissemination Page 7 2000 and 1990 gateways also helped consolidate some of the many sources of information into a single user portal. Working within their limitations of scope and funding, these programs have generally been highly successful at meeting their individual missions.
    • 8. Customer Communication and Data Dissemination Page 8 3.0 Changes in Current Environment Despite its benefits, the Census Bureau’s decentralized approach hinders its ability to react to growing pressures, both external and internal. The post-9/11 world has meant less certainty in public funding for non-security related programs. The Census Bureau is also faced with the need for greater accountability to the Office of Management and Budget (OMB) and Congress for its programs, and a push to consolidate and make its internal programs efficient. At the same time, as technology advances and the public becomes more accustomed to direct, immediate access to the information and services it seeks, the demands on the Census Bureau and other organizations to provide faster, customer-oriented public service have become greater. 3.1 Internal Pressures to Consolidate The primary internal pressures on the Census Bureau come from two areas: (1) Intense competition for funding; (2) OMB and the Commerce Department requirements to increase efficiencies and consolidate similar programs within and across agencies. Financially, the Census Bureau is under increasing pressure from the Department of Commerce, OMB and Congress to contain its overall costs, especially for the decennial Census. The plan to replace the “long form” in 2010 with a fully-implemented American Community Survey (ACS) program, the planned improvements in the Master Address File/Topologically Integrated Geographic Encoding and Referencing (MAF/TIGER) system before the 2010 census, and the re- engineered 2010 census are part of the Census Bureau’s response to reducing or at least containing decennial costs. OMB is also driving government agencies to provide more “citizen-centric” services. While maintaining the high level of survey accuracy and privacy, the Census Bureau will face continuing pressure to place survey and census results in the hands of the people who paid for them: the taxpayers. OMB’s primary tools have been its E-Government initiatives, the President’s Management Agenda (PMA), and the OMB Exhibit 300 form required for major programs. In July 2003, OMB told Congress that it is progressing with plans to revamp federal technology systems along six general “lines of business,” one of which clearly targets the Census Bureau: “data and statistics.”1 This overhaul is designed to eliminate isolated systems performing similar functions in the same agency or across agency lines. Congress itself is also supporting the call for greater efficiencies. For example, the House Subcommittee on Technology, Information Policy, Intergovernmental Relations, and the Census (TIPRC), a subcommittee of the Committee on Government Reform, is providing Congressional oversight on 2010 census planning, including implementation of the ACS program and the 2002 Economic Census. This subcommittee has taken as its mandate “to improve communication, coordination, and efficiency within the Federal government, to monitor the implementation of E-Government initiatives, and to provide oversight on the consolidation of redundant and duplicative activities to achieve greater efficiency, productivity, and customer-oriented access to public information.”2 The U.S. government is not alone in this goal. A 2002 Accenture survey of 23 developed nations found that “national 11 See Infoworld (http://www.infoworld.com/article/03/07/15/HNgovtitcosts_1.html?hardware) 2 See Davis (http://reform.house.gov/TIPRC/AboutUs.htm).
    • 9. Customer Communication and Data Dissemination Page 9 governments are articulating key priorities for cross-agency E-Government rather than leaving individual agencies to determine their own online presence.” 3 3.2 Potential Census Bureau Service Improvement Areas With pressure from OMB and Congress to consolidate programs and to justify new ones through the increasingly stringent Exhibit 300 program and its E-Government initiatives, the Census Bureau will be facing closer scrutiny with each budget cycle. The Census Bureau will need to consider the consolidation of many programs across many Census Bureau organizations, especially those related to data dissemination and customer service. Areas where improvement can occur include the following: • Data Tabulation and Data Review. Currently, each major program invests separate resources in programs for data tabulation and review. The Economic Directorate has consolidated its surveys and censuses under a single tabulation and review system, but ACS, Decennial, and other programs all approach this function individually. • Call Centers/Customer Support Contacts. At latest count, there were more than thirty different Census Bureau customer support phone numbers (excluding the 12 additional field ISP office numbers) and another comparable set of e-mail contacts. (See Appendix B.) • Bureau Sales. The Census Bureau sells data products through several distinct organizations, including the Marketing Services Office (MSO), the Population Division (POP), Housing and Household Economic Statistics (HHES), Foreign Trade Division (FTD), Construction Statistics Division (CSD), and Geography (GEO). • Physical Media (CD-ROMs/DVDs/Diskettes). While the Administrative and Customer Services Division (ACSD) is the largest developer of CD-ROMs and DVD products, several programs in the Census Bureau produce separate physical media, with most using different file formats. • World Wide Web. There are some 20 different data dissemination Web sites within the Census Bureau, from American FactFinder to FERRETT to separate sites for Population, HHES, ACS, Governments, Economic, Demographic Surveys Division (DSD), Current Population Survey (CPS) and others. Only a few sites focus on the broader needs of certain user groups such as Congress and the media; these sites try to integrate Census Bureau data from multiple sources. Most of the rest, with the exception of QuickFacts and American FactFinder, focus exclusively on disseminating their own survey data, without reference to other surveys or programs with potentially related data. They have their own staff who perform this work. Even collection and analysis of Web traffic is handled separately on different parts of the site with Census.Gov, American FactFinder and ACS using different COTS products. There are significant opportunities for improvement in these data dissemination systems and methodologies. Because of traditional budgeting approaches toward data dissemination, it is difficult to precisely quantify its historical costs, but previous estimates have shown that at least ten percent of the Census Bureau’s staff is involved in data dissemination, not including staff and costs associated with product design, tabulation, and data review. Additionally, the Census Bureau traditionally has expended significant effort and resources in customizing data products and other outputs for specialized Census Bureau needs rather than leveraging industry best practices. Extensive justification of printed and online report formats, online mapping capabilities, and specialized rounding, variance and median algorithms, have all been justified by 3 See Greenspan, Robyn. Around the World with E-Government. http://cyberatlas.internet.com/big_picture/geographics/article/0,,5911_1015531,00.html
    • 10. Customer Communication and Data Dissemination Page 10 pointing to special Census Bureau requirements. Although each of these decisions have made sense on an individual basis, the decentralized investment approach they represent is not consistent with the enterprise-level approach needed for the Census Bureau to optimize its resources and its ability to effectively leverage commercially-available methodologies, products, and best practices. 3.3 External Pressures to Provide Better Service In addition to internal government pressures, public expectation for government electronic services is also a key driver in changing the Census Bureau’s customer service landscape. This increased expectation is driven primarily by the breathtaking technological changes of the last 30 years, and most especially by the introduction and rapid growth of the Internet in the last ten years. The Pew studies on the Internet and American Life found that about two-thirds of all Americans expect to find key information online, and a growing number of Americans look to the Internet first when they are seeking information.4 The 2001 National Technology Readiness Survey (NTRS), which was co-sponsored by the Center for e-Service at the Robert H. Smith School of Business at the University of Maryland and Rockbridge Associates, Inc., found that 55 percent of adult Internet users visited or used a government Web site in the previous 12 months. This was a higher percentage of users in 2001 than had conducted bank transactions online (20 percent), paid a credit card bill online (15 percent) or traded stocks online (10 percent).5 The U.S. is not even showing the highest levels of government services usage worldwide, however, lagging behind many Scandinavian countries and Canada.6 In Accenture’s 2002 survey of available government e-services, Canada retained the number one position for the second year, with Singapore close behind and the United States in third place. According to Accenture, Canada's rank can be attributed to its ambitious five-year goal to become the world's most citizen- connected government by 2004 with plans to provide Canadians with private and secure electronic access to all federal programs and services at the time and place of their choosing.7 At the Census Bureau, the trend is the same. The volume of data requested for the 2000 Census is already significantly greater than for 1990 data. While the range of users still encompasses everyone from the individual with personal interest to the Congressional office needing information to assist in writing legislation, the proportion of users without significant Census background or professional knowledge is increasing from year to year. Other recent user statistics include: • One in three callers to the Census Bureau main information number (301-763-INFO) reported that they were first time callers (July 2003). • One in four respondents to the annual Web site survey identified him/herself as a first time visitor to www.census.gov. (December 2002). 4 See Pew Studies. Horrigan, John and Lee Rainie. Counting on the Internet. December 2002. http://www.pewinternet.org/reports/toc.asp?Report=80 5 See Pastore, Michael. Citizens Taking Government Business Online. http://cyberatlas.internet.com/markets/professional/article/0,1323,5971_952531,00.html 6 See Greenspan, Robyn. Citizens Embracing E-Government. http://cyberatlas.internet.com/markets/professional/article/0,1323,5971_1004001,00.html 7 See Greenspan, Robyn. Around the World with E-Government. http://cyberatlas.internet.com/big_picture/geographics/article/0,,5911_1015531,00.html
    • 11. Customer Communication and Data Dissemination Page 11 • One in five respondents visited the site for personal reasons, not connected to a work or school assignment (December 2002). Public expectation continues to rise as public and private organizations provide services which are increasingly oriented to user needs and take advantage of new technologies for data dissemination beyond predefined tabulations. The U.S. Department of Agriculture was already touting in 1999 its “easy-to-use and high performance Data Warehouse… with a single, integrated database which contains data from over 80 different surveys and the 1997 Census of Agriculture.”8 National Statistical Offices have implemented online databases for accessing socio-economic statistics including Statistics Netherlands with StatLine, Statistics Canada with CANSIM and Statistics Denmark with STATBANK. The pressure on the Census Bureau – along with all government organizations – to demonstrate similar capabilities will continue to mount in the coming years. 3.4 Current Response to Public Demand As a first step in meeting public demand, the primary means of data publication and dissemination at the Census Bureau has now become the Internet instead of paper and electronic physical media. However, to fully respond to the continually moving target of customer needs and expectations, the Census Bureau must strategically approach data dissemination at the enterprise level. Currently, the various Census Bureau data dissemination sites are designed and maintained separately across the Census Bureau. According to a 2000 study, 18 different data access tools were available on the Census Bureau Web site, with varying functionality, redundancy, support, and adherence to standards. The number of sites has increased since then. In addition, these Web sites are built around Census-specific terms, as well as references to insider concepts like SF1 and PL. They are organized within the overall Census.gov Web site primarily according to the Census Bureau’s internal organization instead of according to user segments and needs. Symptomatically, the user population is given little guidance as to when and whether data from different surveys and sites may be fairly compared. New visitors with no a priori knowledge of the Census Bureau’s inner workings or the wealth of data contained across the overall Census.gov Web site are among the most disappointed. Even users who are familiar with the site and its hidden treasures feel there is need to improve ease of use, navigation, and the site’s overall professionalism.9 Additional user requests center around easy access to basic population counts, community-oriented demographic summaries, rankings, trends over time for small geographies, and other common user needs. Some years ago, the Census Bureau Web sites regularly received external recognition and awards.10 However, the only Census Bureau related sites which have received national awards recently have been American FactFinder and FedStat.gov, notable in that they both provide data from multiple surveys at a single site.11 8 Nealon, Jack and Mickey Yost. Data Warehousing at the National Agricultural Statistics Service: Easy and Fast Data Access for Everyone. Presentation to the 1999 conference of the Federal Committee on Statistical Methodology (FCSM). 9 Hermiz, Keith. Segmentation of Census Web Site Customers based on MSO 2002 Survey Data. May 2, 2003. 10 Past recognition of Census Bureau Web sites has included PC Magazine 100 Best Web Sites December 1998, June 97 Best of the Net from the Mining Company, GovExec.Com “Best Feds on the Web.”
    • 12. Customer Communication and Data Dissemination Page 12 A few specialized areas within the overall site, such as the Congressional Web site, the tribal governments Web site, and the site for the news media, are targeted to the needs of important specific user groups. In addition, one of the most popular Census Bureau sites, QuickFacts, integrates data from multiple sources, and does so in a way that provides value without requiring users to be familiar with Census terminology and data set source information. These sites do a good job of providing basic information from multiple sources to their audiences without much need for insider knowledge of the Census Bureau. Even these sites, however, could be improved by an integrated data tool that would allow users to obtain and compare results across the many Census Bureau surveys and data products. The Census Bureau is a storehouse for valuable current and historical information that is of potential use to a wide audience. (See Appendix C) In this time of budget constraints, the Census Bureau is especially in need of more external advocates who can articulate the value of its services. Focusing on customer needs and facilitating access to the information they need is a significant step towards creating such advocates. Several public and private industry organizations have found that public perception of their overall professionalism and capabilities increased with greater focus on customer service. These include not only for-profit organizations such as Dell, Cisco, and IBM, but also organizations in the public sector such as the U.S. Mint, the state governments of Arizona, Michigan, and New York, and the government of New York City. 3.5 Urgency of the Need to Change The Census Bureau’s ability to effectively respond to and proactively prepare for the increased data dissemination needs of its users is core to its continuing success. Recent changes at the IRS present a comparable example with regards to government institutions changing to meet customer needs. Senate hearings on alleged lack of taxpayer focus and program inefficiencies led to a Congress-ordered overhaul of the agency. A recent article in The Washington Post quoted a retiring IRS executive as saying, “The fact of the matter is, our organizational structure and approach had become outdated." It was unfortunate that the IRS "waited for a cataclysmic event to make a sea change" in operations. He noted, "One of the lessons learned is, don't wait for a Congressional hearing on your problems. The indicators are probably there. . . . It's important as bureaucrats to step back a little bit and look at your organization from another perspective, from the view of your customers or the Congress." The IRS eventually moved to an organization focused on categories or segments of customers and away from regional and district offices.12 Beyond Congress, OMB, and the taxpayers, the Census Bureau relies significantly on reimbursable, externally funded surveys from other organizations such as the U.S. Department of Housing and Urban Development (HUD) and the Bureau of Labor Statistics (BLS) to maintain minimum staffing levels in the interim between Decennial Censuses. Despite its importance, the Census Bureau’s role in these surveys is largely unappreciated and not focused on—a gap in current customer communications which could impact the Census Bureau’s future funding and its selection for new programs. Additionally, if the Census Bureau continues to approach data dissemination in a decentralized manner while the demand for data products continues to 11 Time Magazine. Forty-Six Best Web Sites for Business. November 4, 2002. PC Magazine. Best Free Stuff on the Web. June 30, 2003. 12 The Washington Post, August 1, 2003, Federal Diary.
    • 13. Customer Communication and Data Dissemination Page 13 increase, the Census Bureau will have fewer resources to dedicate to maintaining the quality of the data collected. Potential loss of funding, and reduced Census Bureau credibility and reputation, are only part of the story. The most serious potential risks may be realized by the Census Bureau’s many customers, who are increasingly reliant in this modern age on the quality and immediate accessibility of information such as the Census Bureau provides. These customers include city planners, the media, businesses, Congress, administrators of entitlement programs, banks, and individuals. The personal, governmental, and financial impact of their being without the proper tools and information to do their jobs will be a long-term decrease in U.S. competitiveness in the world economy.
    • 14. Customer Communication and Data Dissemination Page 14 4.0 Key Initiatives for an Integrated Approach to Data Dissemination To address these challenges, the Census Bureau should take a more strategic, enterprise-level approach to data dissemination and customer communication. Potential initiatives include: 1) Develop a corporate understanding of customer characteristics and customer needs, and define appropriate customer segments. 2) Evaluate technology and current best practices. 3) Develop standards, policies, and guidance for data product definition, data dissemination, and customer communication. 4) Implement the facilities and infrastructure for an integrated Census Bureau data dissemination and communication program. 5) Identify and track measurements to determine success and progress. These initiatives are shown in the figure below and described in more detail in the sections which follow. Analyze Define Customer Customer needs Segments Define standards, philosophies, approach Implement shared Evaluate Measure Census Bureau Technology and Track facilities and and Best Success infrastructure Practices Figure 1. Recommended Initiatives for Data Dissemination and Customer Communication 4.1 Analyze the Customer The current and potential customer base for Census data is extremely broad, and can be viewed from a number of perspectives. Each program office currently has the responsibility for understanding and meeting their customers’ needs, but is unable to guide its individual dissemination programs from an overall strategic perspective. The Census Bureau needs to enhance its current customer outreach mission to incorporate a deep and broad-reaching understanding of all Census Bureau customers and their requirements. These customer needs are complex, and should be analyzed from a number of perspectives such as the following: • Customer Roles & Occupations. These include other parts of the federal government, state and local governments, the media, academic researchers, businesses, schools and universities, special interest groups, librarians, and individuals. • Purpose/Usage for data. The enormous range of applications for Census Bureau data include Congressional and local redistricting, local transportation and facilities planning,
    • 15. Customer Communication and Data Dissemination Page 15 neighborhood real estate evaluation (personal or professional), support for grant applications, school district boundaries, legislative research, economic analysis, market and site location. • Knowledge of the Census Bureau. This includes users’ understanding of available products, services, and capabilities as well as the organization of the Bureau. • User Expertise. Users have varying familiarity with automated systems, use of computerized tools, and the Internet in general. • Requirements for dissemination. Considerations include the channel/media for delivery, timeliness, frequency, 508a compliance, accuracy and depth of the data, and ease of use. Using a range of techniques such as surveys, user feedback, analysis of customer logs, interviews, focus groups, stakeholder meetings, and other approaches, the Census Bureau needs to develop as full as possible an understanding of the characteristics of its current and potential customers. Recognizing that these diverse users will not be satisfied with a single, monolithic approach to data dissemination and customer support, the Census Bureau should then group its customers by common characteristics, and estimate the size and priority for each customer segment. Future dissemination and customer support services should be planned around the needs of each major segment. 4.2 Evaluate Technology and Current Best Practices The Census Bureau should evaluate current best practices in customer communication and data dissemination. Channels to be evaluated should include the Internet, call centers, and other customer contact points used by the Census Bureau. Lessons learned should be culled from this study, and possible applicability for the Census Bureau should be identified. Conclusions and principles gleaned that may be relevant include the following: • Removing the user’s need to understand the complexities of an agency’s organization; • Allowing the user to interact using terms, language, and paradigms which reflect their own experience and preferences instead of the agency’s; • Ensuring that compartmentalization of information and resources is transparent to the constituent in using the channel; • Creating an information architecture that enables all relevant data and application resources to be brought to bear on a problem or in response to a request effectively, efficiently, and swiftly; and • Understanding and enabling extended partnerships with other relevant providers in order to better serve the customer. The Census Bureau should also look at the ways technology is or potentially could be used to support customer communication and data dissemination. Prominent areas and key trends include: • Customer Experience - Constituent Relationship Management (CRM) – Developing database of previous questions and support requests to improve consistency of information given to the public - E-Learning – Online training programs to support schools and other users - Collaboration Tools – Online or telephone real time discussion with Census Bureau staff on information needs, link to CRM - Geo-centric – map-orientated UI for seeking information - Natural Language – customer requests information using key phrases
    • 16. Customer Communication and Data Dissemination Page 16 • Information Storage, Analysis, and Retrieval - On Line Analytical Processing (OLAP) – Allowing users to query database logically instead of looking up predefined tables and reports - Federated Search – Discovery Link, Data Joiner - Data Mining – discovery of unforeseen patterns - GeoDatabases – tighter linkage of searching and geography - Privacy and Confidentiality Protection • Application - WebServices – computer-to-computer data communication and exchange across the Internet between computers belonging to different organizations such as BLS; major media organizations such as USA Today, The New York Times, and The Washington Post; State Data Centers; major academic institutions such as the University of Michigan or Cal/Berkeley; and commercial vendors of repackaged Census data. - Use of Java 2 Enterprise Edition (J2EE) for component-based architecture and reuse 4.3 Develop Policies and Standards Armed with a more overarching perspective on customer needs, the Census Bureau should develop a set of principles, policies, and standards which would guide Census Bureau data product definition, data dissemination and customer communication. Examples of the scope of these policies and standards might include: • Identification of appropriate external points of contact for different customer segments. • Standardization for data product dimension reporting, such as geography levels, age and income band reporting, etc. These would be designed to support comparability of data over different time periods and across multiple surveys, data sets, and data products, while still protecting the confidentiality of the data. • Establishment of Internet dissemination standards, including development of an information structure and taxonomy based on user understanding rather than Census Bureau organizational structure. 4.4 Implement Facilities and Infrastructure Based on the research and analysis, the Census Bureau should then implement the facilities and infrastructure to provide high-quality data dissemination, outreach and communication for its customers. The services that would be provided would eventually need to include at least the following: • A single, integrated Internet portal that satisfies the electronic dissemination needs of a range of customers, with easy viewing, manipulation, and downloading of data; • Access to an integrated corporate data warehouse that includes the many rich data sets and data products produced by the Census Bureau, allowing users to combine data from multiple sources and surveys into a single result set while still meeting all confidentiality requirements; • Support for the wide range of interests in Census Bureau data from geographical (community-based to national) to topic-based (e.g., poverty, business); • Support for multiple channels of publication/dissemination (Internet, CD-ROM, Paper, Call Center, automated); • A strategic approach for customer call center support that responds swiftly and appropriately to user needs; • Measurements of usage, user satisfaction, call rates, patterns.
    • 17. Customer Communication and Data Dissemination Page 17 4.5 Identify and Implement Measurements of Success An important initiative in its own right will be the attempt to measure the success of the customer communication and data dissemination improvements. Recognizing that this initiative will have some subjectivity, and that a number of other factors can affect most measures, it will be important to measure as objectively as possible the results of the Bureau’s change in approach. Potential measures could be based on the following: • Customer satisfaction surveys; • Public opinion polls and other surveys of key client bases (Congress, universities, depository libraries, state data centers, etc) on the overall reputation of the Census Bureau for quality, professionalism, and support; • Volume of usage of Internet and other public service; • Continued measures of quality in call center, Web site and other customer touch points (such as time from initial contact to user receipt of data, either in elapsed time or number of clicks or option selections).
    • 18. Customer Communication and Data Dissemination Page 18 5.0 Summary By taking an enterprise-level approach toward data dissemination and customer communications, the potential for improved customer satisfaction and overall Census Bureau success are clear. An immediate positive result would be the creation of customers at all levels as more vocal advocates and supporters of the Census Bureau. But beyond this, the transformational value of providing data users with the best possible information can be partially imagined by comparing it to the development of the Internet itself. The academics and researchers who pioneered the World Wide Web envisioned it as a set of bulletin boards where other academics could easily post and share information to others, regardless of data format or location of the user. The speed and extent to which this capability of interconnecting and tapping into virtually endless information sources has transformed modern business and society is staggering. The benefits of sharing and integrating data at the next level down may be equally as revolutionary. When decision-makers and policy-setters are able to pull together information about their communities like never before, the quality of decisions and the improved efficiency in the whole economy could be affected. This is the opportunity before the Census Bureau.
    • 19. Customer Communication and Data Dissemination Page A-1 APPENDIX A. Bibliography CyberAtlasInternet.Com. (http://cyberatlas.internet.com). A Web site on Internet trends and Internet statistics. • Pastore, Michael. Citizens Taking Government Business Online. January 10, 2002. More than half of American adults with online access visited a government Web site in the past year, according to the National Technology Readiness Survey, but more surprising is the number of people who did business with governments online. http://cyberatlas.internet.com/ markets/professional/article/0,1323,5971_952531,00.html • Greenspan, Robyn. Citizens Embracing E-Government. April 4, 2002. A Pew study revealed that 68 million Americans have accessed government Web sites in January 2002, a sharp increase from 40 million in March 2000. http://cyberatlas.internet.com/markets/professional/article/0,1323,5971_1004001,00.html • Greenspan, Robyn. Around the World with E-Government. April 24, 2002. Canada is number one, U.S. is third in providing E-Government services. http://cyberatlas.internet.com/big_picture/geographics/article/0,,5911_1015531,00.html Davis, Tom. House Committee on Government Reform. Putnam, Adam. Subcommittee on Technology, Information Policy, Intergovernmental Relations and the Census. Describes subcommittee mission to improve communication, coordination, and efficiency within the Federal government, to monitor progress of E-Government as outlined in PMA, implementation of enterprise architecture, the ability to share information across agencies, and the consolidation of redundant and duplicative activities to achieve greater efficiency, productivity, and customer- oriented access to public information. This committee also exercises oversight over Census 2010 planning, including ACS and Economic Census. http://reform.house.gov/TIPRC/AboutUs.htm Goldenberg, Jacob, Roni Horowitz, Amnon Levav, and David Mazursky. Finding Your Innovation Sweet Spot. Harvard Business Review. March 2003. Describes systematic inventive thinking, and how successful new ideas are generally in one of five innovative patterns, called “templates of innovation.” Hart-Teeter, for the Council for Excellence in Government. The New E-Government Equation: Ease, Engagement, Privacy and Protection. April 2003. Study estimates that 68 percent of the U.S. population has Internet access at home, school or work and seven in ten go online at least once a day. Fifty percent of all Americans and 75 percent of American Internet users have used a government Web site. http://www.excelgov.org/usermedia/images/uploads/PDFs/egovpoll2003.pdf The Hiser Group. Navigating the .gov sites. Research by a Sydney-based interface usability consultant, The Hiser Group, has found users of government websites had a poor understanding of the structure of government bureaucracy, making it difficult for them to access particular information or services. http://www.hiser.com.au/world/news/releases/mr20030623.html InfoWorld. Gross, Grant. US Government Looks for IT Cost Savings. July 15, 2003. Report of Mark Forman’s presentation to the House Government Reform Committee's Subcommittee on Technology, Information Policy, Intergovernmental Relations and the Census. Forman estimated that in just six areas of government IT spending, $3 billion could be saved between 2004 and 2008 by taking a cross-agency IT spending approach. Significant savings could come from the federal agencies working together and receiving IT discounts through economies of scale
    • 20. Customer Communication and Data Dissemination Page A-2 working across six lines of business, including “data and statistics.” http://www.infoworld.com/article/03/07/15/HNgovtitcosts_1.html?hardware Nealon, Jack and Mickey Yost. Data Warehousing at the National Agricultural Statistics Service: Easy and Fast Data Access for Everyone. Presentation to the 1999 conference of the Federal Committee on Statistical Methodology (FCSM). 1999. Three critical success factors in developing a successful data warehouse were: (1) easy-to-understand dimensional data warehouse design, (2) the rapid query response times for ad-hoc queries against the data warehouse, and (3) the ease of using the system. http://www.fcsm.gov/99papers/nealon.html Overberg, Paul. Census 2000 has Begun: Are You Ready? Prepared for the Investigative Reporters and Editors (IRE) National Conference, June 4-7, 1998. Summarizes sources for Census data, and includes a glossary of “CenSpeak” terms. Paris21. Why Statistics? (http://www.odysseus.it/sfabw/HomePage.html), 2001(?) including chapter on “How to produce and disseminate good statistics:” Information on data quality, dissemination and relations with respondents, the media and the public. Pew Internet & American Life Project. (www.pewinternet.org) A series of reports and surveys on the effect of the Internet on American life. Horrigan, John B. and Lee Rainie. Counting on the Internet. December 2002. Most people expect to find key information online, and turn to the Internet first for information. http://www.pewinternet.org/reports/toc.asp?Report=80 Stowers, Genie. “The State of Federal Websites: The Pursuit of Excellence.” August 2002. The PricewaterhouseCoopers (now IBM) Endowment for the Business of Government. Her survey "revealed that most agencies still offer little more than the most basic elements of electronic government." The FirstGov site, plus 5 others (US PTO, HHS, Treasury, Education and Navy) were highlighted as including many best practices. Time Magazine. “46 Best Web Sites for Business.” November 4, 2002. American FactFinder and Stat-USA.gov recognized under the “Tracking Trends” category. United Nations Statistics Division. Handbook of Statistical Organization, 1980, Chapter IV: Relationships to Users: Dissemination of Statistical Information. United Nations Statistics Division. Handbook of Statistical Organization, Third Edition, 2003, Chapter XI: Getting Information to the Users. Need for intermediaries to seek out users, interpret data and tailor information; importance of providing metadata and having a dissemination policy (equal access, what information is to be made available, pricing); forms of dissemination; cost recovery; commercial policies; third-party disseminators; copyright; how much analysis; need for review; statistical yearbook. The Washington Post, August 1, 2003, Federal Diary. Brief account of IRS executive retirement and the changes he had overseen in helping to transform the agency to a greater customer orientation.
    • 21. Customer Communication and Data Dissemination Page B-1 APPENDIX B. Current Census Bureau Points of Contact
    • 22. Customer Communication and Data Dissemination Page C-1 APPENDIX C. Sample Uses of Census Data Users Sample Uses of Census Data Federal Government • Budget Planning • Distribution of more than $100B in federal entitlement funds • Forecasting future transportation needs • Establishing fair market rents and enforcing fair lending practices • Designing public safety strategies • Developing assistance programs for low-income families • Analyzing military potential • Publication of economic and statistical reports about the US and its people • Standard for creating public and private sector surveys State Governments • Reapportionment of seats in the US House of Representatives • Drawing federal, state and local legislative districts • Budget Planning • Distribution of state funding • Forecasting future transportation needs • Developing assistance programs for low-income families • Attracting new businesses to state and local areas Local Governments • Drawing school district boundaries • Budget Planning • Forecasting future transportation needs • Planning public transportation systems • Planning for the location of hospitals, nursing homes, clinics and other health services • Planning for health and educational services for people with disabilities, with limited English language proficiency • Forecasting future housing needs for all segments of the population • Designing public safety strategies • Urban planning • Rural development • Land use planning • Analyzing local trends • Developing assistance programs for low-income families • Creating maps to speed emergency services to households in need of assistance • Setting community goals
    • 23. Customer Communication and Data Dissemination Page C-2 Users Sample Uses of Census Data • Determining areas eligible for housing assistance and rehabilitation loans • Attracting new businesses to state and local areas Schools & Universities • Developing adult education programs Researchers, Analysts • Identifying trends in the economic well-being of country or other geography • Estimating the number of people displaced by natural disasters • Assessing the potential for spread of communicable diseases • Understanding labor supply • Estimating people displaced by natural disasters • Assessing the potential for spread of communicable diseases • Scientific research • Comparing progress between different geographic areas • Developing “intelligent” maps for government and business • Medical research • Historical research Media • Media planning and research, backup for news stories Businesses • Making business decisions • Delivering goods and services to local markets • Understanding consumer needs • Designing facilities for people w/disabilities, the elderly or children • Planning for congregations • Product planning • Locating factory sites and distribution centers • Investment planning and evaluation of financial risk • Evidence in litigation involving land use, voting rights and equal opportunity Special Interest Groups • Evidence in litigation involving land use, voting rights and equal opportunity • Setting community goals Individuals • Setting community goals • Genealogical research (after 72 years) • School projects
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