Management Advisory Report: Message Paging Could Enhance the Communication of Time-Sensitive Information Throughout the Toll-Free Telephone Enterprise
September 2001
Reference Number: 2001-30-172
This report has cleared the Treasury Inspector General for Tax Administration (TIGTA) disclosure review process and information determined to be restricted from public release has been redacted from this document.
September 20, 2001
MEMORANDUM FOR COMMISSIONER, WAGE AND INVESTMENT DIVISION
FROM: Pamela J. Gardiner /s/ Pamela J. Gardiner
Deputy Inspector General for Audit
SUBJECT: Final Management Advisory Report - Message Paging Could Enhance the Communication of Time-Sensitive Information Throughout the Toll-Free Telephone Enterprise
The report presents the results of our review of the effectiveness of time-sensitive communications between the Internal Revenue Service’s (IRS) Joint Operations Center (JOC) and its 26 geographically dispersed toll-free call centers. The IRS established the JOC in Fiscal Year (FY) 1999 to centrally manage the toll-free telephone enterprise as a single "virtual" call center. We conducted this review because effective communications between the JOC and each of the call centers is critical for promptly reacting to time-sensitive issues, such as unscheduled call demand, inclement weather, and software and hardware problems that can affect the level of service provided to taxpayers.
In summary, we found the JOC effectively uses Intranet advisories, ad hoc telephone contacts, and regularly scheduled daily and weekly conference calls to communicate information across the toll-free telephone enterprise. Overall, 78 percent of the call center managers, systems analysts, and systems administrators that responded to our questionnaire were highly or moderately satisfied with the communication of time-sensitive information between the JOC and its call centers.
The JOC has developed a Web site on the IRS Intranet as a tool for communicating issues regarding the IRS’ toll-free telephone enterprise. The Critical Issues & Updates Web page was established on this site as the primary means of communicating time-sensitive information to the 26 call centers. While the Intranet is a convenient tool for simultaneously and consistently disseminating information to a large number of geographically dispersed call centers, its use requires continuous access to an IRS network monitor. For that reason, the JOC may not always have sufficient assurance that critical information is immediately received and acted on. For example, 61 percent of the respondents to our questionnaire indicated that they checked the Critical Issues & Updates Web page 2 or less times per day. In addition, 47 percent of the respondents expressed concern that critical, time-sensitive information communicated on the Intranet may not always receive a timely response. Only 25 percent of the respondents indicated that the Intranet was their preferred method of receiving communications from the JOC.
Management’s Response: The Commissioner, Wage and Investment Division, agreed with our recommendation and will review the options available for implementing message paging within the IRS’ budget. Management’s complete response to the draft report is included as Appendix V.
Copies of this report are also being sent to the IRS managers who are affected by the report recommendation. Please contact me at (202) 622-6510 if you have questions or Gordon C. Milbourn III, Assistant Inspector General for Audit (Small Business and Corporate Programs), at (202) 622-3837.
Time-Sensitive Issues Are Communicated Effectively Throughout the Toll-Free Telephone Enterprise
Message Paging Could Further Enhance Time-Sensitive Communications With the Call Centers
Appendix I – Detailed Objective, Scope, and Methodology
Appendix II – Major Contributors to This Report
Appendix III – Report Distribution List
Appendix IV – Questionnaire Distributed to Call Centers
Appendix V – Management’s Response to the Draft Report
During Calendar Year 2000, the Internal Revenue Service (IRS) received 131 million calls on its toll-free telephone lines from taxpayers needing information or assistance with filing their returns or paying their taxes. The IRS deals with perhaps the largest peak demand of any call center operation in existence, since the majority of the calls are received during the first 3½ months of each calendar year, which is the filing season for individual taxpayers. As a result, the IRS generally struggles to effectively meet the customer demand placed on the toll-free telephone system during the filing season. Millions of taxpayers encounter busy signals or long waiting times. Many taxpayers who encounter long waiting times abandon their calls before speaking with an IRS agent.
In recent years, the IRS has implemented a number of fundamental management changes and technological improvements in an effort to achieve its goal of delivering top quality telephone service. One of these changes was the establishment of the Joint Operations Center (JOC) in Atlanta, Georgia, in Fiscal Year (FY) 1999 to centralize the management of the toll-free telephone enterprise. The JOC uses a national call routing system and other technology to link the IRS’ 26 geographically dispersed call centers into a single "virtual" call center in which each call is routed to the next available agent regardless of where the agent is located.
Effective communications between the JOC and each of the call centers is critical for promptly reacting to time-sensitive issues, such as unscheduled call demand, inclement weather, and software and hardware problems that can affect the level of service provided to taxpayers. The JOC employs a Routing Team that monitors call distribution and staffing delivery on a real-time, 24-hours-per-day basis. The Routing Team coordinates with the systems analysts at the 26 call centers. The systems analysts also monitor equipment at their respective call center for call processing problems and for calls that are held up in the queue.
This review supports the FY 2001 emphasis area of the Treasury Inspector General for Tax Administration to evaluate whether the IRS is providing quality customer service operations. We performed this review between January and June 2001 at the JOC in Atlanta, Georgia, and at the IRS’ call center in Cleveland, Ohio. In addition, to assist our evaluation of the techniques used to communicate time-sensitive issues between the JOC and the call centers, we distributed questionnaires to call center managers, systems analysts, and systems administrators at each of the IRS’ 26 call centers. We also visited the call center operations at the Social Security Administration in Baltimore, Maryland; the Prudential Insurance Company of America in Roseland, New Jersey; and Delta Airlines in Atlanta, Georgia.
The review was performed in accordance with the President’s Council on Integrity and Efficiency’s Quality Standards for Inspections. Detailed information on our review objective, scope, and methodology is presented in Appendix I. Major contributors to the report are listed in Appendix II.
Time-Sensitive Issues Are Communicated Effectively Throughout the Toll-Free Telephone Enterprise
The JOC effectively uses Intranet advisories, ad hoc telephone contacts, and regularly scheduled daily and weekly conference calls to communicate information across the toll-free telephone enterprise. Overall, 78 percent of the respondents to our questionnaire were highly or moderately satisfied with the communication of time-sensitive information between the JOC and its call centers.
Intranet communications
The JOC has developed a Web site on the IRS Intranet as a tool for communicating information throughout the toll-free telephone enterprise. The Critical Issues & Updates Web page was established on this site as the primary means to simultaneously disseminate time-sensitive information to all 26 call centers. The JOC also uses a "Daily Operations Log" Web page for recording significant issues affecting the toll-free telephone enterprise and specific call centers that are identified by call center analysts, vendors, or JOC personnel. In March 2001, the JOC established a "Trouble Ticket Control System" on the Intranet to help ensure that problems the call centers identify and report to the JOC are appropriately resolved.
Sixty-one percent of the respondents to our questionnaire were highly or moderately satisfied with the effectiveness of the Intranet for communicating time-sensitive issues. Only 22 percent of the respondents were highly or moderately dissatisfied with Intranet communications.
The responses to other related questions showed that:
The following excerpt from one of the questionnaire responses was typical of the positive feedback we received on the effectiveness of Intranet communications:
There is less chance for misunderstanding when communication is made in writing. The frequent Web page updates allow all sites to see what issues are arising in other sites and often saves [sic] time spent troubleshooting a problem that may have already been resolved elsewhere. Web postings ensure that all sites get the same information at the same time.
We analyzed all of the issues recorded in the Daily Operations Log for a 6-day period, all of the open Trouble Ticket Reports, and a judgmental sample of the closed Trouble Ticket Reports on the JOC web site. We determined that the JOC took timely and effective action to resolve call center issues. Our questionnaire feedback also supported that the JOC was very responsive to problems and issues reported by the call centers. Employees advised us of very few examples of situations where the call centers needed to make repeated follow-up contacts with the JOC to resolve issues.
Telephone communications
Systems analysts at the call centers use the telephone to alert the JOC of specific call center concerns. The JOC records these issues in the Daily Operations Log and is responsible for providing solutions or following up with the contractors to work on solutions. Issues recorded in the Daily Operations Log that are not closed the same day the problem is reported are generally discussed during daily conference calls that JOC management holds with JOC Representatives from the Wage and Investment and Small Business/Self-Employed Divisions. The daily conference calls also include a discussion of the prior day’s enterprise performance information and other issues. In addition, the JOC holds a weekly conference call with representatives from all 26 call centers to discuss weekly enterprise performance information, present new issues, and follow up on previously unresolved issues.
Overall, 76 percent of the respondents to our questionnaire were highly or moderately satisfied with the effectiveness of the telephone as a means for communicating time-sensitive issues with the JOC. Only 7 percent of the respondents were highly or moderately dissatisfied with telephone communications.
The responses to other related questions showed that:
Message Paging Could Further Enhance Time-Sensitive Communications With the Call Centers
The Intranet is a convenient tool for simultaneously and consistently disseminating information to a large number of geographically dispersed call centers. However, we are concerned that its use does not provide sufficient assurance to the JOC that the information is immediately received and acted on.
The effectiveness of the IRS’ Intranet as a time-sensitive communications medium is dependent on the call center managers and systems analysts having continuous access to an IRS network monitor. However, the day-to-day duties and responsibilities of the call center managers and analysts often prevent them from monitoring the Intranet on a continuous basis. The JOC Web pages must also be "refreshed" on a continuous basis in order to receive updates of the most current information posted to the site.
Therefore, critical, time-sensitive communications from the JOC that may require immediate action by the call centers to restore or improve the level of telephone service are at risk of going unnoticed for relatively long periods of time. For example, 61 percent of the respondents to our questionnaire indicated that they check the Critical Issues & Updates Web page 2 or less times per day. This means that, at some call centers, 4 hours or longer may elapse without the Intranet being checked for critical directives from the JOC.
In answering 1 or more questions on our survey, 47 percent of the respondents expressed concern that critical, time-sensitive information communicated on the Intranet may not always receive a timely response. Only 25 percent of the respondents indicated that the Intranet was their preferred method of receiving communications from the JOC. Many respondents suggested that an alternative to the Intranet, such as the telephone, pagers, or e-mail, should be used for notifying the call centers about time-sensitive issues.
The following excerpts from the questionnaire responses provide examples of the concerns expressed regarding the use of the Intranet to communicate critical, time-sensitive information to the call centers:
We did not determine why the IRS has not employed instant point-of-contact communication devices for critical, time-sensitive communications.
Call center operations in the private sector rely on message paging as the primary means to communicate critical, time-sensitive information
A "best practice" identified at both of the private-sector companies we visited was the use of message paging as the key communications channel for time-sensitive information across the toll-free telephone enterprise. Both organizations used paging services to provide essential, time-sensitive information on conditions affecting the toll-free telephone enterprise; to continuously communicate enterprise-level data about the service level being provided to customers; and to alert employees of potential problems affecting the call centers and the actions that needed to be performed immediately.
Pager messaging allows employees to be mobile without being limited to a desktop system. Messaging allows contacts to get messages to users in several different ways. Contacts may call a toll-free number to send a numeric message, use a vendor’s Web page to compose and send text messages, or send e-mail from a personal computer via most standard e-mail software. Contacts can also leave voice messages that the user can retrieve by calling a toll-free number after notification by the pager.
One of the companies we visited used an interactive paging service. Interactive paging allows users to originate messages and e-mail directly from a pager. Using an on-screen keyboard or built-in keyboard, the user can respond or create new messages, even to contacts that do not have pagers.
The management officials at this company viewed the interactive paging service as a valuable tool in managing their virtual call center. The central operations center used e-mail to quickly disseminate critical information among key toll-free operations staff. Interactive paging allowed the toll-free operations management and staff to receive and immediately respond to these e-mail messages directly from the pager, regardless of their location. The operations center also sent enterprise-wide service level updates over the paging service every 2 hours.
Paging services are available to the IRS for purchase or lease from several vendors under the General Service Administration’s Federal Technology Service contracts. The monthly lease costs range from $30 to $150 per unit depending on the type of paging service (e.g., one-way or interactive) and the capacity (e.g., number of characters) of the unit.
Management’s Response: The Commissioner, Wage and Investment Division, agreed with our recommendation and will review the options available for implementing message paging within the IRS’ budget.
Appendix I
Detailed Objective, Scope, and Methodology
The objective of our review was to evaluate the effectiveness of time-sensitive communications between the Internal Revenue Service’s (IRS) Joint Operations Center (JOC) and its 26 geographically dispersed toll-free call centers.
To meet this objective, we:
Appendix II
Major Contributors to This Report
Gordon C. Milbourn III, Assistant Inspector General for Audit (Small Business and Corporate Programs)
Philip Shropshire, Director
William E. Stewart, Audit Manager
John W. Baxter, Senior Auditor
Robert A. Nicely, Senior Auditor
James E. Wellman, Auditor
Appendix III
Commissioner N:C
Deputy Commissioner N:DC
Commissioner, Small Business/Self-Employed Division S
Deputy Commissioner, Small Business/Self-Employed Division S
Deputy Commissioner, Wage and Investment Division W
Director, Customer Account Services, Small Business/Self-Employed Division S:CAS
Director, Customer Account Services, Wage and Investment Division W:CAS
Director, Joint Operations Center, Wage and Investment Division W:CAS:JOC
Director, Office of Program Evaluation and Risk Analysis N:ADC:R:O
Chief Counsel CC
National Taxpayer Advocate TA
Office of Management Controls N:CFO:F:M
Director, Legislative Affairs CL:LA
Audit Liaisons:
Commissioner, Small Business/Self-Employed Division S
Commissioner, Wage and Investment Division W
Director, Customer Account Services, Small Business/Self-Employed Division S:CAS
Director, Customer Account Services, Wage and Investment Division W:CAS
Appendix IV
Questionnaire Distributed to Call Centers
The memorandum for the questionnaire was removed due to its size. To see this memorandum, please go to the Adobe PDF version of the report on the TIGTA Public Web Page.
CALL CENTER QUESTIONNAIRE
LOCATION OF CALL CENTER
:_________________________PLEASE IDENTIFY YOUR POSITION:
_____ TOLL-FREE DIVISION CHIEF
_____ PLANNING & ANALYSIS DIVISION CHIEF
_____ SYSTEMS ANALYST
DIRECTIONS FOR COMPLETING QUESTIONNAIRE:
FOR EACH QUESTION WHERE THERE IS A SELECTION FROM A THROUGH E, PLEASE CIRCLE THE APPROPRIATE SELECTION. PLEASE PROVIDE NARRATIVE EXPLANATIONS OF YOUR ANSWERS WHERE APPROPRIATE.
Intranet Communication
a) Highly satisfied b) Moderately satisfied c) Neither satisfied nor dissatisfied
d) Moderately dissatisfied e) Highly dissatisfied
Please explain your answer: ________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
JOC Daily Operations Log Yes___ No___ Frequency______
Critical Issues and Updates Yes___ No___ Frequency______
Responses Due to JOC Yes___ No___ Frequency______
JOC Conference Call Yes___ No___ Frequency______
Other ________________________ Frequency______
Comments: ________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
a) Highly satisfied b) Moderately satisfied c) Neither satisfied nor dissatisfied
d) Moderately dissatisfied e) Highly dissatisfied
Please explain your answer: ________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
a) Highly satisfied b) Moderately satisfied c) Neither satisfied nor dissatisfied
d) Moderately dissatisfied e) Highly dissatisfied
Please explain your answer: ________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
a) Highly satisfied b) Moderately satisfied c) Neither satisfied nor dissatisfied
d) Moderately dissatisfied e) Highly dissatisfied
Please explain your answer: ________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
Telephone Communication
a) Highly satisfied b) Moderately satisfied c) Neither satisfied nor dissatisfied
d) Moderately dissatisfied e) Highly dissatisfied
Please explain your answer: ________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
Conference Call Communication
a) Highly satisfied b) Moderately satisfied c) Neither satisfied nor dissatisfied
d) Moderately dissatisfied e) Highly dissatisfied
Please explain your answer: ________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
a) High understanding b) Moderate understanding c) Low understanding d) No understanding
Please explain your answer: _______________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
a) Highly comfortable b) Moderately comfortable c)Neither comfortable nor uncomfortable
d) Moderately uncomfortable e) Highly uncomfortable
Please explain your answer and describe whether you believe that this forum is appropriate for all issues, most issues, a few issues, or whether there is another forum that would be more appropriate. ________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
a) Highly satisfied b) Moderately satisfied c) Neither satisfied nor dissatisfied
d) Moderately dissatisfied e) Highly dissatisfied
Please explain your answer: ________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
Email Communications
a) Highly satisfied b) Moderately satisfied c) Neither satisfied nor dissatisfied
d) Moderately dissatisfied e) Highly dissatisfied
Please explain your answer: ________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
a) Highly satisfied b) Moderately satisfied c) Neither satisfied nor dissatisfied
d) Moderately dissatisfied e) Highly dissatisfied
Please explain your answer: ________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
Overall Communication
a) Highly satisfied b) Moderately satisfied c) Neither satisfied nor dissatisfied
d) Moderately dissatisfied e) Highly dissatisfied
Please explain your answer: ________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
a) Highly satisfied b) Moderately satisfied c) Neither satisfied nor dissatisfied
d) Moderately dissatisfied e) Highly dissatisfied
Please explain your answer: ________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
a) Highly satisfied b) Moderately satisfied c) Neither satisfied nor dissatisfied
d) Moderately dissatisfied e) Highly dissatisfied
Please explain your answer: ________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
a) _____ Intranet b) _____ telephone c) _____ email
d) _____ conference call e) ____________________ other (specify)
a) _____ Intranet b) _____ telephone c) _____ email
d) _____ conference call e) ____________________ other (specify)
a) _____ Intranet b) _____ telephone c) _____ email
d) _____ conference call e) ____________________ other (specify)
a) _____ Intranet b) _____ telephone c) _____ email
d) _____ conference call e) ____________________ other (specify)
________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________________
________________________________________________________________________________________________________________________________
THANK YOU FOR YOUR ASSISTANCE.
Appendix V
Management’s Response to the Draft Report
The response was removed due to its size. To see the response, please go to the Adobe PDF version of the report on the TIGTA Public Web Page.