Government Use of Short Message Services (SMS)

Overview

As cell phone usage has spread to much of the population of the world, there has been a huge growth in the use of short message services (SMS) as a form of communication, used not only for person-to-person contact, but also as business-to-person and increasingly government-to-person.

SMS offers a user-centred approach for government services that need to contact their customers directly. This Introduction serves as a starting place for government agencies who are considering the implications that SMS may have on their core business. It offers case studies of examples of agencies that are already using SMS, and lists some of the lessons learnt. It is not intended to be a definite guide, nor as hard and fast laws. It is hoped that agencies will add New Zealand government case studies as more projects are completed.

New Zealand government case studies

• Electoral Enrolment Centre (order electoral packs)
  
• Immigration New Zealand (update status of work permit applications)
  
• Ministry of Economic Development (check out used cars)

Been using SMS and got a case study to share? Let us know.

What is SMS?

SMS stands for Short Message Service, which is a communications protocol used to send and receive text messages. This acronym has now been adopted as a synonym for text messages - short (typically a maximum of 160 characters) text messages which can also be referred to as texts.

The most common application of the service is person-to-person messaging, however text messages are also often used to interact with automated systems, such as ordering products and services for mobile phones, or computer to mobile (or vice versa) messaging.

Some mobile devices are also capable of accessing the Internet. Such access does not require a desktop computer, nor a fixed landline connection. However, for the purposes of this introduction, we have focused on text messaging rather than mobile internet, as SMS is available on almost all mobile phones in New Zealand. Around 90% of New Zealanders own a mobile phone.

More information on SMS (Wikipedia)

History of SMS use in NZ

Telecom NZ was the first telecommunications company to offer a mobile phone service in New Zealand in 1987. The original analogue network was known as the ‘025 network’ and it used the first generation AMPS technology and later second generation TDMA technology.

Telecom NZ set up its current CDMA or ‘027 network’ in 2001 which was upgraded in 2005, to become New Zealand’s first 3G or third generation service. In June 2009, Telecom NZ launched its brand new W850/GSM network nationwide. At the end of September 2008, Telecom New Zealand had a 41% revenue share of the mobile phone market with 2,190,000 mobile phone customers including approximately 1,336,000 pre-paid customers.

BellSouth New Zealand was Telecom's first competitor, starting their network in 1993. BellSouth operated until 1998, at which time it was taken over by Vodafone New Zealand. According to Vodafone, more than 3.8 million New Zealanders - or about 92% of the population - are now estimated to have a mobile connection. As at 30 June 2008, Vodafone New Zealand had a customer base of 2.4 million customers. A number of people may have a phone on each network, separate for personal and business use, or to take advantage of the different special packages that the companies provide.

Statistics New Zealand found that in the 12 months to the December 2006 quarter, 86.2 percent of households reported they had personal use of at least one mobile phone. All mobile phones now on sale are capable of sending and receiving text messages.

A Google search for "text message" on govt.nz had 142 hits in April 2005 while, the same search in November 2008 had 51,600 results indicating that cell phone awareness within government has risen dramatically.

As the majority of New Zealanders now have a mobile phone, another way for government agencies to contact their client bases has opened up. Of these mobile phone owners, the majority use their phone to (at least occasionally) send and receive text messages. Most people have their cell phones with them constantly, so they can receive communications in a timely manner.

The commercial sector has already picked up the possibilities of SMS- people can text in to enter competitions, or receive text messages from local pubs advertising the bands playing that night.

In addition, some New Zealand charities are using SMS as a way for the public to donate more easily. One simply sends a text to a given number, and the cell phone account is charged anywhere from $3 upwards, depending on the charity. Current adopters of this method of soliciting donations include the Cancer Society and the Royal Society for the Blind.

With this mainstream use of the technology, many New Zealanders have become comfortable with the idea of interfacing with a business via SMS. Charities' use of the medium broadens the perception of the channel as being solely business-focussed.

These trends, plus the positive feedback received by the agencies in our case studies seems to show that New Zealanders are accepting of government communication through this medium.

Adoption rates mean that SMS is no longer an emerging technology but rather an entrenched part of New Zealand society. However, government agencies beginning to look at this area need to remember that with new opportunities also come with new challenges. This Introduction to Government Use of SMS examines the way that SMS has already been used by four agencies, in order to share lessons learnt, and seeks to provide some guidance as to what other agencies may expect if and when they move into the area of text-messaging.

Future trends

New Zealand has a high uptake of cell phone use, and although other types of mobile communication, including the spread of wireless internet and 3G coverage are becoming more mainstream, SMS seems to be holding strong. All of the agencies who run the SMS schemes detailed in the case studies really value their schemes, and are looking at ways to improve/expand their service.

Multimedia Message Services (MMS) was the technology that followed SMS, allowing users to send photographs, video or sound clips. It has not has had much of an impact, scandals amongst high school students sharing inappropriate pictures aside, so for the purposes of this Introduction is considered out of scope.

As almost every mobile phone now sold in New Zealand also contains a web browser, mobile internet use is on the rise. However none of the agencies that the SSC spoke to had designed their websites to be mobile browser-compatible in order to enhance their SMS services. As 3G mobile phone coverage extends across the country and becomes more competitively priced, as demonstrated by the wide uptake of iPhones, it is anticipated that more consumers will expect to be able to do more online from their phones, so future website design should take this into account.

Another trend on the rise is that geocoding - the process of finding associated geographic coordinates (often expressed as latitude and longitude) from other geographic data, such as street addresses, or postal codes. With geographic coordinates the features can be mapped and entered into Geographic Information Systems, or the coordinates can be embedded into media such as digital photographs via geotagging. With many third-generation mobile phones being available with inbuilt global-positioning-systems, this has implications for agencies who may have branches customers need to visit, or for agencies such as the Department of Conservation who may have public spaces that could be found through mobile phones.

However, SMS is still a much more accessible medium for the vast majority of the country, and should be the first consideration of any agency looking to make their services more available to those on the go.

Things to consider

1. SMS is not the be all and end all

Text messaging is a useful tool for reaching specific audiences. So far government agencies have used it to reach groups such as those without permanent addresses or for teenagers, but it is moving beyond being a technology only for niche audiences. As an example of this, the Electoral Enrolment Centre's Text To Enrol campaign sought to address the youth market, but found a much broader demographic were using text messaging to register. However, SMS is still not a communications channel that every single New Zealander can be reached by, and as such, agencies should probably use other channels in addition to text-messaging to ensure complete coverage.

2. Privacy issues need to be considered

Some departments use cell phone numbers that they have previously collected from their customers for their SMS service. The concern about this practice is that personal information held by the government is used only for the purpose for which it was collected or a directly related purpose. Agencies need to check that the SMS that they want to send is directly related. Otherwise, they need to seek consent from people, or ask them to opt in.

While the Unsolicited Electronic Messages Act 2007 does not apply to government departments, it should be treated as a best practice document. In essence, the Act says to be clear about who the sender of texts is, and to provide a functional way for the recipients to indicate that they do not wish to receive messages in the future – a way to unsubscribe.

3. Protecting the authenticity of text messages from the government is vital

SMS are not usually encrypted technology, and intercepted messages may contain personal information.

In order to be an authoritative source of information, agencies need to make sure that their text message systems are secure. The potential for embarrassment and confusion if SMS services were hacked and inauthentic messages were sent is quite considerable – consider the impact if malicious texts were sent out claiming to be from Immigration New Zealand saying work permits were cancelled, for example. For more information, see www.smsspoofing.com

4. SMS is a two-way communications channel

SMS is used effectively as a one-way outbound channel, or as a channel that sends automated replies to inbound messages. However agencies need to realise that in implementing a SMS service, they are opening up a two-way channel, irrespective of their intentions.

Dealing with inbound messages individually is a time-consuming task, and many agencies may not have the personnel to meet demand. If an agency does not want reply to individual inbound messages, there needs to be a clear strategy for dealing with these unsolicited texts (these could be queries, comments, feedback, abuse), and these customers should be steered into using a different communication channel.

It is important that text messages that are received are acknowledged in some form. Automatic filters may help to sort inbound messages into appropriate response categories.

5. SMS may be superseded by another technology in the future

As discussed under 'future trends', mobile internet is becoming more popular in New Zealand. If agencies are committed to developing ways that the public can interact via text message, they should also consider how customers may want to access their services in the future.

6. SMS services are sometimes delayed

It is not unheard of for telecommunications companies to become overloaded, and therefore time-critical messages should have a back-up system in place.

7. SMS can be helpful for those who are hearing-impaired

Many hearing-impaired people find text-messaging to be an ideal form of communication, as no audible conversation is needed. However, those who are visually impaired are less likely to use text-messaging. As with other factors, multiple channels of message delivery therefore need to be considered.

8. Paid services delivered via SMS can be charged to the customer easily

Like 0900 telephone numbers before them, SMS offers the opportunity for “pay to text” services, that allow charges to be put onto a customer’s phone bill instantly. MED use this feature for their $1 charge to use TXTB4UBUY, and there is the potential for other agencies to develop similar services.

9. Consider customer’s preferences on how to contacted

Ideally before any agency starts text-messaging their customers, they would have asked for explicit permission beforehand. In asking for that permission, agencies should also offer alternative forms of contact – email, telephone, postal service, and so forth.  How will a customer’s preferred form of contact be noted?

10. Have a plan for a massive response AND no response

Agencies need to be realistic about their audience when they start offering an SMS service. They may be inundated with responses, or they may get fewer responses than expected. Either way it is important to be prepared with a backup plan for extra support, or extra promotion of the service. 

11. How will agencies define success?

Before undertaking any SMS project, agencies need to consider what success will look like. For the Electoral Enrolment Centre, success took the shape of the number of young people who joined the electoral role. For ImmigrationNZ, it was a reduction in the workload of its call centre. The measures of success will vary depending on whether SMS is being used to deliver information or a service.

12. The SMS scheme may need to be promoted

If an agency’s measures of success include a large uptake of the SMS service, it may need to be promoted, either through advertising such as the Electoral Enrolment Centre’s campaign to get people to enrol to vote via SMS, or through other forms of contact with the agency. It is important to consider the costs of promotion when preparing a budget for the promotion.

13. SMS is exactly that – a short message

SMS is a good vehicle for short straightforward messages. Agencies may wish to use another communication channel for more complicated, long or disputed messages.

14. The use of SMS by a government agency may have an impact beyond the team it emerges from.

Agency teams must consider the impact that an SMS scheme will have on the agency as a whole. Are there other branches that will need access to the scheme? Is this going to take traffic away from another department?

Future trends

New Zealand has a high uptake of cell phone use, and although other types of mobile communication, including the spread of wireless internet and 3G coverage are becoming more mainstream, SMS seems to be holding strong.

All of the agencies who run the SMS schemes detailed in the case studies really value their schemes, and are looking at ways to improve/expand their service.

Multimedia Message Services (MMS) was the technology that followed SMS, allowing users to send photographs, video or sound clips. It has not has had much of an impact, scandals amongst high school students sharing inappropriate pictures aside, so for the purposes of this guidance it is considered out of scope.

Almost every mobile phone now sold in New Zealand also contains a web browser, mobile internet use is on the rise. However none of the agencies that the SSC spoke to had designed their websites to be mobile browser-compatible in order to enhance their SMS services. As 3G mobile phone coverage extends across the country and becomes more competitively priced, as demonstrated by the wide uptake of iPhones, it is anticipated that more consumers will expect to be able to do more online from their phones, so future website design should take this into account.

Another trend on the rise is that geocoding - the process of finding associated geographic coordinates (often expressed as latitude and longitude) from other geographic data, such as street addresses, or postal codes. With geographic coordinates the features can be mapped and entered into Geographic Information Systems, or the coordinates can be embedded into media such as digital photographs via geotagging.  With many third-generation mobile phones being available with inbuilt global-positioning-systems, this has implications for agencies who may have branches customers need to visit, or for agencies such as the Department of Conservation who may have public spaces that could be found through mobile phones.

However, SMS is still a much more accessible medium for the vast majority of the country, and should be the first consideration of any agency looking to make their services more available to those on the go.