The 120 Dasan Call Center Touching Hearts via Phone Calls: 24/7 Multi-dimens
Customer Service Division Seoul Metropolitan Government

The Problem

The 120 Dasan Call Center Touching Hearts via Phone Calls: 24/7 Multi-dimensional Public Contact Center

The 120 Dasan Call Center is a public service that consults on and deals with the public’s needs and inquiries in real time via various media, including phone calls, video calls, SMS (short message service), Internet and SNS (social network service). The 120 Dasan Call Center has outstanding features that distinguishes it from other public call centers.

First, it provides a different scope of services. The Center provides not only administrative information about the Seoul Metropolitan Government and 25 district offices but also information on transportation and locations, culture and tourism and even other general information. The slogan “Ask Anything,” which now represents the center, has proven the center’s credibility to its customers (citizens, residents and visitors to Seoul) over the past four years.

Second, the 120 Dasan Call center is truly a multi-dimensional contact center, equipped with various channels and services that can reach out to the people regardless of age, disability or language. In addition to the general voice call consultations, the center also offers services via sign language, SMS, Internet chatting and also provides online consultations, while information is offered through SNS (Twitter, me2day, etc.). It also has specialized services, including ‘Senior Assurance Call’ for the elderly who are living alone and services in foreign languages as well to ensure that the service reaches out to everyone.

Third, the center has an outstanding track record which cannot be compared to any other public call center. The number of its daily consultation calls has increased 36-fold within four years, and 79.4% of Seoul citizens recognize the existence of the center, which is almost same as the recognition of the 114 service (telephone directory service analogous to the 411 service in the U.S.). 91.2% of the incoming calls are responded to within 15 seconds, 90% of the requests are handled on spot and the remaining 10% are transferred to the relevant staff in charge of the affairs. Such achievements resulted the customer satisfaction to score 93.9 out of 100.

○ Citizens did not know where to call.
- The Seoul Metropolitan Government consists of 100 departments, 44 offices and 16,061 public officials and total 30,467 employees work at the 25 district offices, each of which is organized into around 30 departments and 20 to 30 community centers.
- The Seoul Metropolitan Government had 17 phone numbers, and 25 district offices used to have several representative phone numbers as well. The caller had to go through a long and complicated automated response system to reach the staff in charge after dialing the number.
- It was difficult to reach the right staff at once, and even after the caller finds the right number, the line was busy or the staff was often out of the office.
- As a result, the satisfaction level for phone-based inquiries was as low as 41.6 points out of 100 (November 2006).

○ Public officials could not do their work due to the influx of incoming calls.
- Frequent phone calls hampered the officials’ work and they suffered from emotional stress.
- Conflicts with citizens frequently occurred due to their lack of phone call response skills.

○ There was an unrecognized service area causing inconvenience.
- Public agencies could not be reached outside of their working hours.
- An extremely low phone call request rate among those with a hearing impairment and the elderly, etc.

Solution and Key Benefits

 What is the initiative about? (the solution)
○ Conveniences resulting from the 120 one-number, one-stop service
- The 17 numbers for municipal affairs and 52 numbers for district affairs were integrated into one number (120) for better management.
- A 36-fold increase in the number of phone calls, from approximately 1,180 cases (January 2007) to 42,097 (October 2010).

○ 24/7 omni-present service
- Consultation services offered even late at night and during the weekend when it is difficult reach for help.
- The service satisfaction level: 41.6 points (November 2006) ➡ 93.9 (September 2010)

○ Person-to-person service with professional operators
- Rate of consultations starting within 15 seconds: 59% (January 2007) ➡ 91.2% (October 2010)
- First contact handling rate: 55% (January 2007) ➡ 90.0% (October 2010)

○ Sign language and text messaging service for those with hearing impairments
- Video call-based services via sign language (daily average of 120 cases) and SMS online (33 cases).

○ Consultation service for the socially marginalized, including the elderly who are living alone
- 'Senior Assurance Call' (operators make direct phone calls to ask if everything is OK) is made two to three times per week for the elderly who are living alone; voluntary service is arranged, if necessary.

○ Consultation services in foreign languages
- Services are provided in five different languages to handle the inquiries from foreigners to make sure that they can enjoy the service just like the Koreans do. The consultation quality marked 88.9 points, showing high level of satisfaction.

○ Services utilizing multimedia technologies
- Consultations via SMS, GPS service, SNS, on-site civil service, video-call consultations.

○ Higher efficiency in the public sector by operating the integrated call center
- Greater efficiency driven by integrated management of civil service functions and the related personnel that used to be scattered.
- Improved concentration at work and the satisfaction level of the public officials rose to 93%

Actors and Stakeholders

 Who proposed the solution, who implemented it and who were the stakeholders?
Mayor of Seoul, Oh Se-hoon, promised to implement "citizen customer-oriented administration" at his inauguration ceremony in July 2006 and since then, he has carried out drastic reforms in city administration. Accordingly, the city government sought ways to resolve the pending issues by encouraging its employees to propose creative ideas ('Imagination Bank') and getting citizens involved in policy proposals ('Seoul City's Oasis'). The Policy Committee of the city government proposed an idea to operate a call center that provides one-stop services and the suggestion was adopted in August 2006,

To launch a call center, public officials in all departments had to devise a detailed and yet easy-to-understand manual on their given work and the project required adequate budgetary support. However, many officials initially doubted the feasibility of this project and they were passive with regards to preparation of their relevant work manuals. In addition, the Seoul Metropolitan Council deliberating on the budget-related ordinances was mostly negative about the agenda.

To induce participation and cooperation of public officials and the municipal council, various strategies were mobilized by the city government. The participation of public officials was induced through numerous meetings and training programs that were supported by the mayor. Dozens of meetings and training programs, supported by the mayor, were held to draw active participation of public officials, and active and thorough explanations offered at the meetings of the standing committee, plenary meetings and budget deliberations to induce support from the municipal council.

In the initial stage of the initiative, the Vice Mayor 1 for Administrative Affairs led the efforts to devise feasible and efficient measures through specialist workshops and numerous internal reviews, based on which the pilot operation of the 120 Dasan Call Center began in January 2007. Following this, Customer Service Division was placed in charge of the center's operation and expansion of its services. The Call Center Operation Committee, including external specialists and municipal council members, deliberated on the relevant policy measures.

When the 52 representative phone numbers of 25 district offices were integrated in November 2009, officials in each district office cast doubt over the new system. Some district officials and council members argued that the municipal government should not get involved in district affairs.
The Seoul Metropolitan Government continued to persuade the district offices for a year, pointed out that it is difficult for citizens to distinguish between the affairs of the city government and district offices. In addition the city government persuaded that the services provided by the 120 Dasan Call Center had been successful and the district offices should enjoy this successful service as well. Finally, all of the 25 district offices agreed to sign the joint agreement to participate in the initiative.

(a) Strategies

 Describe how and when the initiative was implemented by answering these questions
 a.      What were the strategies used to implement the initiative? In no more than 500 words, provide a summary of the main objectives and strategies of the initiative, how they were established and by whom.
Building on the success of the pilot operation of the call center, the Seoul Metropolitan Government's commitment to implement administrative services that are not only citizen oriented but go beyond to touch the heart of the citizens was the biggest driver in the creation of today’s 120 Dasan Call Center. The major strategies employed during the development of the center are as follows:

○ Commitment to distinguished services
- The commitment to provide answers for any and all questions was reflected in the master slogan "Ask Anything"
- Establishment of a massive database and information search infrastructure for operators to obtain the answers to questions
- Provision of systematic training and forming a customer-focused mindset to enhance the competency of operators

○ Setting challenging goals that go beyond the KS (Korean Standards) and best practices of advanced countries
- Setting and surpassing the goals: a call response rate of 95% which is higher than that of the KS and foreign call centers (e.g., the New York 311 Call Center), first contact handling rate of 80% and a consultation starting rate within 15 seconds of 80%

○ Gradual expansion of the integration scope and development of new services
- Gradual integration of services, considering technical problems and oppositions from relevant officials (the City Hall → District Office)
- Development of new services, utilizing creative proposals and multimedia technologies

○ Steady improvement through quality evaluations and monitoring
- Use 980 mystery shoppers for quality evaluation and service quality improvement
- Identify areas for improvement and modification through ‘Happy-call’ system and analysis of complaints and inquiries of citizens

○ Strategic outsourcing to private companies
- Adopting competition-based private outsourcing to prevent the expansion of public organizations and to utilize private-sector know-how (two private institutions in 2007➡ three in 2010)
- Although the operation of the Center is outsourced, the Seoul Metropolitan Government is in direct charge of its core tasks including developing consultative programs and new services, and devising development strategies.

○ Active utilization of external resources, such as the City Council and specialist groups
- Utilization of the Call Center Operation Committee, which consists of council members, professors, researchers and specialists in different fields
- Operation of the 'mystery shopper' system involving citizens and retired public officials to monitor the call center

(b) Implementation

 b.      What were the key development and implementation steps and the chronology? No more than 500 words
The 120 Dasan Call Center was first established in January 2007 for pilot operation after integrating automated response systems of 6 institutions. Then in September 2007, the call center was officially launched, integrating 17 automated voice response systems of 16 institutions. As of October 2010, 69 systems of 41 institutions have been integrated into single number, 120.

❍ Major track record

▷ Sep. 2006 : Devising a comprehensive plan to provide high-quality civic services
▷ Nov. 2006 : Launching the first-stage project (integration of automated voice response system and establishment of infrastructure for the Call Center)
▷ Jan. 2007 : Legislating ordinances (establishing the rationale for private outsourcing and the Operation Committee)
▷ Jan. 2007 : Pilot operation of the Call Center
▷ Sep. 2007 : Officially opening the 120 Dasan Call Center
▷ Jan. 2008 : Implementing 24/7 consultations
▷ March 2008 : Implementing the ‘Senior Assurance Call’ service for the elderly who are living alone
▷ June 2008 : Implementing video call-based service for those with hearing impairments
▷ Sep. 2008 : Implementing the GPS service
▷ March 2009 : Implementing SMS consultation service
▷ Nov. 2009 : Integrating the 120 Dasan Call Center for the city and administrative districts (52 phone numbers of 25 district offices)
▷ Feb. 2010 : Implementing consultation service in foreign languages (five languages)
▷ April 2010 : Implementing weekend consultation services via SMS and sign language (video-based)

In order to operate the 120 Dasan Call Center, the following systems have been aligned and integrated: the 'integrated management system for the Office of Waterworks’ (January 2007); the 'integrated management system for public transit’ (September 2007); the 'GPS and route guidance system’ (June 2008); and the 'automobile-related civic service system’ (October 2009). In the future, the 'integrated taxation system' will be included to handle every form of civic service with a single 120 phone call.

(c) Overcoming Obstacles

 c.      What were the main obstacles encountered? How were they overcome? No more than 500 words
The biggest challenge in the initial stage of this project was overcoming the cynicism and the opposition of City Council members, executives and public officials. They said, "It would be impossible for operators, who are not public officials, to provide accurate answers on the diverse and complicated affairs of the Seoul Metropolitan Government." And yet, thanks to the commitment and active persuasion of the mayor of Seoul and the executives, the call center plan was adopted.

The practical challenges included establishing a necessary consultation database and developing consultation programs that allowed professional operators to provide detailed and accurate answers. However, many departments and managers were uncooperative and aloof. To overcome such obstacles, vice mayor led the efforts to conduct 22 training sessions and discussions for the heads and managers of departments. Moreover, 35 weekly working-level meetings were held to establish a standard database for consultation. Along with this, a thorough analysis of the civic inquiries and complaints registered via phone call and online was conducted, over the past three years, to verify the feasibility and success of the specialized consultations.

The difficulty experienced in the final stage was the integration of the numbers of the 25 district offices into a single phone number. Some of the districts strongly opposed the idea as they thought such integration would lead to a possible shrinkage in their budgets and personnel and the possible intervention of the Seoul Metropolitan Government in their district’s affairs. Nevertheless, 25 administrative districts finally agreed to the idea of integrating their representative numbers thanks to the positive feedback and strong support from the citizens.

(d) Use of Resources

 d.      What resources were used for the initiative and what were its key benefits? In no more than 500 words, specify what were the financial, technical and human resources’ costs associated with this initiative. Describe how resources were mobilized
The development of a consultation program that allows operators to provide speedy and accurate responses was essential. The Seoul Metropolitan Government, in conjunction with LGCNS (a Korean company for SI), developed an exclusive consultation program (the municipal government currently holds the copyright for this program). Seoul City also developed and operates other relevant programs including the consultation resources management program (for effective management of personnel and resources) and the 'GPS and road directory system'.

The core resources for the operation of the 120 Dasan Call Center are the human resources, i.e., its operators. To make sure that the operators are competent enough for the consultations, over 240 hours of training sessions are provided to the newly hired staffs, along with over 170 hours of complementary training, ad-hoc tests and on-site trainings. Since operators who are well aware of the Seoul Metropolitan Government’s affairs are not easily nurtured, the Center has made an arrangement to retain its core personnel even after its outsourcing agreement with its private affiliations ends.

The cost of establishing and operating the 120 Dasan Call Center is based on the financial expenditure on the related personnel and resources by individual institutions, which is mobilized to minimize the spending. Despite the initial investment in equipment purchase and program development, the economic benefit is huge. According to a research conducted by the Seoul Development Institute, the economic benefits of the 120 Dasan Call Center were estimated at KRW 12.7 billion in 2007, KRW 22.4 billion in 2008, KRW 56.7 billion in 2009 and KRW 92.2 billion in 2010.

Sustainability and Transferability

  Is the initiative sustainable and transferable?
○ Sustainability
The 120 Dasan Call Center was set up and has been operated in accordance with the Ordinance of the Seoul Metropolitan Government (of Jan. 2, 2007). It has also been recognized as an exemplary case at home and abroad through various international certifications and awards.
- KS Service Certification (September 2008), ISO 20000 (September 2008), ISO 9001 (December 2008), Korea Service Quality Excellence Certification (December 2010)
- Customer Satisfaction Management Award (January 2008, January 2009), KSQI Call Center of Excellence (March 2008, March 2009), Grand Prize in the Brand of the Year (September 2008), Korea Standard Grand Award (October 2009), Grand Prize in the Outsourcing Company of Excellence (January 2010)

○ A case benchmarked by organizations at home and abroad
Many public officials and researchers from domestic public institutions and private companies and those from developing and developed countries have visited the Center since its operations went into full swing. The Seoul Metropolitan Government provides the Center’s operational manual, as well as related information, when requested.
- Abroad: So far, 370 people from 40 organizations in Uruguay (July 2009), Vietnam (March 2009), China (March 2009), U.S. (February 2009), Lebanon (February 2009), Bangladesh (November 2008), Indonesia (November 2008), Singapore (November 2008), and Egypt (November 2008) have visited the Center. Georgia University in the U.S. is conducting a research on the Center as a best practice in administrative services. \The American Society for Public Administration invited Seoul to give a presentation on the 120 Dasan Call Center in April 2010.
- Domestic: 2,474 people from 513 institutions have visited the Center, including those at private companies, such as Samsung Electronics, as well as those at the Ministry of Public Administration and Security and the Busan Metropolitan Government.

○ Future Plans
The basic materials and operational manual of the Center will be translated into English for the sake of benchmarking and knowledge-sharing at home and abroad. The Seoul Metropolitan Government will provide technical support and consultations for developing countries, if the project is aligned with international cooperation projects, thus contributing to the development of the international community.

Lessons Learned

 What are the impact of your initiative and the lessons learned?
The 120 Dasan Call Center has proposed a new model for public call centers in Korea and has become an example to follow. Lawmakers at the National Assembly now question why the call centers of certain ministries do not perform as well as the 120 Dasan Call Center. The service of the Dasan Call Center has also raised the level of public expectations on overall public services not just the public call center services, which have become a factor pressing for reforms in public service in general.
The success of the 120 Dasan Call Center has been materialized from out-of-box thinking and the shattering of stereotypes that 'operators that are not public officials cannot deal with complicated administrative tasks' and 'public services are the exclusive domain of the public officials in charge.' The Center reaffirmed that creative thinking and thorough preparation can lead to a new model for public services that can further encourage innovation not only in the Seoul Metropolitan Government but also in the public sector, as a whole.

The creative and innovative model of the 120 Dasan Call Center has been widely applied to other parts of the public sector. The Seoul Metropolitan Government has already established the Seoul Welfare Net Center and the Job Center that serve as one-stop centers for welfare and job creation, respectively. The city government is currently carrying out a project to establish an integrated window of civic services such as issuance of permits and approvals that has been handled at different departments.

Contact Information

Institution Name:   Customer Service Division Seoul Metropolitan Government
Institution Type:   Government Department  
Contact Person:   Sun-Hui Shim
Title:   Deputy Director  
Telephone/ Fax:   82-2-6361-3379
Institution's / Project's Website:   82-2-6361-3319
E-mail:   chim0428@seoul.go.kr  
Address:   15, Deoksugung-gil, Jung-gu, Seoul
Postal Code:   100-739
City:   Seoul
State/Province:  
Country:  

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