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Integrating Systems Design and
Behavioral Science to Address a
Public Sector Challenge
from Within
ESDC Innovation Lab,
Government of Canada
Presented to Research in Systemic Design 7
Turin, October 24-26, 2018
Connect with us: NC-LAB-GD@hrsdc-rhdcc.gc.ca
Email us to join our listserv or GCConnex community
#ESDCinnovationlab
The ESDC Innovation Lab brings a human-centred
tool kit to the challenges faced by our Department,
bringing the lived experience of Canadians into the
development and improvement of policies,
programs and services in order to respond to the
changing needs of Canadians.
Employment and Social Development Canada
(ESDC) provides most of the direct services to
Canadians on behalf of the Government of
Canada. This includes pensions, employment
insurance, disability supports, and student loans,
for example.
The Canada Learning Bond
• The Canada Learning Bond is a an income-tested Government of Canada program
available for eligible children from low- and modest- income families* to put toward
education expenses.
• It provides an initial payment of $500 into a Registered Education Savings Plan (RESP)
plus an additional $100 for each year of eligibility to a maximum of $2,000.
• Personal contributions into an RESP are possible, and are incentivized by the Government
of Canada, but are not required to receive the Canada Learning Bond.
* For children born in 2004 or later
The Unlikely Birth of a Systemic Design Project
• An experiment that tested 7 variations of the letter including various
interventions (e.g., an infographic insert, or a message on the
envelope)
• The letters were sent to over 50,000 parents and their impact on
uptake was measured after 7 months.
• Letters resulted in a statistically-significant but modest increase in
program take-up:
No letter
5% uptake
Standard
letter
Additional
4% uptake
Standard letter +
interventions
No additional increase
in uptake. Some letters
had a negative impact.
Why can’t letters alone increase take-up?
What else is at play?
6
The Design Challenge
• To increase uptake of the Canada Learning Bond
• To better understand perceptions of education and
financial decision making among low income
families to improve ESDC programs
What We Did: A Systemic Approach
Theory of Change: Understanding the How and Why
Building upon the program logic model*,
this approach unpacks links between activities,
outcomes, and contexts of the program,
as well as the existing evidence base for each
assumption embedded in the program logic.
* Canada Education Savings Program Final Performance Information Profile, September 2017.
Theory of Change: Mapping Assumptions
Systems Mapping: Understanding Behaviour Using
Motivation, Capability, and Opportunity*
* Michie S, Atkins L, West R. (2014) The Behaviour Change Wheel:
A Guide to Designing Interventions. London: Silverback Publishing.
www.behaviourchangewheel.com.
Educational Attainment Systems Map
ID support
Sign up bonus
Informed decision-making and financial security
Credits for youth service
Post sign-up relationship
Child Future Savings Boost
Living insurance
Non-financial community supports
AWARENESS
“How come I didn’t know about this?”
EASE OF ACCESS
“It’s just not convenient.”
“I don’t have a car; I can’t get into
town to the bank.”
POINTS OF VULNERABILITY
"I lost all my money.”
SAVINGS INCENTIVES ARE
NOT FOR EVERYONE
“I am focused on surviving.”
THE LIFE-COURSE CHALLENGES OF
VULNERABLE CANADIANS ARE INTERRELATED
“So many shortfalls in life that it makes it hard to even think about
what their [my kids] future will hold.”
IDEAS
Educational package – rights, responsibilities, and benefits
Tailored messaging
Communicating complexity
RESP gift cards
Chatbot/ AI Social Buddy
CESP
DRAFT
Page 11
Exploring the Depths of the Challenge
Continuous Testing and Experimentation
• For example, a new experiment tested 5 variations of the letter based on research
findings.
• The letters were sent to parents of the oldest cohort of CLB-eligible children and their
impact on uptake was measured after 6 months.
3,398 more children receiving the CLB
(compared to the standard letter)
4,580 more children receiving the CLB
(compared to the standard letter)
No letter
2.2% uptake Standard letter
5.7% uptake
Standard letter + exact dollar amount
8.0% uptake
Standard letter + exact dollar amount– savings
8.8% uptake
Three Key Take-Aways
The agile use of mixed methods to help address complex policy
challenges
Integrating theory of change and systems design for a deeper
understanding of the problem.
Engaging with the lived experience of Canadians provides a
breadth of learning that can help advance holitstic approaches.
Jeannie Dempster
Director, ESDC Innovation Lab
Jeannie.Dempster@hrsdc-rhdcc.gc.ca
@?
Teresa Bellefontaine
Team Lead, Full Design Projects
Teresa.Bellefontaine@hrsdc-rhdcc.gc.ca
@TeresaTopics
Monica Soliman
Behavioural Scientist, Immigration, Refugees, and Citizenship Canada
Monica.Soliman@cic.gc.ca
@Monica_E_G
Our Tools and Methods are available on the Lab’s GCconnex: email us for an invitation to the group
#ESDCInnovationLab How can you reach us?
Annex A: What we did: Fieldwork by the numbers
March 2017 – April 2018
• The team travelled to Winnipeg, Toronto, Ottawa, PEI (9
communities), and Sandy Bay and Abeqweit First Nations
communities, with 146 people engaged.
• 27 Interviews and 5 workshops with low income Canadians.
• 11 key informant interviews, including RESP providers.
• 5 Observations of service interactions.
• 10 workshops held with stakeholders across the country, bringing
together government (including CESP participants), RESP providers,
and community-based organizations.
Annex A: What We Did: People and Perspectives
Employment and Social Development Canada: Office of Disability Issues,
Learning Branch
Other federal government departments – Canada Revenue Agency,
Aboriginal and Northern Affairs Canada, Privy Council Office
Community organizations – social workers, financial literacy trainers
Financial institutions – banks, credit unions, scholarship fund provider
Educational institutions – teachers, researchers, university staff
Low income families – parents, children, youth
Provincial governments
Annex B: What We Heard: Insights
Awareness is an issue.
Many of the families that we spoke with were not aware of the CLB, but when they heard about it, they
wanted it.
Promoting the CLB requires a community-wide effort.
We spoke to a wide range of community organizations that see a need to support parents in their journey.
They tend to promote the CLB as a benefit.
It’s complicated: the messaging, choices, and process can be overwhelming.
As people navigated through the journey to get the CLB, they encountered different layers of
complexity.
Parents need to feel safe when investing for their children.
As the CLB could be tied to an investment vehicle, some families could encounter different forms of risk
along the way. Also, as new initiatives are considered, the unique needs of low income families need to be
taken into consideration.
Aspiration isn’t enough.
The systemic barriers to education are too hard for some families to overcome alone.
People aren’t finding their path.
Some parents are not finding their career path in life. This is resulting in lost potential for
themselves and Canadian society.
The needs of the present compete with the needs of the future.
Some low income families are in survival mode, struggling to survive their present circumstances.
With that, it is incredibly difficult (mentally and physically) for them to plan for the future.
For some, fear of embarrasment takes precedence over thinking about the future and
seeking advice.
Topics such as finances, education, and career development/upskilling are closely intertwined
with identity and emotional wellbeing. Conversations around these topics can cause discomfort
and vulnerability in many teens and parents.
Foundational Identification is necessary for full participation in society.
Access to ID is a significant barrier for some, in particular Indigenous peoples. In most provinces,
there is a cost to applying for a birth certificate, which can make the difference in access for low
income families.
Annex C: What We Heard: Insights
Annex C: What we heard: Stories from the field
“I actually did have an education fund, but my mom is a
gambling addict and she spent every penny we had. So
college and university was not an option for us ...
Education is important for me for my kids, because I
don’t want them to have to walk in my shoes.”
- mother, Charlottetown
“I signed up to contribute $25 a month for each child... It’s a
close shave. All we have in the bank is $51 because we had to
pay moving expenses… plus the government says we need to
pay back $2,400 (a provincial benefit overpayment), but we don’t
feel able to pay.” - father, Toronto
Annex C: What We Heard: Different Messaging and Mental Models
The different messages revealed competing perspectives about the CLB, with community-
based organizations and individuals seeing it as a benefit, and others as an education savings
incentive. This causes confusion, but also leads to different expectations of the CLB.
Annex C: Tools
Annex C: Tools: Leverage Point Discussion Cards
Annex C: Tools: Inclusive Design Mix and Match Cards
Annex C: Tools:Annex C: Tools: Mismatch to Solution Cards

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Integrating Systems Design and Behavioral Science to Address a Public Sector Challenges from Within

  • 1. Integrating Systems Design and Behavioral Science to Address a Public Sector Challenge from Within ESDC Innovation Lab, Government of Canada Presented to Research in Systemic Design 7 Turin, October 24-26, 2018 Connect with us: NC-LAB-GD@hrsdc-rhdcc.gc.ca Email us to join our listserv or GCConnex community #ESDCinnovationlab
  • 2. The ESDC Innovation Lab brings a human-centred tool kit to the challenges faced by our Department, bringing the lived experience of Canadians into the development and improvement of policies, programs and services in order to respond to the changing needs of Canadians. Employment and Social Development Canada (ESDC) provides most of the direct services to Canadians on behalf of the Government of Canada. This includes pensions, employment insurance, disability supports, and student loans, for example.
  • 3. The Canada Learning Bond • The Canada Learning Bond is a an income-tested Government of Canada program available for eligible children from low- and modest- income families* to put toward education expenses. • It provides an initial payment of $500 into a Registered Education Savings Plan (RESP) plus an additional $100 for each year of eligibility to a maximum of $2,000. • Personal contributions into an RESP are possible, and are incentivized by the Government of Canada, but are not required to receive the Canada Learning Bond. * For children born in 2004 or later
  • 4. The Unlikely Birth of a Systemic Design Project • An experiment that tested 7 variations of the letter including various interventions (e.g., an infographic insert, or a message on the envelope) • The letters were sent to over 50,000 parents and their impact on uptake was measured after 7 months. • Letters resulted in a statistically-significant but modest increase in program take-up: No letter 5% uptake Standard letter Additional 4% uptake Standard letter + interventions No additional increase in uptake. Some letters had a negative impact.
  • 5. Why can’t letters alone increase take-up? What else is at play? 6 The Design Challenge • To increase uptake of the Canada Learning Bond • To better understand perceptions of education and financial decision making among low income families to improve ESDC programs
  • 6. What We Did: A Systemic Approach
  • 7. Theory of Change: Understanding the How and Why Building upon the program logic model*, this approach unpacks links between activities, outcomes, and contexts of the program, as well as the existing evidence base for each assumption embedded in the program logic. * Canada Education Savings Program Final Performance Information Profile, September 2017.
  • 8. Theory of Change: Mapping Assumptions
  • 9. Systems Mapping: Understanding Behaviour Using Motivation, Capability, and Opportunity* * Michie S, Atkins L, West R. (2014) The Behaviour Change Wheel: A Guide to Designing Interventions. London: Silverback Publishing. www.behaviourchangewheel.com.
  • 11. ID support Sign up bonus Informed decision-making and financial security Credits for youth service Post sign-up relationship Child Future Savings Boost Living insurance Non-financial community supports AWARENESS “How come I didn’t know about this?” EASE OF ACCESS “It’s just not convenient.” “I don’t have a car; I can’t get into town to the bank.” POINTS OF VULNERABILITY "I lost all my money.” SAVINGS INCENTIVES ARE NOT FOR EVERYONE “I am focused on surviving.” THE LIFE-COURSE CHALLENGES OF VULNERABLE CANADIANS ARE INTERRELATED “So many shortfalls in life that it makes it hard to even think about what their [my kids] future will hold.” IDEAS Educational package – rights, responsibilities, and benefits Tailored messaging Communicating complexity RESP gift cards Chatbot/ AI Social Buddy CESP DRAFT Page 11 Exploring the Depths of the Challenge
  • 12. Continuous Testing and Experimentation • For example, a new experiment tested 5 variations of the letter based on research findings. • The letters were sent to parents of the oldest cohort of CLB-eligible children and their impact on uptake was measured after 6 months. 3,398 more children receiving the CLB (compared to the standard letter) 4,580 more children receiving the CLB (compared to the standard letter) No letter 2.2% uptake Standard letter 5.7% uptake Standard letter + exact dollar amount 8.0% uptake Standard letter + exact dollar amount– savings 8.8% uptake
  • 13. Three Key Take-Aways The agile use of mixed methods to help address complex policy challenges Integrating theory of change and systems design for a deeper understanding of the problem. Engaging with the lived experience of Canadians provides a breadth of learning that can help advance holitstic approaches.
  • 14. Jeannie Dempster Director, ESDC Innovation Lab Jeannie.Dempster@hrsdc-rhdcc.gc.ca @? Teresa Bellefontaine Team Lead, Full Design Projects Teresa.Bellefontaine@hrsdc-rhdcc.gc.ca @TeresaTopics Monica Soliman Behavioural Scientist, Immigration, Refugees, and Citizenship Canada Monica.Soliman@cic.gc.ca @Monica_E_G Our Tools and Methods are available on the Lab’s GCconnex: email us for an invitation to the group #ESDCInnovationLab How can you reach us?
  • 15. Annex A: What we did: Fieldwork by the numbers March 2017 – April 2018 • The team travelled to Winnipeg, Toronto, Ottawa, PEI (9 communities), and Sandy Bay and Abeqweit First Nations communities, with 146 people engaged. • 27 Interviews and 5 workshops with low income Canadians. • 11 key informant interviews, including RESP providers. • 5 Observations of service interactions. • 10 workshops held with stakeholders across the country, bringing together government (including CESP participants), RESP providers, and community-based organizations.
  • 16. Annex A: What We Did: People and Perspectives Employment and Social Development Canada: Office of Disability Issues, Learning Branch Other federal government departments – Canada Revenue Agency, Aboriginal and Northern Affairs Canada, Privy Council Office Community organizations – social workers, financial literacy trainers Financial institutions – banks, credit unions, scholarship fund provider Educational institutions – teachers, researchers, university staff Low income families – parents, children, youth Provincial governments
  • 17. Annex B: What We Heard: Insights Awareness is an issue. Many of the families that we spoke with were not aware of the CLB, but when they heard about it, they wanted it. Promoting the CLB requires a community-wide effort. We spoke to a wide range of community organizations that see a need to support parents in their journey. They tend to promote the CLB as a benefit. It’s complicated: the messaging, choices, and process can be overwhelming. As people navigated through the journey to get the CLB, they encountered different layers of complexity. Parents need to feel safe when investing for their children. As the CLB could be tied to an investment vehicle, some families could encounter different forms of risk along the way. Also, as new initiatives are considered, the unique needs of low income families need to be taken into consideration. Aspiration isn’t enough. The systemic barriers to education are too hard for some families to overcome alone.
  • 18. People aren’t finding their path. Some parents are not finding their career path in life. This is resulting in lost potential for themselves and Canadian society. The needs of the present compete with the needs of the future. Some low income families are in survival mode, struggling to survive their present circumstances. With that, it is incredibly difficult (mentally and physically) for them to plan for the future. For some, fear of embarrasment takes precedence over thinking about the future and seeking advice. Topics such as finances, education, and career development/upskilling are closely intertwined with identity and emotional wellbeing. Conversations around these topics can cause discomfort and vulnerability in many teens and parents. Foundational Identification is necessary for full participation in society. Access to ID is a significant barrier for some, in particular Indigenous peoples. In most provinces, there is a cost to applying for a birth certificate, which can make the difference in access for low income families. Annex C: What We Heard: Insights
  • 19. Annex C: What we heard: Stories from the field “I actually did have an education fund, but my mom is a gambling addict and she spent every penny we had. So college and university was not an option for us ... Education is important for me for my kids, because I don’t want them to have to walk in my shoes.” - mother, Charlottetown “I signed up to contribute $25 a month for each child... It’s a close shave. All we have in the bank is $51 because we had to pay moving expenses… plus the government says we need to pay back $2,400 (a provincial benefit overpayment), but we don’t feel able to pay.” - father, Toronto
  • 20. Annex C: What We Heard: Different Messaging and Mental Models The different messages revealed competing perspectives about the CLB, with community- based organizations and individuals seeing it as a benefit, and others as an education savings incentive. This causes confusion, but also leads to different expectations of the CLB.
  • 21. Annex C: Tools Annex C: Tools: Leverage Point Discussion Cards
  • 22. Annex C: Tools: Inclusive Design Mix and Match Cards
  • 23. Annex C: Tools:Annex C: Tools: Mismatch to Solution Cards