Hivetec-DES-Report-V1.3

DES REPORT
Disability Employment Services - Hivetec Paper
hivetec.com.au
1300 195 225
JULY 2017

KEY STATISTICS
INTRODUCTION
& CONTEXT
Roberts Consulting was
commissioned by Hivetec to
undertake a review of the
recently published Disability
Employment Services Reform
(2018) Industry Information
Paper.
The purpose is to provide
detailed analysis regarding
the impact of the proposed
changes on the DES provider
network from 2018 and
beyond.
Disability Employment
Services (DES) is the Australian
Government’s specialised
employment service for people
whose disability is assessed as the
main impediment to them gaining
employment. It plays an important
role in improving the social and
economic participation of people
with disability.
ANNUAL
PARTICIPANTS IN DES
180,000+
DES PROVIDERS WHO
ARE ALSO JOBACTIVE
PROVIDERS
28
COMMENCEMENT
PER MONTH APPROX
7,900
DES PROVIDERS IN TOTAL
119
INCREASE IN DES
PARTICIPANT LAST 6 YEARS
70%
DES SITES THAT ARE ALSO
JOBACTIVE
411
DES SITES THAT
DELIVER BOTH DES-
DMS AND DES-ESS
573

IMPROVING THE PERFORMANCE OF THE DES PROGRAM
Over the next four
years, the Australian
Government will be
investing more than $3
billion in (DES) Services
and its associated
supports to help people
with a disability find,
secure and keep a job.
IMPROVEMENTS
The Government has been working with the sector to find ways to improve the performance of
the DES program over an extended period. They argue that more people with disability should
achieve the social, emotional and financial benefits that work brings.
Currently DES provision is delivered by a range of providers (119) in total, these providers
are a range of for profit and not for profit entities. Services are delivered from almost
(2000) sites across (110) Employment Service Areas. More remote services are delivered
under the Premier and Cabinet contracts via the Community Development (CDP) program.
DES has two uncapped demand-driven programs, DES-Disability Management Service (DES-DMS) and
DES-Employment Support Service (DES-ESS).
DES-DMS
Provides services to eligible job seekers with
disability, injury or health condition who need
assistance to find a job and occasional support in
the workplace to keep a job.
DES-ESS
Provides assistance to eligible job seekers with
permanent disability to find a job and who need
regular, ongoing support in the workplace to keep
a job.
1
ESAs do not currently include more remote areas of Australia. Services in remote areas are currently managed via the Department of Premier and Cabinet’s Community
Development Program (CDP).
Disability Employment Services Hivetec Paper
3

DES
COMBINED
Combined, both programs deliver a suite of employment services to people with disability,
injury or health condition who are looking for work in the open labour market. Referrals to the
program are dominated by Centrelink accounting for almost 91% of all transfers, further 8%
are sought via self-attachments known as direct registration and the remaining 1% is gathered
via Work Assist (previously Jobs In Jeopardy). Over 180,000 people around Australia use DES
services every year. The market currently engages approx. 93,000 commencements per year,
generating approximately 50,000 job placements. Disappointingly not everyone who gets a
job through the current DES systems stays in employment, the long-term outcome rates have
declined over recent years.
The role of DES providers is clear, to provide tailored assistance to participants to find
sustainable employment. To do this they are expected to build lasting linkages and develop
local relationships with employers, assisting them to negotiate the complex web of financial
products and incentives they can obtain. Participant skills development is equally critical as
is connecting participants with ancillary support services. Ancillary services in this context
are designed to meet some specific medical needs for an individual focused on their return
to work. Such services can and often include psychologists and or other support services
targeted at the individuals need in overcoming physical or mental disability.
Participants in DES programs crucially must also satisfy the governments mutual obligation
agenda. People on some types of income support are required to actively look for work to
“justify” their assistance payments to the electorate. Providers are tasked with policing the
conditionality.
However, unemployment for People with Disability is an intricate network of causes and
consequences which require a range of responses. This support should be tailored to each
individual and their experience. Providers will need to become more skilled at tailoring support
to the individuals by aligning the job outcomes with their goals and ambitions.
4

TRANSFORMATION MARKETPLACE
The 2018 DES Discussion Paper
The 2018 DES discussion paper represents a transformational market, persistent key
themes have been raised as deficient in the current system over an extended period, and 2018 will display
significant change to the provider network.
The six primary areas targeted at improving DES, applicable to both DES-Disability Management Services
(DES-DMS) and DES-Employment Support Services (DES-ESS), are outlined below:
Increasing participant
choice and control
in the services they
need
Driving greater
competition and
contestability in DES
Aligning incentives
to support better
outcomes
PAGE 08
PAGE 10
PAGE 12
Improving the gateway
and assessment
process for DES
participants
PAGE 14
Better targeted
assistance in the
workplace
PAGE 15
Improved Employer
engagement,
Education and
ongoing relationships
PAGE 17
These changes aim to build on the strengths of the current system while
maintaining stability for participants, employers and providers.
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HOW PROVIDERS WILL
LIKELY NEED TO OPERATE
DES SERVICES POST 2018
REFORMS
The 2018 reforms will cause substantial upheaval for the sector, with significant regulatory
and payment transformation declared.
The market is being pushed towards a more demand driven service delivery model with
greater risk burdens on the provider base.
6

Key Statistics
Funding Envelope $800M (PA)
Businesses #119
Annual Indexation 1 July 2019
Life Cycle Stage Transformational
Revenue Volatility Medium
Competition Level High & Increasing
Capital Intensity Increasing
Concentration Level Increasing
Regulation Level High
Technology Change Medium
Barriers to Entry Reducing
Industry Globalisation Med
The summary tables that follow highlight the key themes for further investigation and are useful
in broadening our knowledge in this complex shifting policy area.
We have outlined the policy shift, and how the current model will transform under the new
structure. Finally, we offer insight into how the changes will affect the provider base, via a
(SWOT) analysis.
Disability Employment Services Hivetec Paper
7

INCREASING PARTICIPANT CHOICE AND CONTROL IN THE SERVICES
THEY NEED
Current Model
Participants have limited information about
providers to inform their choice
Limited participant control in the job planning
process.
Limited choice of provider: management of
referrals limits participants’ choice of provider.
Provider directed service
Participants face restrictions on changing
providers at will.
Changes Proposed
Increased participant control of services
Participants to choose their provider and to change their
provider if unsatisfied, with funding following the participant.
Participants having more say in their Job Plans and better
information to empower participants during service planning.
Increased choice of providers
Relaxed ESA boundaries to enable choice of provider.
Greater information for participants about providers and the
services they offer, and others’ experiences of providers.
Implications
1. Participants will be able to choose their DES Provider, and change their DES Provider, up to 5 times in any 2 year
period. Participant choice will be supported by more detailed information about DES Providers’ services and
performance including likely changes to the publication of Star Ratings, and a relaxation of ESA boundaries for
Participants.
2. The new model also allows for greater use of technology based service delivery, for example, attending
appointments via videoconference. DES Providers will need to be equipped to offer this type of innovation
in service, whilst ensuring that Participants meet any evidentiary requirements for attendance and mutual
obligation.
3. Participants may also have the option to ‘unbundle’ their services, e.g. to seek Job Brokering from one Provider
and In-Work Support from another. This level of flexibility may see some Providers becoming specialists in a
particular area of DES service provision or specialist provider spinoffs could evolve.
4. Initially, Participants may stay with their current DES Provider. However, as Participants’ awareness of choice
and options begins to develop, customer demand for higher quality Providers and innovative, specialist services
is likely to grow.
To attract clients and retain or grow market share, DES Providers will need to be in a position to effectively
market their suite of services, adapt their service offering to meet customer needs, and demonstrate results.
8

KEY CONSIDERATIONS
:-)
FRIENDLINESS OF SERVICE
In order to attract Participants, DES Providers will need to place a greater emphasis on customer
service skills such as communication, friendliness and attentiveness to individual needs.
Customer service skills targeted to the needs of the individual will be highly valued by consumers and
therefore service providers as the model evolves
CUSTOMISE
DATA CAPTURE
Customisable work flow management software
which ensures that correct processes are followed
and enables smoother outcome tracking will be
critical for DES Providers as outcome payments
make up a larger proportion of income.
Data capture software that is less onerous
than the Government’s ESS web platform, and
supports a higher level of customer service and
engagement, is likely to be viewed as a value add
for DES Providers.
VIDEO-CONFERENCING
TECHNOLOGY
Video-conferencing and video interviewing or
similar technology will play a greater role in how
services are delivered. Linking these facilities
to the central CRM may be beneficial for DES
Providers.
DES Providers will need to offer access to
technology and equip Participants with the
necessary technological skills to meet the demands
of the modern labour market. Adopting MWS
and its functions can support the development of
these skills.
Disability Employment Services Hivetec Paper
9

DRIVING GREATER COMPETITION AND CONTESTABILITY IN DES
Current Model
(Market Share Approach)
Heavily regulated provider market
Customer flow is allocated on a market share
arrangement and coordinated by Centrelink
Difficult for new providers to enter DES market
during the 5-year term of the Deed.
High barrier to entry and long term security
High performing providers restricted in
expanding business to new and existing
markets during the 5-year Deed term
Providers have a relatively stable cashflow
forecast and stable business environment
Margins are high 20%+
Changes Proposed
(Open Market Principles)
More flexible provider market
DES Provider Panel to make it easier for existing providers to
expand and for new providers to enter DES market.
Market share restrictions lifted so successful providers can grow.
Lower barriers to entry with lower security, numerous providers
issued licences to operate in each ESA
The flow/volume of jobseekers engaging with a provider will be
more market driven.
Providers will have uncertain cashflow forecasts with little or no
reduction in fixed costs.
Providers will have more competition and increased uncertainty
(Amplified Risk & greater need to engage, retain and deliver on
participant’s expectations)
Margins lower than 7-9% expected
Implications
1. Five-year licenses for DES will be issued using an ‘approved provider panel’ system, which replaces market
share allocation. The approved provider panel will streamline entry to new ESAs for high-performing Providers
and also enable new entrants to apply for licenses during the five year term.
2. Once approved to operate in an ESA, Providers will be free to promote their services and attract Participants
in a contestable market. Participants will be able to switch Providers and seek more suitable, quality services
outside ESA boundaries, meaning service revenue for Providers will be much less predictable.
3. Despite the lack of guaranteed market share, ESA coverage will remain a key procurement factor for DES.
Providers will need to be able to demonstrate that they can deliver services across the entire ESA, e.g. through
a combination of full time, part time and outreach services. This increases risk for Providers, particularly those
that do not have other contracts to support infrastructure.
4. It is anticipated that Providers will likely favour delivery locations on, or near, ESA boundaries to attract
Participants from adjacent ESAs without increasing fixed costs.
10

KEY CONSIDERATIONS
MARKETING
RETENTION
Over the next 12 months, existing DES Providers
who wish to continue under the new model,
will need to focus on retaining their customer
base. This means a focus on internal marketing
programs targeting existing DES Participants.
GUIDELINES
In a contestable market with consumer choice,
systems which support customer retention will
be valuable to DES Providers. The introduction
of addition functionality such as customised
letter templates (Is switching right for you? Talk
to us first.) and other documentation to support
ongoing customer contact. DES Draft Deed details
will be required in order to explore these options
further, expected August.
DES Providers will benefit from being able to reliably implement processes and guidelines, and maintain
a consistent standard of customer service for Participants across their business. Providers would benefit
from customisable workflow process mapping focused on crucial points in the job seeker engagement
sequence. For example, an ‘Initial Engagement Workflow’ that captures all the essential customer servicing
preferences.
STRATEGIES
Marketing strategies targeting both potential new Participants and employers will also be
critical. We see significant upside for Providers who are able to leverage relationships with
large employers proven to recruit DES clients, eg. Bunnings Warehouse. Additional system
functionality which supports marketing and service promotion to these key groups would be
favorable to providers.
a. Number of employers visit conducted this month
b. Number of interviews arranged this week
c. Average time to placement
d. The average salary of placed participants
e. Key stats on caseload mobility
Disability Employment Services Hivetec Paper
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ALIGNING INCENTIVES TO SUPPORT BETTER OUTCOMES
Current Model
Funding Ratios:
60% Service fees /40% outcome fees
Reward is based on higher mix of service fees and a
smaller proportion based on outcome fees.
Unintended consequences “creaming & parking”: the
current funding model encourages providers to focus
on easier-to-place job seekers, rather than more difficult
to place job seekers.
Current funding model may encourage poor jobmatching
and a focus on short term outcomes.
Funding is not linked to participants through pro-rated
fees.
Changes Proposed
Funding Ratios:
50% Service fees / 50% outcome fees
Reward will be more outcome focused; payment for
service activity and payment for results are equally
apportioned
Risk adjusted funding model with competition and
contestability - Pricing Mechanism/Reward and
Performance
Risk-adjusted payments based on key difficulty markers
Risk-adjusted outcome fees should lead to more
investment in hard-to-place job seekers.
Funding will be linked to individual participants through
pro-rating service fees when/if a participant changes
provider.
Implications
1. In the current environment, many DES Providers operate on a loosely defined ‘aggregate cost’ business
models. Broadly, this is determined based on total service fees for the Provider’s market share of clients plus
an estimated percentage of outcome payments for a small proportion of clients. The aggregate cost approach
masks the true cost of service delivery for DES Providers and the cost of delivering a full outcome to a specific
individual. Under the new funding arrangements – with non-guaranteed market share, pro-rated service fees,
and 50% outcome payments – the aggregate cost model is no longer feasible for DES Providers.
2. The new funding model rebalances payment ratios equally between service fees and outcome fees. In effect,
a further 10% of current guaranteed income will now be contingent on performance. Increasing the PbR
(Payment by results) aspect of the contract at 50% of total.
3. Payments are also based on a Participant risk adjusted funding model; DES Providers will receive higher
payments for placing those job seekers deemed ‘hardest to place’. This is designed to encourage greater focus
on hard-to-place job seekers, but presents a significant cash flow risk for DES Providers.
4. Other changes to the payment model will also impact Provider cash flows, increase costs, and tend to amplify
risk. In particular:
• Service Fees will be paid to DES Providers on a pro-rata basis and will be linked to individual
Participants. If a Participant chooses to switch Providers, the balance of the Service Fee will be
transferred to the new Provider.
• The traditional ‘job-start’ fee will be replaced by a 4 week outcome payment, to ensure that
Participants start a job well. Further payments will then be available after 13, 26 and 52 weeks
of employment. Effective Administrative processes will be critical to ensure outcome payment
tracking.
12

KEY CONSIDERATIONS
OPERATING MODELS
Progressive DES Providers will need to establish an activity based costing model that tracks all of the inputs
required to generate a sustained job placement for Participants in each stream. Technology which can
help to track workflows, costs and expenditures at the individual level will be of significant benefit to DES
Providers in this environment.
IT
INSIGHTS
DES Providers will need IT systems which can
support them to manage and track outcome
claims over an extended period. System providers
should be clear about how the product will meet
this need.
System functionality which delivers actionable
insights from workflow patterns is likely to be of
value to Providers. For example, if a previous claim
from an employer required payslip verification,
an active prompt that flags this early will help to
prevent future delays to cash flow.
FUNDING SHIFT
1 JULY 2019
The removal of guaranteed market share and
the funding shift towards outcome payments
on a sliding scale, may affect willingness to pay
block fees for software. DES Providers will need
to introduce variable servicing arrangements for
job seekers in Streams 1 to 5, which reflect the
investment and return offered for each client
group.
Funding indexation will be applied from 1 July
2019.
Disability Employment Services Hivetec Paper
13

IMPROVING THE GATEWAY AND ASSESSMENT PROCESS FOR DES
PARTICIPANTS
Current Model
Weaknesses with assessment process noted
Concerns around the effectiveness and efficiency of
ESAts and Job Capacity Assessments (JCAs).
Changes Proposed
Improved assessment process
Current assessment process is under review
Implications
1. Employment Services Assessment (ESAt): changes to ESAts are not part of the reforms commencing on 1 July
2018. However, a review of assessments will be undertaken, in consultation with the sector, which may result
in changes being introduced from 2019 as the new DES program becomes established.
2. The National Panel of Assessors (NPA) provides a range of assessment services to meet the needs of people
with disability in the workplace. Existing NPA contracts will be extended from 30 June 2017 to 30 June 2018,
and a new NPA will be established in 2018 through an application process.
KEY CONSIDERATIONS
CASELOAD
INSIGHTS
Current pricing model is based on active caseload,
we know that approximately 90,000 individuals
are actively engaged in DES at any one time with a
churn factor of approx. (2:1) over a rolling twelvemonth
period.
Considerable volumes of individuals not receiving
DES services could become eligible e.g. some could
be eligible under NDIS employment supports, in
total its estimated that approx. 250,000 eligible
participants don’t presently consume the DES
service, with most sitting at the (0-14) hour work
capacity assessment. (DHS Administrative Date –
Provider Briefing June 2017)
14

BETTER TARGETED ASSISTANCE IN THE WORKPLACE
Current Model
Poorly targeted Ongoing Support
Incentive structure does not align with ongoing support
needs of participants.
Changes Proposed
More effective Ongoing Support
Introduction of fee for service and benchmark hours to
better target Ongoing Support.
Implications
1. Work Assist will replace the current Jobs in Jeopardy services. Work Assist Service providers will be
compensated on a fee for service basis to aid people with disability already in work who need support to
remain in their job.
2. The weekly minimum work hours for a DES participant to maintain eligibility for Ongoing Support will be eight
hours a week. This change brings consistent eligibility criteria for Ongoing Support across the whole DES
program.
3. DES Providers will need to develop stronger linkages with stakeholders, including community and health
services and Registered Training Organisations, to provider effective Ongoing Support services.
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15

LONGER-TERM CONNECTIONS
KEY CONSIDERATIONS
ENGAGE
PORTAL
With a greater need to engage and maintain longerterm
connection with Participants and employers,
DES Providers will need to invest a share of their
potential future income on increased contact,
understanding and visibility with employers.
PARTICIPANTS
In Work Support has traditionally focused on the
Participant. However, our view is that support
initiatives should be further geared towards
supporting the employer. Investment is required
to focus attention on developing an employer
portal/gateway.
IT SUPPORT
Effective ongoing contact must be tailored to
the Participant’s needs and the industry of
employment. Ongoing support is particularly
critical for assisting clients with mental health
issues to maintain employment. Although this
group represents 35% of the total DES case load,
the industry invests a relatively small proportion of
funds in effectively meeting their needs.
This should be packaged in a convenient and easily
accessible format for employers and participant
alike. This aspect could benefit from innovation
and demands close provider, employer and IT
support service collaboration as new contracts
develop.
HELP & SUPPORT
Post placement supports will need more
attention from DES Providers in order to achieve
outcome payments. Tools such as integration
of placed candidate details with staff member
diaries could be valuable to DES Providers and
help do deliver more efficient post-placement
support.
16

IMPROVED EMPLOYER ENGAGEMENT, EDUCATION AND ONGOING
RELATIONSHIPS
Current Model
Limited employer awareness and incentives
Limited employer awareness or understanding of DES
and hiring people with disability.
Some employers unwilling to employ people with
disability.
Education Outcomes are payable where a participant
completes a semester of a Qualifying Education Course
at Certificate II or above
Changes Proposed
Improved employer awareness and incentives
Better communications with employers about benefits of
hiring people with disability.
Trialling of employer-nominated initiatives.
Education Outcomes are payable where a participant
completes a semester of a Qualifying Education Course
at Certificate III or above
Implications
1. DES Providers must build stronger relationships with employers to understand their skills and labour needs and
match suitable Participants to vacancies. Providers will also need to streamline employer access to financial
support and incentives for workplace adjustments, disability awareness training and development of workplace
policies and practices that break down barriers to employment.
2. In-Work support for employees and employers will need to be offered for as long as required. It is likely that
DES Providers will need to look at innovative approaches to In-Work support in order to secure longer-term
outcome payments.
3. Participants will need to complete a Certificate III level course (rather than Certificate II) in order to trigger an
Education Outcome payment claim for DES Providers. This is designed to ensure that education and training
is better targeted towards attaining employment. DES Providers may also need to invest additional resources
to support Participants through Certificate III courses, in order to secure payments. Many providers presently
generate approx. 30% of all outcomes from education results, with many not moving to employment after. This
will now be far harder to achieve, placing further risk on the income generating ability. Cert II activity will now be
outcome investment outlay, to date this investment mindset has been lethargic in the industry
KEY CONSIDERATIONS
ANALYSIS
DATA
Provider would benefit from the identification
of sustainable outcomes that had incentives
influences on the result. Detecting the influence
of subsidies and or other interventions can
help future outcomes and lasting relationships.
Such analysis would be highly advantageous to
providers.
Not all employers respond to servicing and
initiatives in the same way. Often several
engagements with an employer in a short period
can result in counter-productive result. This data
at the ESA level would be very helpful for providers,
they could categorise employers so they remain
both responsive and courteous.
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PROVIDER PERSPECTIVE SWOT
Strengths
Weakness
Low cost tender round for incumbent at 3* or above
Retain distinction between DMS and ESS services yet
via single contract
Consumer choice, empowering participant to move
between ESA boundaries
Provider growth encourage when delivering above
market performance
Higher outcome payment for certain clients
Low prescribed servicing requirement, room for
innovation
Poor provider removed form market after 4 qtrs of
under performance
No market share allocation
Funding reduced from 60/40 to 50/50 PbR
New cost of sale requirement
Reduced barriers to entry for new entrants
Consumer switching, with cash transferring with
individual
More panel # in each ESA (Increased competition for
participants)
Provider outcome payment stretched over 52 weeks
Greater visibility on past performance
3-month service fees upfront
Lower work capacity requirement for full outcomes
Opportunities
Threats
Innovation in service delivery
Strong entry level jobs growth from NDIS & care
sector
Existing infrastructure can be leveraged for DES
Softening employer perception around mental health
Low interest rate environment
The use of outside service providers to perform
various non-core activities
New entrants competing for participants
Less predictable cashflow
Risk adjusted funding requires different servicing
requirements /costing per stream
Longer PbR risk 4: 52 weeks
Longer ROI window for providers
Loss of supporting contracts underpinning
infrastructure costs
Less possible external funding availability
Education outcome increased from CII to CIII,
affecting performance
18

BLUE SKY THINKING
TIME & EFFORT
• Jobseekers needing time and high levels of effort and investment to compete in the mainstream labour market will
now be rewarded at a higher rate, provider will need a variable servicing arrangement to reflect the adjustment in
effort/time and risk of outcome being achieved. Support providers should recognise this shift in (PbR) contracting
terms and share some of the increased risk providers face.
• Implement an ESA specific Employers CRM pre-populated with contact details, locations and company classed as
Disability Friendly or Disability Aware would be highly treasured.
• Improvements in the availability of technology and innovation in service delivery is key. Providers will likely seek to
deliver subsequent contacts in a less costly manner, for example video conferencing, iphone, email or instant chat. The
challenge of remote servicing is accessibility for the participant and recording of the activity in a system. The use of
voice to text capability and transcription for the new wave of customer interaction would be alluring.
• Introducing a Unique Student Identifier (USI) linking tab will be useful for providers. Some DES participants could be
eligible for other government training incentives. Such support asists the provider in upskilling participants at little or
no additional cost.
Disability Employment Services Hivetec Paper
19

CONCLUSIONS
The changes proposed
are wide-ranging, the most
significant being increased
consumer influence on provider
choice and the increased
weighting of outcome payments
on total provider revenue.
New providers must attract their own referrals from Centrelink. Should volumes come in lower than
projected, the new providers’ ability to recover fixed costs through (PbR) revenue is immediately limited,
and the economics of a programme can be fundamentally undermined.
We conclude that market forces are unlikely to have a major affect at the initial spill. Unless government
amends the pre-offering slightly and bids a small market share provision to new entrants, whom we feel
will be reluctant to start delivering services until they have minimum viable caseloads.
History tells us that DES clients are likely to exhibit a high degree of inertia when switching to an
alternative supplier, we have seen such behaviour in prior DES contracts and more recently in the NDIS
consumer choice environment.
Over time as more individuals embrace choice and variety, DES participants are likely to be attracted to
the following five pull factors when exercising choice:
1. Ease of accessibility. (“status quo bias”)
2. Prior/existing consumer experience (people interaction & digital interaction).
3. Delivery branding.
4. Organisational values and culture.
5. Most lenient in meeting mutual obligation requirements if known by participant.
Current proposed structure heavily favours incumbents, especially those with overlapping contracts and
existing infrastructure in situ. From July 2018, likely after a good six-to-twelve months’ larger providers
will have some vulnerability to customers switching in search of more personalised or specialist services
in the form of new and more engaging delivery platforms, if these new providers can bridge the funding
black hole of outcome based contracts.
20

NOTES...
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