NAVIGATING

THE TERRAIN:
A Toolkit for Conceptualising
Service Design Projects

A Collaboration
between Pulse Lab Jakarta,
UNDP, and BaKTI

2017
Contents Background
Introduction 2 The findings presented in this toolkit are part of an ongoing development
initiative undertaken through a partnership between United Nations
The Journey Begins 3 Development Programme (UNDP), Yayasan Bursa Pengetahuan
Kawasan Timur Indonesia (BaKTI), and Pulse Lab Jakarta (PLJ).
Our Study 4
In 2016, the Makassar city government sought UNDP’s support to
Learnings 5 explore how to encourage more people to use its public transportation
system, and how to reduce the increasing traffic congestion in the city.
On to the Toolkit 11 This initiative is part of the City-I-LEAPS (City Innovation through
Learning, Exchanging, Adapting, Prototyping and Scaling) programme,
Using the Toolkit 13 a partnership established by the Seoul Metropolitan Government and the
UNDP Regional Bureau for Asia and the Pacific to facilitate knowledge
Programme Identification 15 exchange and technical assistance through an Innovation Exchange
Network. City-I-LEAPS aims to: transform traditional knowledge
Enabling Environment 18 exchange through the use of design thinking and reverse engineering;
collaboratively propose solutions that meet people’s needs; develop
Roles and Stakeholders 22 prototypes for testing and evaluation; and eventually scale-up successful
designs. The partnership between UNDP, BaKTI and PLJ was formed to
Team Mapping 26 facilitate the different facets of the City-I-LEAPS programme.

The Journey Goes On 30 The ongoing initiative includes a process of user research, citizen-led
collaborative design, as well as incubation and prototyping of the products
until piloting. While the project continues to unfold beyond the pilot, it is
only our learning up to this stage that informs the design of this toolkit.

1
 Introduction
“To create impact, there needs to be constant and solid teamwork,
built on communication, dedication and commitment.”
- Andi Faisal, Makassar Department of Transportation

What this toolkit is not • A guiding tool before starting a service design process
It’s not: a) a guide to service design methodologies (there are • A way to evaluate existing services and determine a way
many out there!), nor is it b) a mere case study of our project(s). forward
• A way to assess how other organisations deliver services
Now that we have that out of the way... • An instrument for other purposes.

What this toolkit actually is Who this toolkit is for

As development practitioners, we often conduct projects that In the public sector, understanding the interaction between
not only vary in their subject matters, but also in the methods stakeholders is paramount. It is important to consider the
used - we’ve tested projects using a wide range of approaches, involvement of a variety of stakeholders, the different sectors
from big data analytics to human-centered design, to a blend in society, motives, agendas, and incentives needed in order to
of both. successfully develop and deliver a service.

In working collaboratively with different partner agencies, The public sector has made numerous efforts to collaborate
we have found that service delivery requires a deep with different stakeholders, and there are different ways to
understanding of the enabling environment and the right navigate the dynamics of the multi-stakeholder approach.
people; neglecting either of these could compromise the This toolkit is for anyone attempting to undertake a
success of the project. Factors such as culture and identity, multi-stakeholder service design project, especially when
social and political context, choosing the right stakeholders it concerns the public sector - whether a development
to participate in the design and delivery of the service, organisation, a non-government organisation, or service
and maintaining the effectiveness of the team should be providers contracted by them to undertake a project - in
considered. other words, those who play the role of convening and pulling
things together.
The purpose of this toolkit is to guide development organisations
and governments in navigating the complicated terrain of developing and What’s inside this toolkit
delivering services. It will help to develop a bird’s eye view of the The toolkit includes templates, checklists and case studies
potential challenges and tasks required to ensure effective as guides. The lessons are taken from our recent project in
delivery models and quality services. These factors will help to the city of Makassar, Indonesia. We chose this project, in
guide the change process: moving from problem identification particular, as an example of how a delivery model informs
to tangible concepts, and from concepts to tested pilots. the creation of the service due to its complexity. The result
of the project - a public transportation system designed to
The flexible nature of this toolkit also means that it can serve reduce traffic congestion - is briefly described in the following
a variety of purposes, depending on the needs of the users. For sections, focusing mostly on the enabling environment
starters, it may be: surrounding the design of the service.

2
The Journey
Begins

From design to delivery: the Pasikola vehicle

In October 2016, UNDP and Pulse Lab Jakarta began a journey to engage and voluntarily contributed to refining the prototypes
to address one of the most pressing issues in the city of Makassar, into a stronger and more integrated service. The outcome
Indonesia - public transportation. The city experiences high was a design that involves converting pete-pete vehicles -
traffic congestion and people are typically faced with long Makassar’s privately-owned transportation service - into a school
commutes. Following a request from the Mayor of Makassar to transportation system called the Pasikola.
improve the city’s traffic congestion, an initiative was kicked off
to design a solution. The initiative was not meant to overhaul The preliminary user research revealed that pete-pete are not
Makassar’s public transportation system, but instead was financially viable; drivers tend to be reckless road users as they
intended to make better use of the existing resources. compete for passengers; and families are often hesitant to use
the pete-pete, resorting instead to private vehicles as a means of
Beginning with preliminary user research to understand transportation. The Pasikola school transportation aimed to
people’s mobility patterns in Makassar, insights from the address some of these issues. With the Pasikola, not only will the
research were synthesised and a co-design workshop was held idle pete-pete be repurposed and better utilised, drivers will receive
in Makassar. As a result of collaborating with BaKTI (Eastern a fixed income every month and participate in additional road
Indonesia Knowledge Hub), a wide variety of participants safety training. To support the Pasikola, an application called
gathered to engage in the workshop, including from the creative e-Nassami is under development, which allows parents to track
industry, media, startups, transport associations, as well as the Pasikola vehicles and get real-time information on the pick-up
government agencies. The goal? To come up with citizen-cen- and drop off times for their children.
tered solutions to address the issue in question.
After a series of prototype development and user testing phases
The process resulted in six different low-fidelity prototypes, spanning a three-month period, the project culminated in the
which were then refined during the incubation phase. In this launch of the Pasikola vehicle service in May 2017, which the
phase, stakeholders that participated in the workshop continued Mayor of Makassar officiated during the Makassar City Expo.

3
 Testing a low-fidelity prototype with the service users

Our Study
The service design project in Makassar employed a • As development practitioners, we must be conscious to
human-centered design method - not only in facilitating the immerse ourselves in the environment. As outsiders,
design of the solutions, but also in evaluating the results (and we need to acknowledge that we are almost entirely
creating this toolkit). This means placing people - or ‘users’ - at unfamiliar with those for whom we are designing
the center of the design, capturing the stories and experiences solutions.
of respondents and designing or evaluating solutions based on • To prevent the overlap of tasks, it is necessary to determine
this qualitative information. the roles that each stakeholder can play in the design
process. This process also enables us to better determine
Following the launch of the Pasikola, we interviewed the approach strategies and identify incentives to offer them.
stakeholders involved in the delivery of the service, including: • The rigorous process involved in designing a service means
• Makassar Department of Transportation it is important to have individuals who are able to guide
• Public transport drivers and vehicle owners association both the technicalities and the interaction between the
(ORGANDA) core design team.
• Individuals from youth and startup communities • Once the service design project has started, it is imperative
• Knowledge Hub for Public Development in Eastern to maintain participants’ commitment to ensure
Indonesia (BaKTI) sustainability.
• Having the participation of a variety of stakeholders can be
The analysis outlined in this toolkit was also informed by valuable in providing different perspectives to tackling a
constant observation throughout the service design project. As common issue.
with most development initiatives, a few key principles emerged:
• It is important to align our projects with the current local For our project in Makassar, we considered these principles and
agenda. This means gaining support from the relevant did a few things differently.
stakeholders, especially decision-makers.

4
Learnings
Co-Design, from
start to finish
Principle: Gain political support early in the process, and maintain
engagement throughout.

What we did
By employing a co-design process, we “We need to understand the
facilitated the involvement of key stake- needs and agenda of the Mayor.
holders from the beginning, including
those with both formal and tacit politi- His priority? Innovation.
cal authority. Instead of imposing ideas Understanding his priority
by suggesting solutions, we instead facili- informed our service design
tated the transformation of ideas from and made it easier for us to
stakeholders into something tangible.
leverage his networks and move
We continued this engagement process
all the way up to the implementation of forward until the service is
the service. This way, key stakeholders launched to the public.”
have a stronger sense of responsibility - Rahman Ramlan, BaKTI
towards making the service a reality.

[see: page 16 Case Study. Why pete-pete? Why

the Pasikola?]

5
Learnings

Immerse in
the Environment
Principle: Be conscious that the local context might not be fully understood by outsiders.

What we did
We made sure to always have a local “For the Pasikola system,
counterpart on the ground, and em-
ployed an ethnographic research ap-
we started from an existing
proach in our service design, gleaning problem that’s always been
insights from the users and taking into present in Makassar, an is-
account the values and behaviours of the
sue that time and again has
community.
been the subject of public
[see: page 18 Case Study. Sombere and Smart] concern: traffic congestion.”
- Faisal, Makassar Department of Transportation

6
 Learnings

Involve
Unlikely Heroes
Principle: Multi-stakeholder approaches add value by bringing in various
perspectives to create a solution.

What we did
We recognised the importance of involving “One of the things I value
a variety of stakeholders in an initiative and
we took additional steps to analyse who these
most is the variety of
stakeholders are. Aside from involving the people I work with - from
public sector and development practitioners, the public sector to friends
we established that it was important to also
from various backgrounds.
include those who are on the frontline of
the public transport experience, as well as We all have our own
those who possess creative skills and technical responsibilities and
capabilities to develop the solutions. This list complement each other’s
includes youth communities, activists, and
transport drivers’ associations. skills.”
- Idham, participant
[see: Page 22. Case Study. Building the Pasikola
Team]

7
Learnings

Going Beyond
Organisational Profiles
Principle: Determine the roles of each stakeholder when undertaking a project.

What we did
We classified stakeholders by their institu- “It’s quite rare that public
tions, as well as their capabilities, motiva-
tions and networks, which then informed
service design involves
us of the opportunities and resources that all stakeholders from the
each party can bring to the table. beginning. When I was
asked to participate in the
[see: page 22. Roles and Stakeholders]
initial workshop, I became
interested immediately
because this was my
opportunity to put forth
the aspirations of our
association.”
- Sainal, ORGANDA Makassar

8
 Learnings

Incentivising
Commitment
Principle: It is important to maintain participants’ commitment following their initial en-
gagement in the project.

What we did
After identifying incentives to ensure “I was initially skeptical
stakeholders’ participation, we then
identified a different set of incentives to
about my involvement with
maintain their commitment. For some, the service design project,
genuinely participating in the process was but after some time, I
sufficient; for others, the attraction was
was convinced to commit
the development of new knowledge. It
was also important to identify when to myself through to the end,
move from treating participants as vol- especially after seeing the
unteers, to treating them as professionals, value in the process and the
committed to undertaking more respon-
sibilities. quality of the team.”
- Mansyur Rahim, participant.
[see: page 27. Case Study. Solidifying the Team]

9
Learnings

Guiding Techniques
and Interactions
Principle: Professionals are needed to guide both the technical aspects of the project and
the interaction within the core design team.

What we did
We hired an independent mentor to be “We really benefited from
situated on the ground and to guide the having BaKTI as facilitators.
team on a daily basis, facilitating the
creative process and ensuring that the
They’re used to communicat-
team progresses from ideation through ing with the government so
to implementation. This meant hav- whatever concerns we had,
ing an individual who was well-versed they were able to pass them
in procedural knowledge to assist in
through to the Office of Trans-
implementing the user-centric method-
ology. Additionally, we engaged with an portation and mediate the
institution that had a strong network to discussion to reach a shared
facilitate interaction between different understanding.”
stakeholders. - Ira, participant

[see: page 27. Case Study Solidifying the Team]

10
On to the
Toolkit

Interviewing school teachers to obtain first-hand insights

In this section, we present a framework for the design of

delivery models for user-centered services.

This involves conducting research on the context in which

the service is delivered - both politically and culturally;
then, identifying the necessary stakeholders to support the
design process; and finally, determining methods to facilitate
interaction between stakeholders during the incubation
process.

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 Inside the
Ecosystem Mapping
Toolkit
Priority Selection
What challenge areas should we focus on
to best align with the agenda of the key
counterpart?

Enabling Environment
Enabling What enabling factors should we consider to
Team Stakeholders Priority
Environment help us best utilise the community values?

Roles and Stakeholders

Who are the relevant stakeholders and what
roles must they play to support the service
design project?

Maintaining a Core Team

What incentives can we use to ensure the
sustainability of the service design project?

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Using the Toolkit
This is a sample of how the Program Identification
toolkit can be possibly utilised use Priority Selection Toolkit after the initial discussion with
in your project.

Although we divided the

1. key stakeholders, to make sense of which problem area is the
most feasible for the project to undertake.

structure in this way, it should Output:

not (always) be viewed as a • Problem Statements
linear process. Depending
on the context, the process
can begin from any layer of
the structure. The aim is to Scanning the Enabling Environment
use the Environment Scanning Toolkit after the scoping
highlight the interdependence
between these layers and how
each layer plays an important
role in creating a successful
2. fieldwork, to synthesise the more holistic and cultural findings.

Outputs:
service design project. • Reflection on challenges and opportunities
• List of possible enabling and undermining factors

Mapping Stakeholders
use the Stakeholder Mapping Toolkit after the stakeholder interviews,

3. to synthesise their values and habits.

Output:
• Analysis of roles and incentives for each stakeholders

Mapping Project Team Members

use the Team Mapping Toolkit after the project team is

4. formed, to better brief the facilitators on the teams’ dynamics.

Outputs:
• Identification of tasks to sustain motivation of each member
• Skills Gap Analysis that informs the work of Process Facilitator
• Analysis of relationship fit that informs the work of Interaction Facilitator

13
The road to service delivery is full of Post-it notes

14
Programme
Identification
W
hile service design should ideally be Next, and in order to further identify the right
driven by existing challenges, in reality, programme to tap into, fill in the Reality Check list
it is necessary to ensure political buy-in in our Priority Selection tool. The more boxes you
before investing a significant amount of effort. Hence, check, the more feasible it is for your service to be
it is often more effective to identify projects and implemented. Consider both the priority level of the
programmes that can be improved upon, instead problem and the feasibility to aid your service design
of creating them from scratch. The reasons are and implementation.
twofold. First, providing support to improving an
existing system instead of directly challenging it is an Ideally, the Priority Selection tool should be filled in
approach that has a higher likelihood of acceptance several times, depending on the number of problems
in the public sector. This is considered because of considered. This is done in order to compare one
how complex and interlinked some of these systems problem area to the others and map out their
are with other bureaucratic processes. Second, by feasibility.
tapping into programmes that are already owned by
the decision-makers, it is possible to create a sense of By the end of this exercise, you should be able to
ownership and leadership from the decision-makers of choose the programme(s) you want to tap into, as
the new service design. well as the problem statement you would like to focus
on, based on the considerations noted in the Priority
One way to identify the relevant programmes to tap Selection tool. Employing a human-centred approach
into is to first focus on the problem areas that your also means that the problem statement should be
service is trying to solve. Based on research and framed based on the citizen’s perspective, not from a
observation, are there any pressing problems that government or institutional perspective. For instance,
need to be solved? Then, identify why it is important for our project in Makassar, the programme we tapped
to solve the problem. Identifying the ‘why’ behind into was based on the request from the City to offer
the initiative can enable you to think more critically support in the transportation sector. This resulted
about the problem and inform which programmes in our problem statement: “how might we create a
to prioritise to answer the particular problem. Fill in citizen-centric service that can decrease congestion
the two boxes in our Priority Selection tool to help and improve the public transportation experience in
identify problems and provide reasoning behind the Makassar?”. For the full story on how we reached a
selection. decision on this, take a look at our Case Study 1.

15
 Piloting the Pasikola vehicle with schoolchildren

Case Study 1: Why Public Transport? Why pete-pete?

Our foray into the area of public transportation in transport users and other stakeholders to collectively come up with
Makassar was not only driven by a current issue in a solution.
Makassar, but also by the Mayor’s ambition to improve
the city’s traffic congestion. This enabled us to tap into an With the existing Pete-Pete Smart in mind, the co-design process
existing programme in the city agenda. Upgrading the city encouraged citizens to think of certain things that could be
transportation system and introducing Pete-Pete Smart (a addressed if a pete-pete could provide alternative services. Through
new and improved version of the current pete-pete) are two the co-design workshop, citizens were able to have discussions
important segments in the Mayor’s plan. In December 2016, directly with the public sector to identify other problems that
a prototype of Pete-Pete Smart, equipped with air-condition- could be solved by a repurposed pete-pete vehicle. The resulting
ing, internet access and comfortable seating for passengers insight was that the city lacked a proper school children
was introduced. In developing the Pete-Pete Smart initiative, transportation mechanism, an issue that could be answered with
however, the Mayor needed extra support to make sure that a public transport-based solution. From there, a solution emerged
it will be best designed to meet the different needs of citizens. to address the needs of the citizens, as well as the objectives of the
City Government: the Pasikola system.
At the same time, UNDP, through its City-i-LEAPS
programme, approached the City of Makassar to find ways Instead of introducing a completely new concept to the
to improve the city. Following discussions with the Mayor, government, the team looked at what the existing initiatives were,
the subject of Pete-Pete Smart was highlighted. Would there and involved citizens to improve upon them. We also involved
be a way to address the pressing issue of traffic congestion in the decision-makers as early into the project as possible, first by
Makassar and support the Pete-Pete Smart idea? having them inform us of the most relevant programme to tap
into, followed by taking part in the design of the solution, up to
A few months later, UNDP began to engage with Pulse overseeing the progress until its incubation phase. As a result,
Lab Jakarta to delve into the issue. Following an initial user the initiative gained continued support from the Mayor and high
research, a co-design workshop was conducted, inviting public government ownership for the service.

16
Tool: Priority Selection

Programme Name:

What problem areas are we trying to solve? “Reality Check”

Will the solutions generated from the problem area bring a

quick, amplifiable win?

Does the government and other implementing partner

express interest in finding solutions to this problem area?

Has there been enough citizen concerns regarding this

problem?

Is the government currently trying to do anything to solve

this issue?

Does the government have any political incentive/pressure

to solve the issue?

Has there been a tried-but-failed initiative to solve the issue?

Why is it important to solve this problem? Is there a relevant government body/department that could
use numbers and stories to support your argument be designated to implement the program?

Does the donor/funder have good access/relationship with

the government body involved in the problem area?

Would business, creative, or the youth sector be excited to

work on the projects to solve the problem area?

Can simple, incremental solutions be used to solve parts of

the problem?

The more boxes you check, the more feasible the programme is likely to be.

Problem Statement*:

How Might We
*Think of the problem(s) from the perspective of the end-users.

17
 Enabling
Environment
impact it might bring (it could be due to strong societal ties,

O
ne of the principles that guides our human-centered
which leads to a tendency to work in groups). The resulting
design process is to understand the local context where
opportunity then could be that they value and might even need
our work will be implemented. We therefore find
to collaborate with their peers. This behavior can be used to
it valuable to look at the more comprehensive environmental
inform some of the enabling factors that need to be put in place
context, rather than just a particular sector that the service will
to ensure successful service delivery, such as using co-creation
operate in - such as the transportation sector. An environment
as the basis of your design.
in this case could mean a country, a province, a city, a network,
a community or even within an organisation. Scanning the
environment is an important exercise to inform the design of For an example of value-based factors and possible
the service, as well as the engagement strategies for the relevant opportunities to utilise them, take a look at Case Study 2.
stakeholders. To do this, you must be able to identify a set of values
that function within a particular environment, which shape factors
such as culture, politics, rules of engagement and behaviours.
Case Study 2: Sombere and Smart
These factors can be used as starting points to determine the
opportunities and challenges within an environment. The “Makassar is geared towards becoming a Smart city, but we
identified opportunities can then be analysed and utilised to don’t want to only focus on technolog y. That’s why we also add a
ensure successful service design and implementation. Think Sombere principle - which reflects the hospitable, communal and
about how these opportunities can inform the delivery of your positive spirit of the city - to complement the technolog y.”
service, such as how to tap into local social networks, how to - Ramdhan Pomanto, Mayor of Makassar.
navigate the level of openness (or resistance) of the environment
towards change, or how to manage and direct people based In 2015, the Makassar City Government committed
on their values. For instance, if an environment tends to be to upholding the Sombere and Smart principle to
conservative towards citizen-led involvement in service delivery, guide the development of the city. This resulted in an
how might we address this challenge and involve the public enhanced focus on innovation, as well as paving the way
sector more in the design and implementation of the service? forward. Since then, Makassar City has taken steps to
collect and use real-time data to improve decision-mak-
To start identifying the values in your environment, take a look ing processes, and improve day-to-day administration,
at our list of questions in our Enabling Environment tool and including introducing smart-cards in schools to track
answer them based on your research and observations. The students’ activities and progress, and enacting a
resulting answers should act as prompts to encourage reflection waste-to-energy initiative. The Sombere perspective
and further analysis. Position each answer into the designated initially encourages citizens and public servants to adopt
box, based on whether it will most likely be a challenge or an a warm and welcoming attitude, and also touches on
opportunity. Then, think about some of the enabling factors innovation. Access to information means increased
that might emerge from the opportunities. For instance, if transparency and encouragement of citizen involvement
you answer that people in the environment tend to be more in creating and delivering public services.
community-centric, think about why this happens, and what

18
The team ensures that all voices are heard when gathering feedback in order to refine prototypes

The Mayor claims that the move for Makassar to become a between the different stakeholders within public transportation.
‘Smart City’ must be complemented with the local wisdom of As part of the process, the design team also aligned with
Sombere, which is thought to be the heart and soul of Makassar. Makassar’s move towards becoming a Smart City by
The Mayor is known to be supportive of citizen-led initiatives, incorporating a technological aspect to the service, one that could
especially concerning advancements in technology. There answer the needs of the public transport users. The idea was
also seems to be an improvement in collaboration between e-Nassami, an application that allows parents to track the Pasikola
the different departments in Makassar’s public sector, with a vehicles and get real-time information on the pick-up and drop off
willingness to work together in order to achieve a common goal. times for their children.

In designing solutions for the public transportation system in The alignment with the City’s Sombere and Smart mindset
Makassar, UNDP, BaKTI, and Pulse Lab Jakarta employed a has resulted not only in the support of the Mayor, but also
human-centered design method. The focus was on developing the cooperation of the Transportation Department and the
a more user-friendly public transportation service for the city. Education Department. Both of which will be important
In line with the Mayor’s vision of building a Sombere city, the stakeholders when the time comes to implement the service
design process involved citizen-initiated ideas and collaboration across public schools in Makassar.

19
Tool: Enabling Environment

Questions to get you started:

• Is the community generally innovation-friendly? Are there many active innovation communities or groups in
the environment? (e.g. startup incubators and social innovation hubs in urban areas, or special interest and
social activism groups in rural areas) Is there a strong government push for change?
• Does the community highly regard youth participation? Are there many active youth groups in the
environment? Are they involved in decision-making processes in the community?
• Do people tend to be more risk-averse or are they open to trying new things?
• Do people tend to be more individualistic or community-centric? How is this reflected in social structures and
relationships, including social obligations?
• Do stakeholders in the environment generally have a collaborative nature? Are there strong multi-stakeholder
or multi-level collaboration initiatives in the environment?
• Is there deference to seniority in the environment, shown for example by the presence of a generational
hierarchy?
• Are there any other unique environmental characteristics that should be noted? (e.g. transparent, artistic, tech-
nologically forward, etc.)
• How do the values you have identified shape any “unspoken” rules of engagement that may amplify/hinder
your progress?
• Is the public sector usually open for collaboration with outside institutions? Why/why not?

01. Use the cue cards to answer the following:

Opportunities
What existing factors in the environment support innovation?

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 Challenges
What existing factors in the environment might hinder innovation?

02. Reflecting on the opportunitites and challenges:

How might you leverage these opportunities into How might you address the undermining factors
enabling factors that support your programme? driven by the existing challenges?

21
 Roles
and Stakeholders

T
his section aims to outline some of the necessary roles that need to
be fulfilled by the stakeholders. We recognise that each context has
different stakeholders and needs, and thus it would be inefficient to
group the stakeholders based on their institutions instead of the tasks they
will undertake. We will outline the roles of the stakeholders, and help you to
decide which stakeholders can best fit into these roles.

Identifying the roles of each party enables us to determine the engagement

strategy, including ways to incentivise them and ways to allocate tasks. For
instance, if a stakeholder is positioned as the role of ‘enabler’ or ‘decision
maker’, consider some of the things that can drive their involvement in the
project. Incentives can be tangible, such as remuneration or media exposure,
and they can also be intangible, such as goodwill and learning opportunities.
Further, allocating roles to stakeholders can help avoid any overlaps in
responsibility and work - instead of having a large group with overlapping
roles, it is more efficient to have a smaller group with relevant participants.

Facilitator
Individual/organisation responsible for guiding and managing the team.
The role of facilitator can further be segmented into two: Active collaboration between team members is the key to success
• Process-led: facilitator responsible for guiding the team through the
creative and technical process. The process-led facilitator must have
the technical skills necessary to guide the team through ideation, Enabler
prototyping and piloting. Decision-makers that have the authority to implement the
• Interaction-led: facilitator responsible for managing team dynamics, service. This can be in the form of government bodies, other
i.e. to be a mediator between the design team and other stakeholders institutions, individuals with autonomy and resources. Their
if necessary, as well as to ensure a smooth working chemistry of the constant involvement in the process can help create a sense of
team. Interaction-led facilitators must have a strong network with the ownership and facilitate implementation at a latest stage.
various stakeholders in order to mitigate any possible disputes and
facilitate discussions. Funder
Those with the financial capacity to fund the project and the
Doer service thereafter. There can be multiple funders, or a single
Individuals who are directly responsible for building and testing the funder from beginning to end.
prototypes. Doers usually involve those that have the technical skills
necessary to build the service, e.g. those who work in communications, tech, Individuals or institutions present in these roles may have tasks
business development, or other creative endeavors. that overlap with other roles, yet they should have a primary
purpose of fulfilling a particular role.
Thinker
Individuals who are responsible for the strategic thinking, and identifying the To further illustrate the roles, take a look at Case Study 3 on how
implications of the service as it develops for other stakeholders. The profile we identified and incentivised the necessary stakeholders for the
usually consists of planners and strategists. Makassar project.

22
“I became interested immediately to join the design project because it
promised exposure to a variety of people from different disciplines. It gave
me a chance to expand my network as well as learn new methodologies and
perspectives from a variety of sources.”
- Idham, participant

Case Study 3: Building the Team

product development process. The team also hired a dedicated,
After deciding on the problem area, UNDP and Pulse Lab independent process-led facilitator to assist in this initiative.
Jakarta started the initial research process, while at the same
time holding discussions with the City of Makassar, DISHUB, From there, stakeholders that could fit into each role were
and ORGANDA. It was during this time that the team identified further identified. The core team of enabler, doer, and thinker
BaKTI as a local partner for the initiative. BaKTI first supported consisted of those involved in the workshop, including the Office
the initial design workshop in November 2016, and subsequently of Transportation as the enabler, a software developer from a
came on board to coordinate the incubation process and the digital innovation community and creative community as a doer,
piloting. and the team mentors as thinkers, including UNDP, Pulse Lab
Jakarta, and an independent facilitator.
Identifying a local partner was necessary for this initiative,
mainly because the project needed full-time facilitators to Of course, none of this would have been possible without the
be situated in Makassar, those that have good relations with involvement of and initiation of this service design project by
relevant stakeholders, as well as the experiences in handling UNDP, from initial discussions with the city government to
development initiatives. BaKTI had the requisite skills and organising the workshop to the building of the prototypes.
quickly became an important partner for the implementation of UNDP played a role as convener and funder of this service
the project. design project. The Makassar City Government has also
agreed to allocate the regional budget for the Pasikola in the
Together with UNDP, BaKTI invited people from its diverse 2018 fiscal year, thus undertaking the role as a funder alongside
network to the initial co-design workshop, bringing together UNDP and ensuring its sustainability.
different perspectives to solve the issue of traffic congestion in
Makassar. Official invitations were sent out to participants by It is important to note, however, that each stakeholder can play
UNDP, with BaKTI relying on the good rapport they already a different role at various stages. For instance, while BaKTI
enjoyed with the participants as incentives to join. During the started out as a ‘thinker’ in supporting the design facilitation,
workshop, it was then up to BaKTI and Pulse Lab Jakarta as their role shifted to that of a ‘doer’ once the incubation process
process-led facilitators to manage discussions and mitigate began, as they were heavily involved in the creation of the service.
any possible conflicts within the working teams. Further, as Additionally, UNDP also played a role as an ‘enabler’, not by
process-led facilitators, Pulse Lab Jakarta assisted in the process being decision-makers in itself, but by easing the decision-mak-
of moving the ideas forward, by translating the initial concepts ing process. This was done through constant engagement
into minimum viable products. This was done by holding with the Makassar City administration from the beginning,
several ideation activities to refine the concepts and detailed ensuring on-boarding and eventual commitment from relevant
planning to make sure the team stayed on track with the stakeholders.

Fill in the boxes with the stakeholders that can fit into each role. Next, describe the roles in more detail, according to your research
and/or experience with the stakeholders.

23
 Tool: Stakeholders Mapping

d er
fun

r
n ke er
th i do

r
n ble
c tio r en a
c ess r
era to o
pr litato
int cilita i
fa fac

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INSTITUTION: ROLE: FUNDER DOER PROCESS FACILITATOR
ENABLER THINKER INTERACTION FACILITATOR

What influence do they have over

the project? In more detail, what does this role entail?

What are the incentives to join

the project? What could they do to undermine the project?

25
 Team
Mapping
“Often we had to rely on BaKTI as can be done through observation of the participants, or even
by asking about their expectations for the project. Afterwards,
the facilitator to communicate with the interaction facilitator must assess the ‘fit’ between one
the government. They have built good team member and the others, as shown in our Team Mapping
tool. First, we must identify if they have a shared vision, then
relations with the government so their compare it to their existing relationship. For instance, while
opinions are more highly regarded.” youth groups share the same vision as the government in
improving the city of Makassar, they have a relatively negative
- Ira, participant relationship with each other, driven by past experience.
In our matrix in the Team Mapping tool, the relationship
between a member of the youth group and the government will

I
t’s one thing to recruit and engage with stakeholders, but we
find that maintaining stakeholders’ engagement is another therefore be positioned in the top left quadrant. It is then up
important area that needs to be nurtured to ensure the to the facilitator to shift any ‘problematic’ fits to the top right
sustainability of the service. At this point, stakeholders would quadrant - to ensure a shared vision and positive relationship
have been assigned roles and ideally, a team would be ready to between all stakeholders.
start building and refining the prototype in the incubation phase.
We have also identified that participants’ engagement must
Facilitators are the main stakeholders that need to take the lead also be maintained by assessing their skills, which is a role
in this process, as it is up to them to recognise each member’s to be taken by the process-led facilitator. As shown in our
motivation and relationship with each other in order to Team Mapping tool, the task of the process-led facilitator
sustain interaction. By ensuring positive interactions between is to identify the required skills for each team member,
individuals on the team, facilitators can mitigate any possible assess whether or not they possess these skills, and if not,
conflicts that might arise amongst the team members. This will identify ways for them to develop the skills. Assigning tasks
ensure project effectiveness. according to each member’s skillset is beneficial when trying
to promote capacity building and when attempting to avoid
In order to maintain or improve the interaction between any potential overlaps in tasks. This process is similar to the
participants, the role of the interaction-led facilitator should be role identification for stakeholders, but on a more micro level,
to build trust between participants, which will in turn create a involving more technicalities. For instance, when building
more positive relationship despite the varying backgrounds of an application for service delivery, determine which of the
the participants. In order to do this, the interaction facilitator participants involved will be in charge of the concepting
must mediate discussions between participants, ensure consistent (such as a strategist), the design and assembly (a designer or
communications, and maintain the positivity of the team. developer), and the testing (a researcher).

The interaction facilitator must first identify certain factors For an example of how we mapped out interactions from our
that can motivate and demotivate each team member. This Makassar project, see Case Study 4.

26
“What made this project so effective is the constant communication between
the team members. Even though I wasn’t able to always attend the incubation
session, other team members always updated each other on progress, which
made me feel involved in its development and the decision-making process.”
- Sainal, ORGANDA Makassar

The Pasikola team

Case Study 4: Solidifying the Team

In Makassar, the facilitators’ roles certainly did not end after and the participants, and knew how to facilitate themselves.
the workshops. Once the team received the go-ahead from For instance, BaKTI positioned itself as a constant mediator
the Mayor to continue the project towards its prototyping and in discussions between the stakeholders, often communicating
incubation stage, the facilitators again set out to work together concerns from each side in a way that resulted in a shared
with the stakeholders. This time, however, an independent understanding by both. Gradually, stakeholders developed a
facilitator took the lead as a process-led facilitator to guide the heightened sense of trust in each other, and were able to reach
team through the technical process, while BaKTI acted as the decisions. BaKTI also made sure to always facilitate an open
interaction-led facilitator, responsible for handling the dynamics discussion and regarded opinions from both parties as equal,
of the team. On the other hand, Pulse Lab Jakarta and UNDP which was an important principle.
guided the overall process when necessary, including hosting
discussions with stakeholders and coordinators prior to finalis- While the incubation process commenced with a total of
ing the business proposal for the service. 30 participants committed to continuing the design process,
the number of participants gradually waned - mostly due to
The issues uncovered during the incubation process were two- lack of availability. Eventually, it became a small team of five
fold: (1) the facilitators needed to mitigate any potential conflict people working on one integrated solution. To facilitate this
between the team members, and (2) there was an eventual transition, the independent facilitator and Pulse Lab Jakarta,
decrease in the number of participants, which made it nec- as process-led facilitators, ensured that each individual within
essary to reassign tasks to each team member. It was revealed the team had tasks based on their own passion and expertise,
that tension existed in the interaction between the Department thus complementing each other’s roles. By first identifying the
of Transportation and the participants, due to the general skills needed to ensure team effectiveness, the team was able to
skepticism of the participants towards public sector projects. map out team members who possessed those skills and if not,
It was then up to BaKTI to build a more positive relationship showed how to facilitate their capacity building. As an added
between them. Fortunately, BaKTI had developed good work- incentive, team members were remunerated for their roles in
ing relationships with both the Department of Transportation this process.

To map out the participants’ roles and relationships, fill in the Team Mapping tool boxes.

27
 Tool: Team Mapping

PARTICIPANT NAME:

What skills are needed by the participant?

expected skills gaps how might the gap be closed?

What are some of the ways to keep the participant engaged and motivated?

What factors might demotivate the participant?

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ROLE: FUNDER DO-ER PROCESS FACILITATOR
ENABLER THINKER INTERACTION FACILITATOR

Assessing the participant’s fit with other team members:

shared
vision

positive
negative
relationship
relationship

conflicting
vision

What can the interaction facilitator do to improve the participant’s fit with other team
members?

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The Journey Goes On

The public transportation project in Makassar is far from complete. After the incubation process,
more Pasikola prototypes are being developed and will be rolled out to different school routes in
Makassar, complemented by the e-Nassami application. Pulse Lab Jakarta, UNDP and BaKTI hope
to share more lessons as the project moves from the piloting stage to a full-fledged service, including
the new kinds of partnerships and management arrangements between the City and citizen-led
initiatives.

As a final note...

This toolkit is not meant to guarantee successful service delivery, but it is meant to be used as a
starting point to think about how the context surrounding a service design project can contribute to
its success.

We have observed that organisations often focus on the methods behind the project design and
implementation, yet neglect to take into account its context. As a result, well-designed services and
projects often get buried by factors external to their design. This includes issues surrounding personnel,
regulation, engagement, or adoption. We hope that this toolkit enables you to implement services that
are not only technically sound, but are also suitable to the local context.

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Pulse Lab Jakarta is grateful for the generous support
from the Government of Australia