MICHIGAN TECHNOLOGY PLAN—1998

Adopted by the Michigan Legal Services Computer Committee

August 24, 1998

Background

In 1995, the Statewide planning for legal services was conducted by the Legal Services Association of Michigan, the Michigan State Bar Foundation, and the State Bar of Michigan. This planning process resulted in The Michigan Plan containing 57 recommendations including eleven technology recommendations (). Most of these recommendations have been partially or fully implemented.

Efforts toward implementing the plan have continued the statewide process of planning for technological capabilities in the state's legal services programs. However, in the process, new technological developments have made it more important than ever to make the technology planning process a dynamic, on-going process, rather than a static, one-time event. This statewide Technology Plan, originating from and updated from the technology recommendations of the Michigan Plan, is called the Michigan Technology Plan (MTP.). It will guide implementation of technology in legal services in Michigan at the statewide level. While individual legal services programs will implement technology to address their specific needs, the technology developments in this plan will focus on the technology needs that are common to all legal services programs in Michigan. This Plan will be revised by the Legal Services Computer Committee annually to reflect the status of technology projects as well as to incorporate new technology developments.

Planning, Implementation, and Evaluation Process

Design and implementation of all technology projects under the plan will reflect the following steps:

TECHNOLOGY PLANNING STEPS

1. Needs/Goals—Identification of the needs that the project intends to meet and the goals of the project in addressing those needs.

2. Project Description—Description of the project.

3. Implementation and Support—Identification of how the project will be accomplished:  what will be done, who will do it, and when will it be done.

4. Evaluation—What will be measured, how will we know if the project is successful, and what do we learn from the project that can be applied to other technology development.

5. Application of Evaluation—What will we do with what we have learned (e.g. continue use of the software or hardware application; expand the software application to statewide use; discontinue use of the software; look for another, better software/hardware application).

 MTP TECHNOLOGY PLANNING STEPS I. Needs/Goals of the Michigan Technology Plan The MTP flows from the 1995 Michigan Plan technology recommendations and subsequent needs identified. All of these fall into three major need areas identified through a 1993 technology survey of legal services programs. The following goals of the Legal Services Computer Committee were adopted on October 14, 1997. An underlying assumption of these need areas is that every legal services program will need to acquire the computer technology necessary to support the statewide development of technology in addition to the objectives that the program intends to implement on its own.

When the Task Force Technology Subcommittee was formed in 1996, the following needs based principles were used, and they continue guide the efforts of the Computer Committee. All activities under the plan should satisfy one of two criteria. This will place the focus of technology projects on addressing the needs of legal services advocates and clients and curtail implementation of technology purely for technology’s sake. These criteria are:

1. How can technology be used in service delivery support systems to improve the capacity to serve eligible clients in Michigan?

2. How can technology be used to improve the interaction with and service to eligible clients in Michigan?

 II. Plan Description of the Michigan Technology Plan The MTP incorporates technology developments in each of the three goal areas noted above, as follows (references are to the Technology Recommendations of the Michigan Plan for Legal Services, 1995): A. Communication and Resource Sharing 1. Computer Workstation Access by All Advocates and Support Staff (Michigan Plan Recommendation #2) Initially this recommendation proposed a desirable level of computerization and specified the hardware and software configurations needed. This approach was outdated within months after the recommendations were adopted. Consequently, this Plan will highlight general guidelines rather than specific configurations.

Per the Michigan Plan, all legal services advocates and support staff will have access to a computer workstation at their desktop with sufficient power and capability to utilize the functions identified in this Plan and any other functions implemented within a local program. The software, components, and peripherals related to this access include the following:

a. A computer on the desk of every full time staff with basic software on the computer or with access over a network which will assist in fulfilling functions in the office: i. Word processing

ii. Spreadsheet

iii. Database

iv. Presentation software

 b. A local area network in every office of two or more employees

c. Enough high-speed modems on each LAN to provide external e-mail communication, Internet access, and other optional functions

d. Sufficient laser or laser-quality printers reasonably accessible by anyone on the network

e. A back-up system with access to all critical data and programs

f. One or more CD ROM drives accessible to all casehandlers and support staff (see computerized research)

 Other optional but desirable components and peripherals include: g. A dedicated network server (particularly in offices of more than 5 users)

h. Dial-up software or hardware permitting users to access network resources from remote locations

i. Fax gateways, enabling users to fax documents and messages from their desktop

j. A scanning device for importing of paper documents and graphic images, including optical character recognition (OCR) software to translate graphic text into computer text

k. Voice recognition software, permitting creation of documents by speaking into a microphone and having the computer translate the voice into text.

l. Video conferencing capability, permitting virtual meetings and training and virtual "face-to-face" contact with clients and other advocates.

m. High capacity, portable disk drive (e.g. "Zip Drive") for use in transferring large files, updating systems, and in setting up other office locations

n. Read-writable CD-ROM systems for organizing old vital records.

 2. Internal and External Electronic mail System (Michigan Plan Recommendation #1) The focus of the email system is to provide user friendly e-mail access to every legal services staff member in the state, both those within the legal services program and those in other legal services programs. It also permits incoming and out-going Internet email, so that legal services staff can access and be accessible to virtually anyone with email capability. The concept of a universal in-box where all messages are directed provides a single location for legal services staff to manage their communications.

The e-mail system is an integral part of the state support system. Statewide group addresses are organized around substantive task forces and maintained by the MPLP. MPLP staff respond to e-mail inquiries from the field promptly and use the substantive group addressing to communicate with the substantive task forces.

An Internet gateway at the MPLP office gives the legal services community e-mail capabilities (including file transfer capability) to the outside world including PAI attorneys and other volunteers.

 Desirable characteristics of the email system include: a. Universal inbox

b. Comprehensive address book containing statewide legal services staff

c. Simple attachment/file transfer capabilities

d. Group addressing

e. Incoming and outgoing Internet email

f. Message tracking to permit sender to know status of messages

g. Fax gateway to permit faxing from email system

h. Others to be identified through a survey of email users

 3. Web Site and Substantive on-line Document Bank for Poverty Law Issues (Michigan Plan Recommendation #4) The MPLP Web Site serves as a forum for substantive poverty law and procedures issues where questions and responses can be posted and become accessible to legal services and pro bono casehandlers. An indexed document library maintained by MPLP serves as a searchable repository for pleadings, briefs, pro se forms, and manuals germane to legal services work, which can be downloaded for use by legal services and pro bono case handlers.

In addition to documents submitted electronically, scanner technology can be used to convert already existing documents into digitized form. A CD ROM writer can be used to provide detailed information to legal services programs by CD ROM.

4. Computerized Research Capability (Michigan Plan Recommendation #6) Explore, recommend and negotiate the group purchase of CD ROM legal libraries and updates for each program. Organize the group purchase and installation of CD ROM drives and library subscriptions for each program. Explore the possibility of using the state bar or law schools to negotiate donated or reduced price subscriptions from one of the vendors. Explore reduced statewide pricing for Lexis and Westlaw on-line legal research services. 5. Statewide Computer Training and Support (Michigan Plan Recommendation #7) Technology training and support includes network administration, training for advocates and staff, hardware and software installation and troubleshooting, and Internet access and web site development. Technology support is a multi-faceted function, and some functions can be economically handled on a statewide basis. Other functions need local expertise and in some cases contracted local support.

Two full-time equivalent positions are needed for managing the statewide training and support function and providing computer training and technical support under the direction of the legal services computer committee. The support staff members are employed by MPLP, the Foundation, and the State Bar.

However, each program and office designates a Computer Responsible Person (CRP) to act as the front line support for that program/office. The MPLP staff provides training and support in all statewide supported software, including e-mail and case management software. Staff members provide training at the legal services roadshow, and they train the Computer Responsible Persons (CRP's) in each legal services program, who then train staff within each program or office. Staff members also develop on-line help, videotapes, manuals, cheat sheets, and templates.

Functions which are not provided by the MPLP staff are the responsibility of the CRPs in each office. In some cases it is necessary to contract with an outside vendor for computer hardware and software support.

6. Accounting Software (Michigan Plan Recommendation #9) Use a statewide computer task force to explore, recommend, and provide technical support for reasonably priced accounting software which will (1) provide data for A-133 audit requirements (including cost center and fund allocation), (2) provide budgeting functions, and 3) provides a means of providing program financial information in LSC and IOLTA and Filing Fees reporting formats.
 
  7. Database of Potential Funders' Grant Focuses (Michigan Plan Recommendation #11) Develop a statewide database and clearinghouse of potential state and national grant funders, with information about grant focuses and grant cycles of the funders, which could be used by legal services programs to apply for funding related to their purposes.

B. Case Management Systems

1. Uniform Case Management and Timekeeping System (Michigan Plan Recommendation #3) A uniform case management system needed by legal services staff has the following features: a. Automated client intake

b. Access to the client database from any computer in the office

c. Program-wide conflicts checking

d. Integrated timekeeping

e. Calendar, docket control, and tickler system

f. Uniform report-writing capabilities (for LSC, MSBF and AAA reports)

g. Client database that is accessible to document assembly software

 h. PAI program management component i. Ability to create specialized reports 2. Automated Document Assembly System (Michigan Plan Recommendation #5) An automated document assembly system can pull data from the case management database and insert it into form pleadings created by the word processing software. The legal services substantive task forces can develop the forms, and specialized software (e.g. Hot Docs) or the case management system can provide the automation. 3. Centralized Computerized Intake System (Michigan Plan Recommendation #8) Explore development of centralized computerized intake systems for use by programs locally or regionally to provide for telephone intake of clients and provide brief advice and referral services, utilizing attorney and non-attorney staff as well as pro bono volunteers. A service delivery committee makes recommendations as to the pilot project sponsoring entities, assists in developing operational policies, and reports on results of the project. Consideration should also be given to integrating with other systems such as the State Bar Lawyer Referral Service and the Senior Hotline, so that clients which are not eligible for legal services assistance could be immediately referred to other services. Consideration should also be given to developing and utilizing attorneys and in-house counsel at their own location through computer communications technology.

C. Communications and Information Infrastructure

1. Automated Phone and Voice Mail Messaging System (Michigan Plan Recommendation #10) Automated phone and voice mail messaging systems can significantly reduce the complexity of managing and routing client calls. They can also provide direct access to attorneys by clients once the case has been assigned. 2. Internet Access at the Desktop Level for all Advocates and Support Staff (Telecommunications and Information Infrastructure Assistance Program Proposals for 96, 97, 98) With the development of the MPLP web site and similar web sites around the country, more and more legal resources are available on the Internet. Advocates and staff will be more efficient in using these resources if they have access to them from their own desktop. Internet access will permit a legal services program to use one or more Internet dialup accounts to let legal services staff access the Internet from their desktop over the local area network installed in the office. 3. Establish Legal "Points of Presence" in Community Services Organizations and Agencies (TIIAP Proposals for 97 and 98) The focus of this function is to create a seamless web in which a client can be served wherever he or she enters the system. The availability of Internet access and the tools available today will permit legal services offices to extend the reach of their offices through cost-effective videoconferencing over the Internet. Videoconferencing sites can be established in local community centers and agencies where clients congregate, and permit clients to speak "face to face" with an attorney, who can receive documents from them and send documents to them electronically.

III. Implementation and Support

 Technology planning and implementation in legal services will not be accomplished at a statewide integrated level without the cooperation and support of all organizations involved. These entities include the following: A. Committee Structure and Responsibilities 1. Legal Services Computer Committee a. Identify technology needs of legal services advocates, staff, and programs b. Produce and update the Michigan Technology Plan and approve projects to address those needs that are common to all legal services programs

c. Assure implementation (by staff wherever possible) of these projects and help oversee implementation

d. Assist in finding resources for technology projects

e. Evaluate technology projects and make recommendations as to future action

f. Serve as steering committee for the CRP Task Force

g. Advise the Task Force Technology Subcommittee

h. Advise MPLP on technology issues and priorities

 2. CRP Task Force (Computer Responsible Persons in Legal Services Programs) a. Provide input as to on-going training and technology needs

b. Participate in training relating to statewide functions

c. Implement technology development and training within the organizations represented

 3. State Bar Access to Justice (ATJ) Task Force Technology Subcommittee a. Review Legal Services Computer Committee developments, provide input to Legal Services Computer Committee and report to the ATJ Task Force on technological developments

b. Recommend technology policies and projects requiring approval by the ATJ Task Force or by the State Bar

c. ATJ Technology staff participates in Legal Services Computer Committee and Task Force Technology Subcommittee

 4. Legal Services Association of Michigan (LSAM) a. Request Computer Committee assistance on technology needs that should be addressed

b. Review and approve technology projects proposed by the Computer Committee that will have an impact on legal services programs

 B. Organization Functions 1. Michigan Poverty Law Program (MPLP)—State Support Organization a. Provide staffing support for the Computer Committee

b. Provide technical support for statewide technology projects

c. Develop and conduct training programs for CRPs and others in need of training on technology matters common to all legal services programs.

d. Manage the MPLP web site and prepare materials for posting on that site

e. Manage Michgan Legal Assistance Network (MLAN) and related efforts to coordinate information on web for advocates and clients

 2. Michigan State Bar Foundation a. Review and respond to funding requests for technology projects and provide financial management for projects implemented by the Legal Services Computer Committee

b. As needed, provide assistance to MPLP in technology support and training

c. Participate in Legal Services Computer Committee and Task Force Technology Subcommittee

 3. Legal Services Programs a. Designate a computer-responsible person for each office of the program and allocate time and funding for the CRP for participation in statewide training and support

b. Develop a technology plan in accordance with statewide technology guidelines developed by the Legal Services Computer Committee

c. Establish program computer policies and procedures

d. Develop and implement a five-year plan for technology funding so that technology purchases are an integral part of the program’s annual budget rather than major expenditures that are difficult to support

 4. State Bar of Michigan (Access to Justice Technology Position) a. Provide staffing support for the ATJ Technology Subcommittee

b. Provide technical support for statewide technology projects under the MTP

c. Participate in training programs for CRPs and others in need of training on technology matters common to all legal services programs.
    1. Identify areas in which technology implemented in legal services programs could be expanded to involve pro bono attorneys and the private bar
IV. Evaluation

Appropriate evaluation protocols should be part of all specific technology projects. General evaluation of technology needs must be an on-going process due to the fast-changing nature of technology, including 1) evaluation of existing technology uses as to their effectiveness in interaction with eligible clients and in service delivery support systems; and 2) evaluation of emerging technologies in relation to whether they can be effectively implemented in serving clients and in improving service delivery support systems.

The Legal Services Computer Committee has a key role in both evaluation functions. As it evaluates technologies that have been implemented, it reports to LSAM (whose members implement the projects), the Foundation (which funds many of the projects), and through the Technology Subcommittee to the State Bar Access to Justice Task Force (which coordinates statewide service delivery issues). It also makes recommendations as to future action, such as expansion of the email network, exploration of case management systems, etc.

Members of the Computer Committee also are regularly reviewing emerging technologies. As the committee evaluates these technologies and identifies ways in which the technologies can improve service to clients or improve service delivery support systems, it makes modifications to existing systems to incorporate these changes, or it develops pilot projects which are narrow in scope to test the assumptions about the applicability of the new technologies. It is this function that makes the technology development in Michigan a dynamic process, responsive to on-going and emerging needs and new technologies.

V. Application of Evaluation The question we have to ask each year is whether the delivery of legal services in Michigan, as a whole, is better off through the use of technology which has been implemented during the past year, than it was a year ago. Does what has been put into place assist in more efficient and more effective delivery of legal services? During the years since implementation of the planning process there have been some technology innovations that have been very functional and others which have had limited functionality. The Michigan technology planning process provides an effective framework for incorporating what works into the systems that will take us into the future. It also provides a framework for learning from what does not work as well, so that what eventually emerges as the technology systems in use in legal services will be the most effective in serving clients and in supporting the legal services delivery systems. This is why this is step 5 for all projects adopted.