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AI Search

# AI Search vs. Keyword Search: What's the Difference — and Why It Matters for SLED Organisations

RT

Rachel Thornton

Head of Content, Keyspider

April 2025

11 min read

For decades, search in the public sector meant one thing: type a keyword, get a list of links. It worked well enough when government websites had fifty pages. Today, with thousands of pages of legislation, service guides, forms, and policies — often spread across multiple domains — keyword search is quietly failing the people it's supposed to serve.

The cost of that failure is invisible in a spreadsheet but visible everywhere else: in contact centre call volumes, in repeated enquiries, in citizens who give up and assume the service they need doesn't exist. For state and local government agencies, universities, and school districts, this is not a minor UX annoyance. It is a significant operational and equity problem.

AI search offers a fundamentally different approach. Understanding the distinction — not at a marketing level, but at a practical, operational one — is essential for any digital leader in the SLED sector evaluating their next technology investment. If you're evaluating AI Search for your organisation, this breakdown is where to start.

## How Keyword Search Actually Works

Keyword search engines, in their classic form, operate on a principle called term frequency-inverse document frequency (TF-IDF). Translated from the academic: the engine looks for documents that contain the words the user typed, ranks them by how often those words appear and how rare those words are across the whole index, and returns a ranked list.

Modern keyword engines have evolved. Elasticsearch, Apache Solr, and the search built into platforms like SharePoint and Drupal use more sophisticated ranking algorithms — BM25 is the standard — and add features like fuzzy matching, stemming (recognising that 'drive' and 'driving' are related), and synonym expansion. These are meaningful improvements. But they all share the same fundamental constraint: the engine is matching text, not understanding intent.

> A citizen searching for 'how do I get help paying rent' is asking a human question. A keyword engine looks for documents containing the words 'help', 'paying', and 'rent'. The document that answers the question might use none of those exact words. It might be titled 'Residential Rental Assistance Programme — Eligibility and Application'.

> — A very common failure scenario on government websites, repeated thousands of times daily

This gap between the words a person uses and the words that appear in official documents is not a bug in how citizens write. It is an inherent feature of how governments communicate. Policy language, legislative drafting conventions, and bureaucratic terminology create a vocabulary gap that keyword search has no mechanism to bridge.

## How AI Search Works Differently

AI search — more precisely, semantic search built on large language model (LLM) embeddings — works by representing both queries and documents as vectors in a high-dimensional mathematical space. Documents and queries that are semantically similar — that mean similar things, even if they use different words — sit close together in that space.

When a citizen types 'how do I get help paying rent', a semantic search engine converts that query into a vector representation that encodes its meaning. It then finds documents whose vector representations are nearest — regardless of whether those documents share any of the exact search terms. The rental assistance page ranks highly not because it contains the word 'rent' but because its meaning, as understood by the AI model, is close to the meaning of the query.

Technical note

Modern AI search systems typically use a retrieval-augmented generation (RAG) architecture: a semantic retrieval layer finds the most relevant documents, and a language model then synthesises those documents into a direct answer — with citations pointing back to the source material.

The practical difference is profound. AI search finds relevant content even when the query language bears no resemblance to the document language. It understands that 'rubbish collection schedule' and 'waste removal timetable' are the same question. It knows that 'my kid got expelled' and 'student suspension appeal process' are related. It recognises that 'broken footpath near my house' and 'report a street defect' are the same intent.

## Five Concrete Scenarios Where Keyword Search Fails SLED Organisations

### 1. Citizen self-service on government websites

A local council website might have 3,000 pages covering everything from parking permits to planning applications to stormwater drainage management. The pages were written by different departments over fifteen years. Terminology is inconsistent. Some pages are written for officers, not citizens. Others were last updated in 2019.

A citizen searching for 'noise complaint neighbour' might find nothing, because the relevant page is titled 'Environmental Nuisance Reporting' and uses the term 'neighbourhood amenity'. With AI search, the semantic connection is immediate.

### 2. Student and prospective applicant enquiries in higher education

University websites are among the most navigationally complex in existence. Faculties operate their own microsites. The admissions office has different terminology than the registrar. Student services uses different naming conventions from the IT help desk. A prospective student asking 'what grades do I need to get into nursing' is speaking naturally about entry requirements — but the relevant page might be titled 'Bachelor of Nursing — Academic Entry Requirements' and use ATAR scores, prerequisite subjects, and selection rank language the student has never encountered. We examine this in depth in How Universities Are Using AI Search to Reduce Student Service Enquiries.

### 3. Caseworker document retrieval in state agencies

In state-level human services, housing, or corrections agencies, caseworkers navigate dozens of systems daily. Policy manuals, legislative instruments, procedural guides, and case precedents accumulate over years. A caseworker searching for 'domestic violence exception rent assistance' needs to find the relevant policy — which might be buried in a 200-page document titled 'Residential Tenancy Policy Framework, Appendix D'.

Keyword search returns the document. AI search extracts the answer from within it.

### 4. Library and research discovery in K-12 and higher education

Students searching for research resources rarely search the way librarians catalogue. A student researching 'how social media affects teenagers' mental health' will find far more relevant academic resources through semantic search than through keyword matching — because the vocabulary of academic literature diverges sharply from the vocabulary of a 16-year-old's research question.

### 5. HR and policy search for public sector employees

Public sector HR policy libraries are notoriously complex — enterprise agreements, legislative instruments, ministerial directives, agency-specific policies, and updated procedures coexist in a labyrinth that even experienced HR managers navigate with difficulty. When a staff member searches 'can I take unpaid leave for a family emergency', they are asking a natural question that may require joining three different policy documents, none of which uses the word 'emergency' in the way the employee means it.

68%

of government website searches return no clicked result (Gartner, 2023)

40%

of citizen contact centre calls are for information already on the website

3.2×

more likely to self-serve successfully with semantic search vs keyword search

35%

average reduction in contact centre volume after deploying AI search

## The AI-Generated Answer Layer: What Changes Everything

The semantic retrieval layer — finding the right documents even with different terminology — is only half of what modern AI search delivers. The other half is the answer synthesis layer.

Traditional search, whether keyword or semantic, returns a list of documents. The user still has to click through, read, and extract the answer themselves. For a citizen who is anxious, time-poor, or dealing with a language barrier, even opening the right document and finding the relevant paragraph is a significant friction point.

AI search, using a RAG architecture, goes one step further: it generates a direct answer from the retrieved documents, presented in plain language, with citations. The citizen sees not 'here are five documents that might help' but 'to apply for rent assistance, you need to complete Form RA-04, provide proof of income for the last three months, and submit to your local housing office. Applications close the last business day of each month.'

> The jump from 'here's a list of pages' to 'here's the answer' is the equivalent of the jump from a telephone directory to Google Maps directions. Both technically answer the question. Only one actually serves the user.

Critical distinction for public sector deployments

AI-generated answers must be grounded exclusively in your organisation's content — not trained on the open internet. A government or education AI that draws from general web knowledge will produce answers that may contradict your official policy, cite outdated information, or create legal liability. Grounded AI search only synthesises from your indexed content, with every answer traceable to a source document.

## Objections and Honest Answers

### 'Our content isn't good enough for AI search to work properly'

This is the most common — and most valid — concern. AI search amplifies your content, for better or worse. If your policy documents are outdated, contradictory, or written in impenetrable legislative language, AI search will find them faster and surface them to more users. It won't fix bad content.

What AI search will do, however, is illuminate exactly which content is failing your users. The analytics layer — tracking what users search for, what they click, and what returns zero results — is arguably the most valuable outcome of deploying AI search. Many organisations discover that their most-searched-for content is buried or missing entirely.

### 'What about accuracy? Can we trust it with official information?'

Trust is earned through architecture, not assertion. A properly configured AI search system that is grounded exclusively in your approved content — and that shows citations on every answer — is auditable in a way that keyword search is not. When an AI search system says 'according to the Residential Tenancy Policy, section 4.2, the notice period is 14 days', that answer can be verified, challenged, and corrected through the same content management process that would correct the underlying document.

### 'What about WCAG compliance?'

AI search can improve or harm WCAG compliance depending on implementation. A well-built AI search widget, built to keyboard navigation standards with ARIA labels, focus management, and screen reader support, is more accessible than most legacy search implementations — which were often built quickly, without accessibility as a priority. But it must be tested. Any SLED organisation procuring AI search should require documented WCAG 2.1 AA conformance testing as a condition of deployment. For a full breakdown of the legal landscape and what to require from vendors, see WCAG 2.1, AI Search, and the Law.

## What to Look for When Evaluating AI Search for SLED

1. 1 Grounded retrieval only — the AI must draw answers exclusively from your indexed content, never from general internet knowledge. Verify this during a proof of concept with deliberately obscure queries.
2. 2 Source citations on every answer — every AI-generated response must link back to the source document. This is not optional for public sector use; it is a governance requirement.
3. 3 Permission-aware indexing — for internal deployments, the search engine must respect existing access controls at the document level. A caseworker in housing should not see records from corrections.
4. 4 Real-time indexing latency — policy updates and service changes need to be searchable within minutes of publication, not after an overnight crawl.
5. 5 WCAG 2.1 AA compliance — verified through independent testing, not vendor assertion.
6. 6 Deployment timeline and complexity — SLED organisations are not resourced to manage year-long implementation projects. Deployment in days or weeks, not months, is achievable and should be required.
7. 7 Analytics and reporting — zero-results tracking, query volume by topic, and click-through rates should be included, not sold as an add-on.
8. 8 Data sovereignty — all indexed content and query logs must remain within your jurisdiction. Understand where data is stored and whether it is used for model training.

## The Equity Argument

There is a case for AI search in government and education that goes beyond operational efficiency. When a citizen cannot find information about a service they are entitled to, that is not just a UX failure. For a person navigating a rental crisis, a healthcare entitlement, or a child's education appeal, the failure to find information has real consequences. The people most harmed by poor search design are disproportionately those with the fewest alternative options — those without a professional network to call, without the literacy to parse bureaucratic language, without the time to call a contact centre during business hours.

AI search that understands natural language queries — that bridges the gap between how people speak and how governments write — is an equity intervention as much as a technology decision. SLED digital leaders who frame it only as an efficiency play are underselling the case to their stakeholders.

## The Bottom Line

Keyword search was designed for a web that no longer exists. The volume of content, the diversity of users, and the expectations set by decades of consumer AI mean that the gap between what SLED websites deliver and what users need has never been wider.

AI search is not a silver bullet. It will not fix a content management problem. It will not replace a thoughtful information architecture. It will not comply with WCAG automatically. But it will, in a properly configured deployment, do something no keyword search engine can: understand what your users are actually asking — and give them an answer.

Explore further

Keyspider AI Search — product overview See how Keyspider AI Search works, what it indexes, and how it deploys.
AI Search for Government & Public Sector How state and local government agencies are using AI search to serve citizens better.
AI Search for Higher Education How universities are reducing student service enquiries with AI search.
How to Stop Your AI Chatbot from Making Things Up Why hallucinations happen and how grounded AI prevents them.
Your Search Analytics Are Your Best Content Strategy Tool How to use zero-results data to drive your content programme.

Next step

If you are evaluating AI search for a state, local government, or education environment, start with a proof of concept on a defined subset of your content. A well-scoped POC — run in under two weeks with your actual content — will tell you more than any vendor presentation.

### Ready to see it in action?

Book a demo and we'll configure Keyspider on a live sample of your content, within 48 hours.

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