Adopting Quality Management Concepts in Public Service Reform Mohamed Asim

east asia

LLabour mdand Management in Development JourJournalnal Volume 2, Number 6

Adopting quality management Econcepts in public service reform: the case of the Malaysian Public Service

Mohamed Asim 99-2

Asia Pacific Press at the AUSTRALIAN NATIONAL UNIVERSITY http://ncdsnet.anu.edu.au Adopting quality management concepts in public service reform Mohamed Asim

This work is copyright. Apart from those uses which may be permitted under the Copyright Act 1968 as amended, no part may be reproduced by any process without written permission from the publisher.

ISSN 1443–6698 ISBN 0 7315 3684 3

Mohamed Asim is Director General of the Public Service Division, President’s Office, Republic of Maldives.

Acknowledgments This article is based on the author’s field visit to Kuala Lumpur in June 1997 as a doctoral candidate from the Australian National University.

Abbreviations DAC Development Administration Circular INTAN National Institute of Public Administration MAMPU Malaysian Administrative Modernisation and Management Planning Unit QCC quality control circle TQM total quality management US United States

Labour and Management in Development Journal, Volume 2, Number 6 2 © Asia Pacific Press 2001 Adopting quality management concepts in public service reform Mohamed Asim

Summary The same meaning is conveyed in the context of service delivery. Quality The concepts of ‘customer service’ and management in an organisational context ‘teamwork’ have been the focus of many then, is the application of certain practices public service reform programs in the and techniques which ensure that the end nineties (OECD 1996; Gore 1993; Bunning product or output of an organisation, 1992; Offner 1993; Morgan and Murgatroyd whether a product or a service, is of a high 1994). These concepts have their theoretical standard. At the organisational level, the roots in the discipline of quality variables that affect the quality of the management (Deming, 1986; Juran 1989; product or service comprise those factors Crosby, 1979). This article examines how the that influence the organisation internally as Malaysian Public Service has adopted well as externally. Variables such as the work quality management concepts in reforming process, human resources, and the public service organisations. Within this management of the organisation could be objective three main operational included as factors internal to the mechanisms adopted by the Malaysian organisation, while variables such as the Government to implement quality organisation’s approach to the customer or management are reviewed, and the the recipients of the product or service could perceptions of two selected groups of public be considered as external factors that can service officials obtained through a short have a direct impact on determining the structured questionnaire. The findings show quality of a product or service. Accordingly, that a well-established quality management quality management in simplistic terms framework exists in the Malaysian Public represents a managerial discipline that Service. Interviews with selected groups of fosters the transformation or restructuring public service officials revealed a generally of all of these internal and external variables positive perception of the impact of quality that impact upon the organisation. This management on employees’ attitudes, change has to come about in relation to the improving performance and service delivery requirements or needs of the customers, as of public service organisations. the judge of a quality product or service is the user of that product or service. Introduction The literature on quality management Quality management in simple terms could indicates that the contemporary application be expressed through the meaning of the of quality management concepts has its roots term ‘quality’. According to the Cambridge in statistical quality control methods International Dictionary of English, the developed in the United States and Europe, word quality means the ‘characteristic or with the onset of the industrial revolution feature of someone or something’ or, the and mass production (Bendell, Boulter and ‘standard of excellence of something, often Kelly 1994:14; Lindsay and Petrick 1997:62). a high standard.’ Hence, a quality product Over the past decades, quality management means a product of high standard or quality. has become a managerial discipline that has

Labour and Management in Development Journal, Volume 2, Number 6 3 © Asia Pacific Press 2001 Adopting quality management concepts in public service reform Mohamed Asim been hailed for its many achievements delivered and to improve the human (Green 1994:1–4). It has also, on the other resource potential in organisations. The hand, been termed as a passing management potential effects of quality management at fad (O’Donnell 1996:259). There has also the organisational level can be highlighted been concern among academics as to through the outcomes of some of the studies whether quality management in its that are available in the context of private ‘orthodox’ form can be applied in the public organisations (Lam 1995; Shea and Gobeli sector (Swiss 1992:360). 1995; Hodgetts 1994; Fisher 1993; Fisher and Amidst the various viewpoints, however, Davis 1992; Fisher 1990). Positive effects several academics and practitioners have reported in these studies included fewer presented specific managerial concepts defects in manufacturing, reduced waste, drawn from the writings of the major quality and increased profits (Fisher 1993:188). Positive improvements in group theorists, and in the contemporary form of involvement and work satisfaction were also their application, have termed these reported (Fisher and Davis 1992:132). concepts as total quality management Negative aspects reported in these studies (TQM) (Hackman and Wageman 1995; Dean included the need for more training, poor and Bowen 1994; Grant et al. 1994). In this relations between departments, a decrease literature three major principles encompass in employee satisfaction and increased work quality management: customer focus, load (Fisher and Davis 1992:132; Lam continuous improvement and teamwork. 1995:98). The principle of customer focus is geared Similarly, the reviewed studies on the towards restructuring the organisation to application of quality management in public meet the needs and requirements of the organisations also reported both positive customers that the organisation serves. The and negative affects (James 1997; McDaniel practices and techniques commonly 1997; Park 1997; O’Donnell 1996; McGowan associated with customer focus are primarily 1995; Redman et al. 1995; Zayed 1994). customer surveys to collect data to Positive effects in public organisations determine needs and expectations. The included raising employees’ awareness, principle of teamwork focuses on increased customer satisfaction, effective collaboration of employees at all levels of teamwork, and reduced customer the organisation through the formation of complaints (Redman et al. 1995:27). Other teams and the use of problem solving studies showed that employee involvement methods. Finally, to sustain the quality of a through teams brought about positive effects product or service, TQM advocates the need associated with employee participation, for continuous improvement of such as job satisfaction, skill variety and co- organisational procedures. worker social support (James 1997:226). A These concepts have been applied in both major constraint in implementing TQM public and private sector organisations to practices is that quality management cannot improve the quality of products and services be imposed on existing management

Labour and Management in Development Journal, Volume 2, Number 6 4 © Asia Pacific Press 2001 Adopting quality management concepts in public service reform Mohamed Asim structures (McGowan 1995:330), and that various administrative reform policies. In quality management will not work if it addition, the annual publications of the conflicts with existing management Malaysian Administrative Modernisation practices (O’Donnell 1996:259). and Management Planning Unit (MAMPU) The conclusion drawn from the above were reviewed to highlight the discussion is that the application of quality government’s assessment of quality management has the potential to bring about management initiatives. positive changes at the organisational level The DACs and other relevant in both public and private organisations. government documents identified the These include positive perceptions among implementation framework of quality employees with regard to how they work management in the Malaysian Public and their perceptions of the organisation Service. This also identified the impact of the itself. Perhaps due to the successes reported quality management initiative as perceived in the application of quality management in by the Malaysian government. A study of private organisations, concepts that are the general perceptions of employees in the inherent in the quality management public service provided another view of the literature are beginning to be emulated in same subject and balanced the ‘rhetoric’ of public service reform programs in several the government. Employees’ attitudes may developed countries. One such example is also be seen as an indicator of the success of the Malaysian Public Service. any reform initiative. This, however, represents a monumental task since such a Research methodology sample of public service employees should Two main issues were addressed in this cover the federal, state and local levels of research. The first focused on identifying the government. With the time constraint faced broader context of the quality management by the researcher and experience of initiative in the Malaysian Public Service in responses by mail, such a sample survey terms of the policies and guidelines that proved unworkable. The author contacted basically identify the rhetoric of reform. The all 25 government ministries to obtain second centred on obtaining Malaysian information on the nature of quality Public Service officials’ general impressions management in their respective of the impact of quality management organisations, but this proved futile as only initiatives on the public service. two replied. In such a situation, the The main source of information about the distribution and returning of questionnaires policies and guidelines of the Malaysian through mail appeared unviable. government on strategies to implement Hence, the intention of the researcher was quality management was the Development to conduct in-depth research using, as a Administration Circulars (DACs) issued by focus group, experienced public service the Prime Minister’s Department. These officials from a variety of agencies. This circulars are guidelines issued to public would add to the data obtained from a service agencies on the implementation of detailed case study of one public service

Labour and Management in Development Journal, Volume 2, Number 6 5 © Asia Pacific Press 2001 Adopting quality management concepts in public service reform Mohamed Asim organisation. Viewpoints gathered from good sample for this study as they had a such a selection of public service officials strong academic background (a Bachelor would be significant, as they would serve degree), and were perhaps on the threshold to supplement data obtained through other of higher-level managerial posts in qualitative methods. government. Moreover, these participants The opportunity to gauge the perceptions had also been in the public service for a of a sample of public service officials came substantial period of time. up when the researcher discovered that two While the time available with these training programs for public service groups was limited, the opportunity to gain employees were being carried out at the access to such a diverse group of middle and National Institute of Public Administration senior level officials was significant. A (INTAN). One such program consisted of the standard questionnaire was drafted for participants in the ‘pre-grade two’ course, optimum utilisation of the short time which is mandatory for confirmation into available and each course participant had 30 grade two level in the public service. There minutes to fill in the questionnaire. The were 20 participants in this course. This methodology utilised to obtain information batch represented a good sample for this from these groups did not conform to the study because they had been in the public conventional focus group techniques, where service for over sixteen years and most of participants are led into discussion by a them were heads of departments. It seemed moderator whose job is to pose questions reasonable to assume that the viewpoints of that are then discussed by the participants such a group would provide good insights of the focus group. As a result, these groups into the implementation of reforms such as have been titled Training Groups for the quality management because these people purposes of this research. have passed through the system and should During the meetings with the Training be deeply aware of the reform strategies Groups, the researcher briefly introduced the adopted by the government and the research topic and, after announcing the implications of the implementation of such intentions, distributed a standard reform policies. questionnaire to all members of the groups, The other group selected were the and remained to answer and discuss any participants in the ‘Diploma in Management queries the group participants had, and to Science’ course, which is an optional course note their comments. One advantage of this for Malaysian Public Service officials. method over the conventional focus group Selection for this course is undertaken by the technique is that it prevents dominance of Public Service Department, and requires a the discussion by one person in the group. Bachelors degree for entry. There were 22 This technique also fosters the expression of participants in this course, all of whom were frank opinions by those people in the group middle-managerial government officials. who might not usually respond with such This batch of employees also represented a openness in the context of a discussion. In

Labour and Management in Development Journal, Volume 2, Number 6 6 © Asia Pacific Press 2001 Adopting quality management concepts in public service reform Mohamed Asim addition, there is the potential for asking (Author’s interview with Pre-Grade II follow-up questions because the researcher Confirmation Course Coordinator 1997; is present. Authors interview with Diploma in The questionnaire had a total of 19 Management Science Course Coordinator questions. The first eight questions 1997). Both groups were highly educated attempted to gauge the background of the and had spent a long period of time in the respondents by asking about period of public service (43 per cent had a Bachelor service, job responsibilities, highest degree and 28 per cent a Master degree, educational qualification and whether the while 91 per cent had been in the public respondent was directly involved in service for ten years or more). Furthermore, implementing total quality management in a significant percentage of respondents (41 their organisation. The rest of the questions per cent) claimed to have been directly gauged their views on the impact of TQM involved in implementing TQM in their on various aspects of human resources and respective organisations. the organisation. Some of the questions were Here then is a sample of employees from open-ended while others asked the the Malaysian Public Service who, although respondents to rate their answers on a scale not representative of the whole public of one to five, where number one service, are in a position to provide some represented ‘very ineffective’ and number general perceptions and an overview of five ‘very effective’. what the application of TQM concepts and The questionnaire was presented in practices meant to them. It must be noted English as conversations with the course that a very high majority (91 per cent) had coordinators for both the ‘pre-grade two experienced the era of quality management course’ and the ‘Diploma in Management and a significant proportion (41 per cent) Science’ course revealed that the participants had also been directly involved in the actual in both these courses had a good command implementation of TQM concepts. In of the English language. addition, their high educational levels (71 per cent have a college education) provide a The employees selected were not general perspective that is authoritative and representative of the whole Malaysian informed about the application of TQM in public service. But, their views provide the the Malaysian Public Service. general attitudes and outlooks of a selection of public service officials who have Having discussed at some length the experienced and been involved in the research methodology and its limitations, implementation of quality management this paper will now proceed with the since its inception. They represented several findings. First, it will present a discussion different government ministries and of the quality management policies and departments from federal and state guidelines implemented in the Malaysian governments. One common aspect was that Public Service. Second, the paper will they were all considered to be in the middle analyse the perceptions of the two selected managerial level in the public service groups of public service employees.

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Implementation of quality management Among the three main DACs mentioned policies and guidelines above, the one concerning TQM introduced In the Malaysian Public Service, official the core principles and the main philosophy guidelines issued by the Prime Minister’s for the broader framework of quality Department in the form of Development management. The QCCs and the Client’s Administration Circulars (DACs) since 1991 Charter provided the implementation have been instrumental in the adoption of mechanisms. These focused on the external quality management. Through the DACs, customers—the organisations’ clients— the institutionalisation of a quality while the employees themselves were management program is evident in the viewed as the internal customers. Malaysian Public Service. It can be seen in Quality control circles. Quality control the implementation of the quality control circles represent one of the main programs circle (QCC) program, the Client Charter adopted in Malaysian Public Service program, and the total quality management organisations for the implementation of (TQM) program. Hence, these three quality management. These QCCs are a programs provide a broad framework for the group of 6–10 employees who meet discussion that follows. regularly to discuss the problems they face Although these three programs form the within their division of work and propose core of the quality management framework potential solutions to the management of the in the Malaysian Public Service, several organisation (Prime Minister’s Department programs initiated through other DACs Malaysia 1991:1). The QCCs encourage have assisted in the introduction of a culture group members to obtain data and use of quality management in the public service. statistical reasoning in analysing problems. These programs focused on streamlining They also encourage group involvement in and developing the administrative functions organisational problems and provide due of government departments. Such programs recognition to the input of employees within included, for example, the introduction of public service organisations (Prime work action forms, effective management of Minister’s Department Malaysia 1991:1). meetings and improving services over the Positive aspects regarding the impact of telephone. Emphasis was also given to QCCs on public service organisations are improving counter services and clearing the reflected in comments made by the Chief backlog of work that existed in government Secretary to the Government at the eighth ministries and departments. In addition, Public Sector Quality Control Circles programs such as the ‘Civil Service Link’ Convention in 1991. According to him, provided a mechanism for the private sector feedback from various government and the public in general to gain access to departments and agencies actively involved information regarding rules and regulations in implementing quality control circles has pertaining to them (Maarof and Amat accrued positive benefits. Some of these 1994:5). claimed benefits include improvements in

Labour and Management in Development Journal, Volume 2, Number 6 8 © Asia Pacific Press 2001 Adopting quality management concepts in public service reform Mohamed Asim work procedures, methods, economic use of stated that problems in the implementation resources and improved motivation of of QCCs have been a result of attitudes employees (Sarji 1993:110). among management and staff that were This positive assessement contrasts with detrimental to quality management an earlier study in Malaysia, identifying the practices. These included lack of constraints in implementing quality circles commitment on the part of some heads of (Ahmad 1987:153). The Ministry of Housing departments (Sarji 1993:110–1). and the Ministry of Education were mainly Perhaps in recognition of the potential studied through the perceptions of problems posed by the implementation of employees and through secondary data QCCs, the government has undertaken the available from documents in the respective task of continuously training staff in public Ministries. The participants in this study service departments in QCC courses. expressed concern with major problems that INTAN holds at least 12 such courses a year had an impact on the proceedings of quality for public service officials. These courses control circles. These included: the quality cover in detail all aspects identified in DAC circles’ members being too busy with regular No.7 of 1991. They also teach the participants office work, lack of understanding and problem solving techniques involving information on problem solving techniques statistical methods and statistical methods utilised within the quality control circle, and of collecting and analysing data (Author’s ineffective leadership. Other problems interview with INTAN Training Officer, identified included group size being too 1997). large, members not having their say in It is worth noting here that the general choosing the problems, and lack of unity and literature on QCCs reveals potential cooperation among the members themselves problems in their implementation. (Ahmad 1987:167). Furthermore, Academics who have observed and studied participants in this study also felt that the QCC phenomena in the United States management attendance at quality control have stated that quality circles have their circle meetings could be immensely distinctive advantages in enhancing the improved, with 50–70 per cent of the process of participative management in respondents citing non-attendance of organisations. However, the process of management-level employees at quality implementation is reported as inherently control circle meetings as a problem (Ahmad fraught with potential threats to the survival 1987:165). of the QCCs (Lawler and Mohrman 1985:65). The Malaysian government has also In their US study, Lawler and Mohrman acknowledged problems in the operation of concluded that QCCs would eventually QCCs. For example, it has pointed out the decline due to ‘program cynicism’ and persistence of conflicts, expectations, and ‘burnout’. It is hard to tell, however, whether resistance to change brought about by the there has been a decline in the number of quality circles concept. In 1993, former Chief QCCs in Malaysian Public Service Secretary to the Government Ahmed Sarji organisations because QCCs are convened

Labour and Management in Development Journal, Volume 2, Number 6 9 © Asia Pacific Press 2001 Adopting quality management concepts in public service reform Mohamed Asim annually in all departments on the The TQM circular identified several instructions of the government for the principles that are seen as prerequisites for purpose of sending a QCC team to the the successful implementation of TQM in annual QCC convention. Malaysian Public Service organisations. The The Total Quality Management Program. seven principles are The implementation of a structure to • support of top management manage the quality implementation process • implementation of a long term strategic and the concept of the QCC had, by 1992, plan on quality paved the way for the implementation of • customer focus what was officially termed a ‘total’ quality • providing training and recognition, management approach in the Malaysian • fostering teamwork Public Service. The concept of ‘total’ quality as understood in the Malaysian context • establishing performance measurement referred not only to product or service • emphasising quality assurance (Prime quality but everything that occurred in the Minister’s Department Malaysia 1992:6). organisation. According to DAC No. 1 of These principles provide a broad 1992, TQM is defined as a continuous framework for individual ministries and customer-driven process that involves the departments to formulate quality whole organisation (Prime Minister’s management programs. They were expected Department Malaysia 1992:1). to create more awareness among employees, The three key themes that emerge from change work attitudes and improve work this definition are familiar as the core commitment. Ample examples of the principles of quality management identified implementation of these TQM principles in the general literature on quality through the objectives, structure and management discussed earlier. They are improvement projects set by various departments are provided in the annual • continuous improvement report issued by the Chief Secretary of the • involvement of the whole organisation Government on Improvements and • and focus on the customer. Developments in the Public Service. The need for continuous improvement of A study of the effects of the the organisation is reflected in the writings implementation of the various programs in of both Deming (1986) and Crosby (1979). the Malaysian public sector is beyond the Theoretically, continuous improvement scope of this study, but the final section of represents an ongoing cyclical process, this article will present the perceptions of where organisational improvements are two groups of public service officials made in line with the feedback obtained comprising middle level managerial officials from customers. In this regard the DAC on from the Malaysian Public Service and their TQM provides a specific definition of views on the impact of TQM on several continuous improvement. aspects of organisation.

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The Client’s Charter Program. The seven cyclical one. Continuous improvement with principles outlined in the Development information obtained from the customers Administration Circular promulgated as a provides feedback to the members of the guide to TQM implementation in the QCCs, helping the work team focus on Malaysian Public Service broadly outlined further improvement. Theoretically, this a philosophy which attempts to influence all may then become a process of continuous aspects of human resources and the work improvement in the services provided by the environment. They are presented in the organisation. circular as critical in the successful The second major quality management implementation of TQM. Perhaps due to the tool that contributes to significant importance of a strong customer orientation organisational change in public service in the implementation of TQM, a separate organisations in Malaysia then is the Client’s circular on the principle of ‘customer focus’ Charter. In the Malaysian Public Service, the was circulated by the government in 1993— implementation of the Client’s Charter has DAC No. 3, titled ‘Guidelines on Client’s been widespread and comprehensive. Since Charter’. The Client’s Charter outlines the 1993, a total of 402 government agencies service delivery component in the constituting 134 agencies at the federal level, organisation, and is basically a promise to 144 at the state level, 51 statutory bodies and the customers of the organisation that a 73 local authorities have formulated and certain service will be delivered in implemented the Charter (Government of accordance with the set guidelines Malaysia 1996a:89). previously determined through examination Substantial examples of the of custoemr requirements (Prime Minister’s implementation of client’s charters in Department Malaysia 1993:1). various ministries and departments are This circular endorsed, officially, the again provided in the annual report issued customer focus aspect in the implementation by MAMPU on improvements and of quality management and outlined the developments in the public service. In these rationale for expected benefits of the reports positive outcomes have been implementation of the Client’s Charter, as attributed to the formulation, promotion and well as the mechanics of formulating and monitoring of the Client’s Charter implementing a client’s charter. mechanisms. The issuing of separate circulars as guides Another review of the implementation of for the implementation of quality control the Client’s Charter initiative in the circles and the Client’s Charter, may be seen Malaysian Public Service points to the as reflecting the importance accorded by the reduction in the number of public Malaysian government to the effective complaints against those agencies that have implementation of these two main concepts successfully implemented the Client’s of quality management—teamwork and Charters (Rahman 1995:60). This study also customer focus. The relationship between reported on the positive changes in the these concepts, evident in the literature, is a attitudes and commitment of employees in

Labour and Management in Development Journal, Volume 2, Number 6 11 © Asia Pacific Press 2001 Adopting quality management concepts in public service reform Mohamed Asim agencies that have implemented the Client’s The foregoing discussion presents the Charter. This overview was a conference ‘official’ view of the implementation of TQM paper presented by the former Director practices in the Malaysian Public Service. General of MAMPU, and hence consisted of The crucial question, however, is the extent information drawn mainly from MAMPU to which these changes have impacted on reports. the views of public servants themselves. In summary, an institutional framework This article will now present the perceptions has been adopted in the Malaysian Public of Malaysian Public Service employees Service, to implement quality management selected for this study. in public service organisations, guided by Employee perceptions the programs initiated under the DACs. The The objective of the research reported here philosophy of quality management was was to provide a general overview of what drawn from the DAC on TQM, while the DACs on the QCCs and the Client’s Charter these programs have meant to public service provided the operational mechanisms for officials. While the annual publications by implementing quality management at the MAMPU and the annual QCC Conventions organisational level. The government’s reveal success in the implementation of quality management concepts in the public efforts to induce a quality culture is reflected service, it is useful to obtain the general in the efforts of MAMPU and the Prime Minister's Department, through regular perceptions of public service employees on audits conducted by the Inspectorates of the impact of TQM. MAMPU, the annual QCC Conventions, As mentioned in the section on research and the various awards presented by the methodology, the perceptions of public government in recognition of public service service employees were obtained through agencies that have excelled in the provision two groups of public service officials who of quality services. The Inspectorate of were participating in two training programs MAMPU is entrusted with the task of for public service employees carried out at monitoring the implementation of the the National Institute of Public DACs, while the annual QCC Convention Administration (INTAN) in June 1997. convenes those QCCs in a competition to Employee perceptions of three main areas recognise and reward the best QCC in the were obtained. One was their view on the Public Service for the year. Among the impact of TQM on selected organisational various awards given out by the government aspects, such as employee training, job each year to recognise the performance of satisfaction, work skill and knowledge, various departments, the Prime Minister’s work recognition, and changes in work Quality Award for the Public Sector is practices. The second area focused on the viewed by the government as the ‘highest employees’ views on the capability of TQM and most esteemed award’ (Government of concepts to improve organisational and Malaysia 1996b:686). employee performance. Finally, employees’

Labour and Management in Development Journal, Volume 2, Number 6 12 © Asia Pacific Press 2001 Adopting quality management concepts in public service reform Mohamed Asim comments were gauged with regard to the satisfaction (48 per cent) and changing work impact of work improvement teams or the practices (39 per cent). QCCs. Employees’ views on the potential for In this regard, the impact of TQM on TQM concepts to improve employee and selected aspects of organisation, as perceived organisational performance represented the by these Malaysian Public Service second area of study. In this analysis too, for employees, is depicted in Figure 1. A cursory purposes of graphical presentation, levels of glance at Figure 1 shows that the impact of improvement for the variables of employee TQM on the five organisational aspects and organisational performance were selected has been seen as positive. The numbered on a three point scale, with one impact on aspects of training, improving regarded as ‘very little improvement’; two work skills and knowledge, and work as ‘some improvement’; and three as recognition have been considered very ‘substantial improvement’. positive (over 50 per cent believed that TQM Hence, Figure 2 depicts the employees' was effective on these aspects). In addition, perceptions of the level of improvement a significant percentage held the opinion achieved in employee and organisational that TQM was effective in increasing job performance as a result of TQM. The data

Figure 1 Impact of TQM on selected organisational aspects, perceptions from two selected groups of employees.

100 Ineffective Effective 80

40 Percentage of respondents 20

0 Employee training Job satisfaction Work skill and Work recognition Changes in work knowledge pr act i ces

Source: Information obtained from questionnaires

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Figure 2 Effectiveness of TQM on improving employee and organisational performance: Perceptions from two selected groups of employees

100 Employee performance Organisational performance 80

20 Per cent of training groups

0 Very little improvement Some improvement Substantial improvement Level of improvement

Source: Information obtained from questionnaires shows that a high percentage of employees’ the two groups of employees revealed more perceive that there had been ‘some positive responses overall than negative improvement’ in both the performance of ones with regard to the impact on work employees and performance of the improvement teams (QCCs). Positive organisation. A significant minority also responses from participants included believed that there had been ‘substantial’ perceived improvements in employee improvement in employee and participation, increased work skill and organisational performance—24 per cent knowledge, more collaboration among stated that there had been ‘substantial’ departments, better input towards improvement in employee performance, decisionmaking, and innovation for and 19 per cent were of the view that there improvement. Individual responses like the had been ‘substantial’ improvement in following indicated the effects of work organisational performance. improvement teams. The third area of analysis focused on • ‘Better work performance’. employee comments on the general impact • ‘More collaboration among the agencies of work improvement teams. In this regard, or interdepartmental network’.

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• ‘Faster work, esprit de corp, work This will lead to better customer satisfaction—high. Good networking satisfaction and at the same time enhance with other group. Difficult matter could the department’s image in the eye of the be effectively dealt with and working public’. papers such as reports could be prepared Clearly these employees’ perceptions of on time’. the impact of QCCs on public service • ‘They really contribute and find ways to organisations have been positive. But several improve whatever steps that can be negative responses were obtained which improved. They act as a check/team for focused mainly on QCCs being too time- improvement’. consuming and too concerned with • ‘Work is done more effectively. Teams procedural matters. A sample of such accept change better as they can see the responses indicates some of the negative benefit. Work improvement teams very effects of the work improvement teams. important to maintain the standard and high quality of service’. • ‘More work’ • ‘Streamline the procedure and workflow. • ‘Subordinates can give their opinion Clear demarcations of duty/power. about the department’. Every staff have a chance to register their • ‘Work improvement team not properly ideas. Documenting all procedures and guided. A lot of time wasted on office manuals. Changing habits or procedural aspects’. attitudes is not that easy to accept. Telling • ‘Time consuming, can’t concentrate on people the ways of the "old days" are personal work. Costly in preparation of wrong’ documents and presentation’. • ‘Groups or teamwork seemed to be • ‘Work done strictly following procedures improved, thus leading to increased and regulations’. productivity. At the same time it • ‘A lot of paper work, and time enhanced the feeling of self-belonging consuming’. amongst the group members and this generates them to work together as one • ‘Work improvement teams such as QCC towards achieving the organisational have been introduced in more goals’. organisations, but only to the lower level and the top level did not give much • ‘More easy to communicate. No barrier attention to it and it died off’. between high/lower level. Everybody knows how or what their function and This sample of negative responses, rights are. Sometimes if the relationships reveals inherent problems in the are too close it creates new problems implementation of QCC in public service which make it difficult to control staff’. organisations in Malaysia. Among these • ‘Work improvement teams [are] able to responses, the most frequently cited focus identify various problems faced by one on QCCs was that they created ‘more work’ customer and they can create early and were ‘time consuming’. This perhaps remedial measures to overcome them. portrays the feeling among the employees

Labour and Management in Development Journal, Volume 2, Number 6 15 © Asia Pacific Press 2001 Adopting quality management concepts in public service reform Mohamed Asim that QCCs have added an extra layer of subsequent impact teams have had on bureaucratic procedure in public service improving employee relations and morale. organisations. The following are examples of some such Finally, employee perceptions of comments: organisational changes were gauged from • ‘‘the teamwork and esprit de corps is very the responses obtained for the question: high’ ‘what major organisational changes could be • ‘more teamwork, dedication, identified as a result of TQM?’. The teambuilding, adherence to land rules responses obtained for this question showed and national land codes’ that the employees felt that there were • ‘teambuilding, productivity and quality several positive changes in terms of attitude, increased, an increase in the image of work culture, training and teamwork, and a department, customer satisfaction’ general change in the organisational culture. • ‘involvement by fellow workers in discussing and resolving problems that Examples of some comments that arise. Productivity increased, relations portrayed TQM as having brought about a between workers improved’ change in attitude amongst staff and a • ‘increased cooperation among the change in the work culture are: officers in doing the job as a team. • ‘everyone in our organisation is very Minimised conflict through effective and conscious about quality and everyone better communication. Good flow of contributes their best’ information’ • ‘organisational culture especially in the • ‘employees started to work in teams. area of attitude development depends on Better results are obtained as a result of our values. If we respect the good values teamwork. Better quality of work as a such as trust, responsible, hard work and result of teamwork’. discipline and practice it, so we will have Furthermore, comments also revealed a positive attitude towards achieving success and ways of improving quality’ that there had been changes and restructuring of work and, with additional • ‘teamwork spirit very impressive. Job training, improved work knowledge and satisfaction among staff. Well educated skills. staff. Proper training program for all levels of staff. Good working To summarise, the most commonly cited environment and healthy relationship organisational changes are those that have among the staff’ taken place within the teams themselves. • ‘changes in work practices and Perceptions of organisational and job environment in work place, where restructuring, and organisational culture everybody is reminded about TQM and reflect changes in the functioning of public everybody has to know what he is doing service organisations. The impacts on in contributing to TQM practices’. organisational culture are shown in In addition, several comments centred on statements such as ‘team spirit’, ‘esprit de the impact TQM has had in terms of corps’, ‘empowerment’, ‘good working instilling a sense of teamwork and the environment and healthy relationship

Labour and Management in Development Journal, Volume 2, Number 6 16 © Asia Pacific Press 2001 Adopting quality management concepts in public service reform Mohamed Asim between employees’, and ‘more careful in their respective organisations. A significant dealing with the public’. These statements percentage also stated that there had been perhaps reveal the existence of an ‘substantial improvements’. Similarly, the organisational culture that is team oriented impact of work improvement teams and the and focused on the customer, at least among impact of TQM on organisational change the participants of the selected groups. As was perceived positively by most of the mentioned before, these two concepts of Training Groups. teamwork and customer orientation are These perceptions, however, are drawn major TQM principles that are crucial in from middle managerial employees in the instilling the process aimed at achieving public service and have been presented to quality service. provide some general views on what the circulars on TQM, QCCs and the Client’s Conclusions Charter have meant to public service officials This article has examined three operational in general. A small minority of respondents mechanisms of quality management are heads of departments, which means that adopted in the Malaysian Public Service their promotion depended on how well they through a discussion of three main programs implemented the guidelines provided in the implemented under the rubric of quality DACs in their respective departments. The management—QCCs, the TQM program Inspectorate Teams of MAMPU have, over and the Client’s Charter. From an overview the years, visited organisations where the of these three main programs it was clear head of departments were due for a that there was a discernible set of policies promotion and made recommendations to and guidelines which formed the basis of a the government on the progress of the quality management framework in the implementation of the DACs (Author’s Malaysian Public Service. interview with MAMPU official, 1997). The perceptions of the selected groups of Hence, considering the nature of this employees were generally positive with Training Group, the tendency may exist for regard to the impact of quality management reporting positive outcomes with regard to in the Malaysian Public Service. The impact administrative reform programs. of TQM on the aspects of employee training, It may be concluded, however, that the job satisfaction, work skill and knowledge, adoption of quality management concepts work recognition, and changes in work and practices in the Malaysian Public Service practices, were seen to be ‘effective’ by has provided the necessary institutional public service employees. A very mechanisms and focus for change in the insignificant percentage reported the impact government’s efforts to reform the public of TQM on these aspects as ‘ineffective’. service. Nevertheless, to determine the Overall, the public service employees felt global impact, this study needs to be that TQM practices had effected ‘some broadened to include non-managerial improvement’ on organisational employees as well as employees from state performance and employee performance in and local levels of government.

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