Baseline Analysis Quality Management in Public Administration and Public Services in Western Balkans Prepared and written by EDA – Development Agency Banja Luka, Bosnia and Herzegovina for Regional School of Public Administration Danilovgrad, Montenegro Lead author: Zdravko Miovčić Researchers / Contributors: Alba Dakoli Wilson (Albania and Kosovo*) Halil Gutošić (Bosnia and Herzegovina) Tome Shekerdjiev (Macedonia) Aleksandar Draganić (Montenegro) Miodrag Milosavljević (Serbia) ReSPA Activities are funded by the EU 2017 The Regional School of Public Administration (ReSPA) is an inter-governmental organisation supporting regional cooperation of public administrations in the Western Balkans. Its activities are supported by the European Commission (EC), and co-funded through annual contributions of the ReSPA Members. ReSPA Members are Albania, Bosnia and Herzegovina, Macedonia, Montenegro and Serbia, while public servants from Kosovo*1 participate in ReSPA activities funded by the European Commission. The Purpose of ReSPA is to support governments in the Western Balkan region develop better public administration, public services and overall governance systems for their citizens and businesses, and prepare them for membership in the European Union. LEGAL NOTICE This document has been produced with the financial assistance of the European Union. The contents of this document can under no circumstances be regarded as reflecting the position of the European Union. The views expressed in this publication are those of the authors and do not necessarily reflect the official views of the Regional School of Public Administration on the subject. Neither the Regional School of Public Administration nor any person acting on its behalf is responsible for the use which might be made of the information contained in the present publication. The Regional School of Public Administration is not responsible for the external web sites referred to in the present publication. COPYRIGHT © Regional School of Public Administration, 2017 This publication is the property of ReSPA. Any unauthorized reprint or use of this material is prohibited. CONTACT Regional School of Public Administration Branelovica P.O. Box 31, 81410 Danilovgrad, Montenegro Telephone: +382 (0)20 817 200 Internet: www.respaweb.eu E-mail: [email protected] 1 This designation is without prejudice to positions on status, and is in line with UNSCR 1244 and ICJ Advisory Opinion on the Kosovo Declaration of independence Contents 1. Description and Definition of Terms and Values ................................................................ 12 1.1. Principles of Public Management, Governance and Excellence ................................. 12 1.2. Organizational Culture ................................................................................................. 13 1.3. Political Leadership ...................................................................................................... 14 1.4. Added Value of QM – How QM Affects Public Administration ..................................... 15 1.5. EU PA Principles and Link to QM Systems ................................................................. 15 2. QM Practices and Systems in the EU ................................................................................ 17 2.1. QM Tools/Practices in the EU ...................................................................................... 17 2.2. QM Systems in the EU ................................................................................................ 29 2.2.1. ISO 9001 ............................................................................................................... 30 2.2.2. CAF ....................................................................................................................... 31 2.2.3. EFQM .................................................................................................................... 33 3. QM Practices and Systems in the Western Balkans .......................................................... 35 3.1. QM Tools/Practices in the Western Balkans ............................................................... 35 3.1.1. Understanding User's Needs and Expectations .................................................... 35 3.1.2. Improving Processes to Benefit Public Service Users .......................................... 39 3.1.3. Meeting User Expectations of Easy Access to Services ....................................... 41 3.1.4. Using e-Government to Access Faster, Cheaper, Better Services ....................... 44 3.1.5. Committing to Service Standards and Measuring Satisfaction ............................. 47 3.1.6. Conclusions, Key Messages and Inspiration for Future Action ............................. 48 3.2. Current State of Affairs of QM in the Countries of the Region ..................................... 50 3.2.1. History of QM Implementation ............................................................................... 51 3.2.2. Quality Management Systems in Use ................................................................... 58 3.2.3. Institutional and Legal Framework ........................................................................ 68 3.2.4. Human Capital (Capacity Building Activities) ........................................................ 74 3.2.5. Partnership with NGOs and Professional Organisations Enhancing QM .............. 78 3.2.6. Comparative Overview .......................................................................................... 87 4. Guidelines for Implementation of QM in the Western Balkans region ................................ 90 4.1. Methodological Inputs for the Guidelines ..................................................................... 90 4.2. General Picture and Guidelines ................................................................................... 91 4.3. More Specific Guidelines ............................................................................................. 93 4.3.1. Legal Framework: Solid Ground and Necessary Improvements ........................... 93 4.3.2. Institutional Aspect: Coordination, Change Agents and Leading by Example ...... 94 4.3.3. Capacity Building Aspect: Senior Official and QM Practitioners as Target Groups ........................................................................................................................................ 97 4.4. How to Link QM and PAR Policies ............................................................................ 100 3 4.5. Required Support for QM Use ................................................................................... 103 5. Techniques/Systems to Implement Quality Management in Specific Country ................. 107 5.1. How to Facilitate Evolution of QM in Specific Country ............................................... 108 5.2. The Region: QM as a Window of Opportunity and Strategic Orientation for ReSPA 114 6. Conclusions and Recommendations ................................................................................ 118 Annex 1: List of Interviewed Persons for the Baseline Analysis ........................................... 121 Annex 2: Questions for Semi-structured Field Interviews .................................................... 124 List of tables Table 1. Initial stage, evolution path and current status of QM in the Western Balkans countries ................................................................................................................................... 9 Table 2. Prescribed questions and ways/tools to address them ............................................ 18 Table 3. List of tools/practices ................................................................................................ 18 Table 4. Quality management systems in the EU (GIZ, 2013) ............................................... 29 Table 5. Practices within the PA and PS delivery in Western Balkans countries ................... 36 Table 6. Improving processes to benefit public service users ................................................ 39 Table 7. Meeting user expectations of easy access to services ............................................ 41 Table 8. Using e-Government to access faster, cheaper, better services .............................. 44 Table 9. Committing to service standards and measuring satisfaction .................................. 47 Table 10. Quality management systems in the Western Balkans .......................................... 59 Table 11. A short history and status of QMS in the Western Balkan countries ...................... 87 Table 12. Different approaches and paths to institutional and legal framework ..................... 88 Table 13. Leadership, HR and partnership related to QMS in the Western Balkans ............. 89 Table 14. Main guidelines for QM in WB countries ................................................................ 92 List of Pictures Picture 1. Number of interviews per country ........................................................................... 8 Picture 2. Relationship between TQM and organizational culture ......................................... 14 Picture 3. Customer journey ................................................................................................... 22 Picture 4. Number of registered users of CAF in EU Countries (Source: EIPA database on 9th of January 2017) .............................................................................................................