United Nations Public Service Awards Case Studies

The problem to which the initiative was a solution was to implement a conclusive overall quality system for the delivery of services into an authority of sovereignty and intervention administration.

The District Administration Authority of Wels-Land is an authority of sovereignty and intervention administration. This means especially that they do not render services of general interest, like for instance the supply of electricity or water nor do they operate facilities like indoor swimming pools or libraries.

In Austria, they are downright the prototype of a national authority. The district administra-tion authority has to implement law. The contents of the official decisions are legally given and are principally not negotiable with the customers; discretionary power is only partly granted to the authority.

The district administration authority inheres power of force and command, they formulate and assert law for the citizens. Sometimes they must have their directives enforced by power of police, if they are not observed.

We are committed to the principle of obtaining effects for the greater good of the society, for instance in the range of air and water pollution prevention, security, health and traffic.

In concrete practice, for instance, the district administration authority issues passports and driving licences and award proofs of trading licences which can also be revoked under certain premises. Moreover, the regional administration authority imposes fines, for instance for exceeding the speed limit, water pollution or illegal pursuit of trade.

The district administration authority already implemented various individual measures in the past decade for administrative optimization, e.g. customer guiding system, target agreement talks and in-house conclaves for executives. Despite quite remarkable improvement effects there was an uneasy feeling that the actions taken would represent an "incoherent patchwork". This led to the search for a conclusive overall system for advancement measures. Such a system should meet the following demands: Suitable for an administration service board of the sovereignty administration; no "documentation hypertrophy"; simply manageable; as little expenditure as possible in relation to the attainable benefit.

The crucial goal was the use of total quality management within in the context of sovereignty and intervention administration. Without abandoning the traditional qualities of the sovereignty administration (like predictability, equal treatment, orientation towards public interest, proportionateness...), instruments and tools of the non-governmental performance delivery are used for the advancement of the sovereign administrative performances.

In sovereignty administrations of the past, thinking and acting in categories like "leadership", "customer orientation" or "resource management" had a quite different value and significance as e. g. in non-governmental service enterprises. There were no social groups that were affected specially. Rather were and are affected all types of customers (e.g. farmers, hunters, employees, drivers, handicapped people, insurance companies and other companies, communities) in a quite similar way.

What is the initiative about? (the solution)
At the beginning of the TQM project, a survey of the actual state was carried out; its results, however, were not quantitatively displayed. Only afterwards, that is after conclusion of separate partial projects and after evaluation of the results of separate process analyses respectively, different measurement categories were comparable. On the basis of a countrywide electronic procedure information system ("EVI" - Elektronisches Verfahrensinformationssystem) we could find out that the average procedure duration from 2007 to 2008 in licensing procedures regarding water law, for example, could be reduced by approx.. 35 % and in statement procedures regarding nature protection law by more than 50 %. Another measuring instrument is "CATS ESS" (Cross Application Time System - Employee Self Service), which likewise establishes possibilities of comparison with other administrative agencies of the Land of Upper Austria. It serves, above all, for a simplification and ratio-nalisation of processes and for a simplification of the accounting of travel expenses; the data are directly entered by the employees. On the basis of these results, quarterly key data are evaluated and refer, among other things, comparatively to a possible reduction of the cost per unit at a series of procedures. Thus by the measures derived hence, we could obtain a reduction of the procedure costs, for example, of the revocation of admissions for motor vehicles and trailers from 438 euros in 2007 to 267,50 euros in the first quarter of 2008. Moreover, reports of the Independent Administration Senate of the Land of Upper Austria are evaluated and taken into considerations as an indicator (decrease of legal remedies as a reference to an increase of the quality of decisions). The continuous decrease of complaints is to be attributed, among other things, to the better training and the larger expertise of the staff in handling complaints. The results of the feedback cards issued since April 2006 are also quite remarkable. In several dimensions, by approx. 95 % of the customers, the performance of our service is considered to be very good The feedbacks of our customers brought us to the introduction of quality standards in the fields of negotiation, availability and competencies, waiting times as well as better infor-mation for our customers. In internal seminars we train our staff in handling a more colloquial linguistic style. With the aid of dialogues with our customers, we continue to develop in customer forums. Here we react to specific customer feedbacks, amendments of the legal situation or also systematic deficits with petitions. For example, owners of bakeries were invited to such a forum for the purpose of clarifications in the context of food supervision. We created a procedure for optimization workshops, which in the meantime was raised to standard country-wide. As the result of such a workshop, the verbal negotiations could be omitted for certain water law procedures. For the applicants this led to a procedure acceleration and a reduction of procedure costs. In the first instance, it is our customers who benefit from our efforts and measures. Concurrently it is our conception that content employees contribute substantially to the satisfaction of our customers. Within the scope of employee-orientation, for example, we organized a family day. On this day, the children or grand children of our officials could get to know the job of their parents or grandparents in a playful way. In summary, we came to the conclusion that by a constant involvement of our employees we can obtain the largest possible acceptance within our own staff as well as a rising identification with the topic of further advancement of our quality in all facets.

Who proposed the solution, who implemented it and who were the stakeholders?
The initiative to which we gave the title "Quality from us and for us", was proposed by the District Head Officer as leader of the authority, who was supported by an internal project team, and by a steering team in the following implementation phase. The latter essentially consisted of the topic responsible people in the nine criteria of the Total Quality Management System, a member of the staff council and three further district head officers. The task to be pursued by the topic responsible people is to detect an actual call for action and to follow up the implementation measures. We were currently supported by the Executive Department of the Office of the Upper Austrian Regional Government, in the introductory phase by an external consultancy and in individual detail projects by other district administration authorities. The employees were involved into the project insofar as a member of the staff council was and still is a formal member of the project team and the steering team respectively; both in the introductory phase and also in the implementation phase. On the other hand, during an introductory workshop, the employees were informed about the contents of the project and invited to cooperate as describers and assessors in the introductory phase as well as in temporary working groups for the implementation of detail projects. During the introductory phase, information was served steadily about the current status of the project; the intended implementation measures were presented in a final workshop. In quarterly meetings, the employees get informed currently and regularly about implementation measures. In the introductory phase, our customers were questioned by the aid of self developed questionnaires. In the implementation phase, in the context of a region-wide quality dialogue, a further customer opinion poll was carried out, whose results gave reason to the steering team to compile and also implement target-oriented measures. Moreover, we invite members of certain customer segments to customer forums. As our most actual measure, we have developed feedback cards in order to receive from our customers constant feedbacks on selected quality standards (like e.g. accessibility of the employees). In detail projects we have also cooperated with other authorities, for example in the develop-ment of telephone standards. The current support and attendance of the project by the executive department as well as by other district administration authorities proves to be helpful, also the support by an external consultancy in the introductory phase.

Describe how and when the initiative was implemented by answering these questions
a. What were the strategies used to implement the initiative? In no more than 500 words, provide a summary of the main objectives and strategies of the initiative, how they were established and by whom.
Main objectives Our slogan was from the outset: "Quality for the customers, quality for us" (content customers and content employees). A common quality understanding and a comprehensive system was important for us. We wanted to make quality management to measure for our conditions and our needs. We wanted to be trendsetters in administration quality in Upper Austria and, as the first district administration authority, introduce systematic quality management in an authority of sovereignty administration. Therewith the requirement was connected to actually improve the quality of our actions and our results by additional instruments. In the sense of the "KVP philosophy" (continuous improvement process) we consider quality increase as a summation of many individual measures. That way we do not pursue the strategy of a "large throw", but one of small steps. Strategies: Substantial contents are the use of total quality management in the context of sovereignty and intervention administration. Without abandoning the traditional qualities of the sovereignty administration (like predictability, equal treatment, orientation towards public interest, proportionateness...), instruments and tools of the non-governmental performance delivery are used for the advancement of the sovereign administrative performances. To achieve this, the terminology of quality management had to be translated into the administrative language and the tools had to the adapted to the specific conditions of the sovereignty administration (e.g. involuntary customers). The emphasis consists in the optimization of processes and results, the improvement of the competences and the change of attitudes of the employees, the fulfilment of customer expectations and the realization of an overall concept of quality. The Total Quality Management (TQM) according to the EFQM model (European Foundation for quality management) met these requirements most of all. How they were established and by whom The originator of our project, to which we gave the title "Quality from us and for us", was the Director of the Office of the Regional Government. The project management was incumbent on the District Head Officer as leader of the authority, who was supported by an internal project team, and by a steering team in the following implementation phase. The latter essentially consisted of the topic responsible people in the nine criteria, a member of the staff council and three further district head officers. The task to be pursued by the topic responsible people is to detect an actual call for action and to follow up the implementation measures. We were currently supported by the Executive Department of the Office of the Upper Austrian Regional Government, in the introductory phase by an external consultancy and in individual detail projects by other district administration authorities. The employees were involved into the project insofar as a member of the staff council was and still is a formal member of the project team and the steering team respectively; both in the introductory phase and also in the implementation phase. On the other hand, during an introductory workshop, the employees were informed about the contents of the project and invited to cooperate as describers and assessors in the introductory phase as well as in temporary working groups for the implementation of detail projects. During the introductory phase, information was served steadily about the current status of the project; the intended implementation measures were presented in a final workshop. In quarterly meetings, the employees get informed currently and regularly about implementation measures.

b. What were the key development and implementation steps and the chronology? No more than 500 words
The implementation of TQM within the district administration authority of Wels-Land envisaged first a one year's introductory phase, which finally lead to transferring TQM into continuous operation. The introductory phase was characterized by an introduction into QM-thinking and the planning of project management, the formation of a project steering group, investigation of the actual situation by teams of describers, the subsequent evaluation of strengths and improvement potentials including concrete implementation measures by teams of assessors, the evaluation of the results by the project steering group and the executive managers, information events for all employees as well as the definition of a working programme (catalogue of measures). The project steering group and the describer teams consisted of executive managers and employees; the assessor teams additionally of external assessors. The targets of the project were compiled in an introductory workshop and finalized by the executive managers, the concrete implementation measures were fixed by the executive managers under involvement of the employees. In the following phase of the implementation and continuous operation a steering team was set up, which meets regularly. Additionally, topic responsible people for the nine criteria were nominated, whose task is the identification of current calls for action as well as the following-up of implementation measures. Furthermore, (partially temporary) working groups are established and annual working programmes are compiled. An overview of the main features and tools of our project was already provided under point a) "strategies". As tools are used, for example: Benchmarking with other district administration authorities, process optimizing workshops, in-house training of executives and employees (within an overall personnel development concept), establishing of a customer service point, complaints management, feedback–cards, quality circles, customer forums, quality dialogue (including customer opinion polls), quality standards, stimulating proposals and agreements concerning objectives.

c. What were the main obstacles encountered? How were they overcome? No more than 500 words
A substantial obstacle during the introduction and above all also during the implementation of TQM in the district administration authority of Wels-Land was the fact that not all executive managers have participated and supported the team in all phases of the project. This could be alleviated, however, by the acceptance of at least one additional department manager into the steering team. Moreover, not all employees were convinced of the project from the beginning. Therefore we enabled further employees from all departments to participate in the project.At the beginning of the project we decided to reach our targets by many (small) steps. We did this, above all, in order to facilitate a continuous implementation and not to confront the employees with accomplished facts. In some cases, however, this led to the fact that "resounding successes" were not immediately noticeable for the employees. In a sense, however, difficulties arise with complaint management: Employees worry about disadvantages if complaints concerning their work area become generally known; for this reason they do not always pass customer complaints on to the complaints office. We strive to disburden our employees from these fears. A further obstacle was the overlay with other (region-wide) projects (customer opinion poll, questioning of the employees, introduction of a new long-term management and enterprise concept for an effect-oriented regional administration). The situation became even more aggravated by the fact that the additional time and effort caused by TQM had to be mastered without additional personnel beside the day-to-day business. By dealing thoroughly with the subject of TQM and receiving positive feedbacks of our customers, most of the employees could be convinced of the benefits of quality management. They recognized for instance, that by the process analysis simplifications become visible (and measurable). The problems and obstacles are tackled in different ways: For instance they are discussed at a quarter meeting or during talks with the district head officer. Some became obvious by questioning the employees. Just as different was the approach to an accomplishment of these hurdles: In order to provide information about the employees to the customers, we started to attach photos of the employees in the corridors. There was some resistance at the beginning, which could be overcome by convincing and finally also by the obtainment of a psychological appraisal.

d. What resources were used for the initiative and what were its key benefits? In no more than 500 words, specify what were the financial, technical and human resources’ costs associated with this initiative. Describe how resources were mobilized
Financial/human resources In the introductory phase we were supported by an external consultancy (costs: Euro 36.000,--) The financial resources for this external consultancy were mobilized by the Director of the Office of the Regional Government as initiator of our project. Costs of technical resources: Here, for example, the costs of the feedback cards are to be mentioned: For them, expenses of approx. 3,000 euros have accumulated (for the a slot boxes, posters, feedback cards...). The expenses are justified, however, since by the introduction of this instrument experiences were gained and, in further sequence, improvement potentials in the every-day tasks were found. Human resources It was clear from the outset that this project had to be mastered without additional personnel resources. The additional work was carried particularly by the groups of the describers and assessors as well as by the control team. The commitment and the enthusiasm of the employees were raised at the beginning of the project in an introductory workshop. During the introductory workshop, the employees were informed about the contents of the project and invited to cooperate as describers and assessors in the introductory phase as well as in temporary working groups for the implementation of detail projects. The employees were also involved in the evaluation and implementation phase, amongst others by the participation at workshops and by information at quarterly meetings. An exact statement about the personnel expenditure therefore cannot be given up to the time of the introduction of CATS ESS. In fact, a cost centre "quality assurance" was installed, but since other products are also booked on this cost centre, no concrete costs are to be mentioned here either. Therefore, a cost-benefit analysis in the microeconomic sense is not target-oriented due to the fact that the costs are only partially known. Notwithstanding, it can be assumed that the investment in new methods and quality instruments shows success at least in the medium term: As the already mentioned example of the feedback cards shows, the satisfaction of our customers could be constantly improved since the introduction of this instrument.

Is the initiative sustainable and transferable?
At the beginning of the TQM project an investigation of the present status was performed; its results, however, were not presented in terms of quantity. Only afterwards, that is to say after conclusion of individual subprojects and after an evaluation of the results of individual process analyses, different measurement variables were comparable. At present and above all, the duration of actions within selected ranges (trades -, water -, forest and nature protection law) is measured on the basis of an electronic procedure information system and compared region-wide with other district administration authorities ("EVI" - Elektronisches Verfahrensinformationssystem). A further measuring instrument is "CATS-ESS" (Cross Application Time System - Employee Self Service), which likewise creates possibilities of comparison with other regional administration authorities. This serves above all for the simplification and rationalisation of procedures and the simplification of the accounting of travel expenses; the data are entered directly by the employees. On the basis of these results quarterly ratios are evaluated and, among other things, consulted for a comparison and a potential reduction of the cost per unit with a set of processes. Furthermore, reports of the Independent Administrative Senate of the Land of Upper Austria are evaluated and taken into consideration as a measurement variable (decrease of redresses as a reference to a quality increase of decisions). The evaluation of the individual results points out our strengths but also possibly existing potentials of improvement. Those products where a need for action is pointed out, are submitted to a gradual process analysis with schematic display of all work steps including the interfaces to other departments. This is done via the so-called "Prozesseigner" (responsible person for individual legal procedures). For the analysis process also external persons are intended to be called in, in order to prevent any "business myopia". Further instruments for the increase of the quality, among other things, are complaint management and the optimization workshop. Meanwhile these are also implemented in other departments. Additionally it has to be stated that by the introduction of these instruments a continuing improvement is achieved particularly within the range of customer satisfaction. In particular this causes also a financial, economic and social sustainability: On the one hand, by the abbreviated duration of the procedures customers are satisfied and in consequence e.g. process costs are lowered; on the other hand, this very acceleration causes a benefit (with constant quality!) for the general public. Last not least it is also the own staff who experience themselves a quality increase in their daily work by innovations.

What are the impact of your initiative and the lessons learned?
A substantial experience in the implementation of the project was the immense importance to include both employees and executive managers in each phase as extensively as possible. It has also been proved that in many cases an even stronger integration of the employees would have been beneficial, in order to ensure the transparency, but above all the identification of everyone with the project. At first it was new to some members of the staff to consider people actually as customers with certain expectations and not just as persons to whom law must be applied. As soon as they consider these people as customers, however, they develop a substantially different access to them. Feedback cards and customer opinion polls inform us currently about the acceptance and the satisfaction of our customers. Positive feedbacks of our customers contribute to a motivation increase; negative reports point out improvement potentials which we regard and use as chances for learning. Under this aspect we also consistently work off the complaints of our customers. The more we encourage customers to give us feedbacks (by feedback cards or at customer forums) the more we are able to arrange our service performances in a customer-oriented way.


Institution Name:		Bezirkshauptmannschaft Wels-Land
Institution Type:		Government Agency
Contact Person:		Josef Gruber
Title:		Bezirkshauptmann Dr.
Telephone/ Fax:		+43-7242-618-300
Institution's / Project's Website:		+43-7242-618-399
E-mail:		bh-wl.post@ooe.gv.at
Address:		Herrengasse 8
Postal Code:		A-4600
City:		Wels
State/Province:		Upper-Austria
Country:		Austria

The Problem

Solution and Key Benefits

Actors and Stakeholders

(a) Strategies

(b) Implementation

(c) Overcoming Obstacles

(d) Use of Resources

Sustainability and Transferability

Lessons Learned

Contact Information