487
TOTAL QUALITY MANAGEMENT AND PUBLIC ADMINISTRATION:
THE CASE OF VILA REAL TOWN HALL
Ma ia Pa ocínia Fe ei a Sob inho Co eia
F ancisco Diniz
ABSTRACT
The quali y mo emen is based on a main idea: e e y good and se ice mus ha e he maximum
quali y. To ge o he bo om o his mo emen one has o unde s and in he i s place he implica ions
o i s assump ions and how hey e lec hemsel es upon he ins i u ions (Conno , 1997).
In mos coun ies, public adminis a ion is he economic sec o which weigh s mo e hea ily on
employmen and also he one which p oduces mo e goods and c ea es mo e se ices. Na u ally one
canno emain indi e en o his To al Quali y Managemen (TQM) mo emen in public
adminis a ion. The Go e nmen is awa e ha "quali y is now ecognized and accep ed wo ldwide as
he clien ’s sa is ac ion a an adequa e cos and an impe a i e o all public o ganiza ions (…) in iew
o he public’s and consume s’ g owing awa eness o hei igh s.” (DL n.º 166-A/99 de 13 de Maio).
In Po ugal, public adminis a ion aces new and mo e complex challenges e e yday as a esul o
economic, social and echnologic changes he coun y is going h ough.
Thus i is he aim o he p esen pape o y and answe some ques ions, namely: how can he own
hall o Vila Real cope wi h he TQM implemen a ion in a con ex o change? A e he e any obs acles
o else a ou able condi ions o ha implemen a ion?
KEY WORDS
To al Quali y Managemen , Changes, Public Adminis a ion
1. THEORETICAL FRAMEWORK
1.1DEFINING TOTAL QUALITY MANAGEMENT
E e y hing ha su ounds us asks o o ganiza ions o mee he needs o a speci ic clien ele playing hei ole in
a sys emic way while acing managemen om a global poin o iew (Sanches, s/d).
To al Quali y Managemen (TMQ) akes up again some main ideas om heo ies da ing back om he beginning
o he xx cen u y, bu i s main conce n hough is o p oduce quali y. P oducing quali y, howe e , is no longe a
no ion dealing exclusi ely wi h manu ac u ing goods o using echniques. I means now a managemen model.
The check and s a is ic con ol o ien ed quali y concep includes many unc ions such as: con inuous
imp o emen , in allibili y, pa icipa ed managemen , con inuous aining, human esou ces de elopmen , gi ing
o delega ing au ho i y, and, especially p o iding leade ship, mo i a ion and commi men oge he wi h a
s a egic ision based on planning and managemen p ocesses mean o mee he clien s’ expec a ions (Schmid e
Finnigan in Mo ei a, 2000).
CITIES IN COMPETITION
488
Implemen ing quali y managemen begins wi h ully g asping i s meaning. The quali y concep e ol es a ound
he no ions o con o mi y, adequacy and he clien ’s sa is ac ion. One way o add essing he issue is o hink
sys emically, h ough he in e ac ion o h ee a iables: p oduc , clien and use. I is om he dynamics o his
in e ac ion ha he idea o quali y ensues. Consequen ly, quali y is much mo e han jus a ew s a egies o
s a is ic echniques. Abo e all i is a ma e o deciding, which e lec s i sel on o ganiza ion wo king policies. I s
bene i s a e consis en , long las ing and pe manen .
Becke (1993 in Mo ei a, 2000) de ines o al quali y managemen as a people o ien ed adminis a i e sys em
wi h he pu pose o pe manen ly inc easing he cus ome ’s sa is ac ion a diminishing eal cos s. To al quali y is
a sys emic app oach depa ing om a high le el s a egy which wo ks ho izon ally by means o unc ions and
depa men s. I in ol es he wo ke s, supplie s and cus ome s and a ou s lea ning and he will o adap o
changes as an impo an ac o leading o o ganiza ional success.
Noel (1995 in Conno , 1997) seems o sha e hese iews abou TQM in he sense ha he inds i an a emp o
edisco e he consume . Decisions a any le el a e dic a ed by consume s’ needs and wishes so ha quali y mus
be de ined acco dingly.
We may hen conclude ha TQM is one o he main goals o any o ganiza ion and i can be eached h ough
se ing up long e m global policies o ien ed owa ds he consume in ol ing e e y single pe son and equi ing a
100% commi men on he pa o he o ganiza ion i sel .
2.2 TOTAL QUALITY MANAGEMENT AND PUBLIC SECTOR
In he eigh ies he idea o o al quali y managemen became a he popula in he Uni ed S a es as a esul o
Ame ican indus y ying o asse i sel in he global ma ke . A e a decade had elapsed, some go e nmen s
began o ealize he impo ance o quali y managemen as a means o p o ide accep able se ices. Du ing he
nine ies, because o educed budge s and he ci izens’ g owing demand o se ices, go e nmen s speeded up he
whole p ocess so ha e e y s a e and local go e nmen migh adop quali y managemen as he mi aculous
solu ion o many o hei p oblems (Rosenhoo e and Kuhn, 1996). Fo decades, says Bilhim, in mainland
Eu ope, in luenced by hei own model o public adminis a ion, he big public sec o o ganiza ions a ou ed
only e iciency which mean ca ying ou adminis a i e p ocedu es he igh way (, 2000:287). All hese
changes b ough abou he ede ini ion o public adminis a ion alues eplacing hem by he cus ome p imacy.
Swiss (1992 in Rosenhoo e and Kuhn, 1996) e e s, oo, ha despi e he public’s g owing in e es in quali y
managemen many c i ics s ill ind quali y managemen echniques used by he p i a e sec o unsui able o he
public sec o . Rosenhoo e and Kuhn (1996) belie e he main di e ences be ween p i a e and public o al
quali y managemen lie in hei ma u i y and accep abili y le els.
TQM was i s used in indus y so ha he p oduc quali y could be imp o ed. I is no su p ising hen, ha some
doub s as o i s applica ion o se ices may a ise (Swiss, 1992 in Rosenhoo e and Kuhn, 1996). Deming
answe s o hese c i icisms in his book Ou o he C isis in a chap e dedica ed o se ice o ganiza ions.
Acco ding o him, cos s suppo ed by cus ome s who a e p o ided wi h a “poo se ice” may be as damaging as
buying bad p oduc s. Knowledge abou measu ing cos s and poo se ices quan i ying quali y imp o emen ,
especially in public se ices may p o e i sel wo h he e o hough no always easy.
INNOVATIONS AND TECHNOLOGY PROJECTS AND OPERATIONS MANAGEMENT IN THE CITY DEVELOPMENT
489
Tha is why, Keeley (1992 in Wes e al, 1993) e e s TQM as a se o p inciples, ools and managemen
p ocesses o imp o e, mode nize and ende public se ice quali y mo e e ec i e. TQM is hen a p oduc i i y
imp o emen s a egy whose main ea u e is he comp omise wi h consume s’ needs. Mo e and mo e people
claim hei igh s; hey wan o ha e hei p oblems sol ed as apidly and wi h as li le cos s as possible. Bilhim
(2000) subsc ibes o he idea, adding ha ci izens’ awa eness as well as hei le el o upb inging and ci izenship
poses new challenges o public adminis a ion.
Acco ding o Galloway (1992 in Wes e al, 1993) he e a e many ways o applying TQM o public
adminis a ion, including police depa men s, i e igh e depa men s, pe sonnel managemen , anspo s, public
se ices among o he s. Sensenb enne (1991 in Be man e Wes , 1995), e e s he go e nmen s’ in e es in TQM
ansla ed in o an inc ease o TQM ini ia i es in a eas such as oad main enance, wel a e, police p o ec ion and
eme gency se ices.
Galloway concludes ha local adminis a ion may come o ind TQM e y a ac i e in he sense ha i helps
unde s anding wha a communi y needs, as well as making public adminis a ion con ain cos s and imp o e
se ices. Local adminis a ion may bene i om TQM inso a as i may become a means o inc ease
esponsibili ies, diminish e enues and he public’s cynicism ega ding ci il se an s’ skills (Sensenb enne ,
1991 in Wes e al, 1993).
TQM applica ions a e mul iple and a ied, om educing cos s in public adminis a ion o eo ien a ion
s a egies in ended o mee as e ec i ely as possible wi h he public’s needs. They a e usually designed o aise
he consume ’s o ien a ion, and as cos educe s o con ol he du a ion and pe o mance o he se ices. In
Be man’s and Wes ’s opinion (1995), howe e , many o hese applica ions do no comply wi h TQM ene s.
S upack and Ga i y (1993 in McGowan, 1995) no iced ha o all he changes he public adminis a ion had
unde gone, he e we e some pa icula aspec s ha c ea ed he oppo uni y o implemen TQM. And he i s one
had o do wi h imp o ing he p ocess. In he pas , he public sec o was no exac ly in e es ed in p o iding
e ec i e se ices. Wi h he p esen inc ease o compe i ion and he o e o eliable al e na i e se ices i el he
need o e iew i s posi ion. Mo eo e , he public adminis a ion was o ced o pay a en ion o e ec i eness and
e iciency in o de o be able o deal wi h economic p oblems.
Secondly, quali y began o be de ined by consume s who, acco ding o he public adminis a ion may be di ided
in o wo ex e nal g oups: he public in gene al and g oups o in e es s.
The hi d change e e s o he ac ha he ci il se an now has he powe o make decisions, acco ding o he
p inciple ha he wo ke is mo e likely o do hings well i he/she ollows clea ins uc ions. Go e nmen al
complexi y poin s o he need o decen alizing so ha ci il se an s espond mo e ap ly o en i onmen al
changes.
Then he au ho e e s ha decisions a e based on ac s, since ex e nal assessmen and al e na i e sou ces
mo i a e public adminis a ion o de elop a decision making a ional measu e o he han only lowe ing cos s.
Finally, he e is a likely long e m comp omise, which mus be op down i he e is o be a eally success ul
TQM implemen a ion in public adminis a ion.
CITIES IN COMPETITION
490
S upak and Ga i y (1993 in McGowan, 1995) concluded TQM may be implemen ed bo h in he p i a e and in
he public sec o ; howe e , i calls o di e en implemen a ion s a egies in o de o deal wi h di e en con ex
eali ies whe e de eloping ce ain measu es may p o e o be no easy ask.
2.3 THE CHALLENGES OF IMPLEMENTING TQM IN PUBLIC ADMINISTRATION
A diagnosis o he public o ganiza ion using app op ia e ools will assis i in app aising i s cu en condi ions,
iden i ying he na u e o he o ces which may back up as well as es ain i s e o s, and in building i s
app op ia e s a egy. I should be poin ed ou ha Deming’s 14 poin s alone a e no all ha public adminis a ion
needs; each public o ganiza ion should se up a s a egy capable o answe ing o hei unique needs (Radin e
Co ee, 1993).
Fo many o ganiza ions TQM implemen a ion en ails a ce ain change. I may ha e an impac on cul u e,
leade ship, he s uc u e o he o ganiza ion as well as o he p ocesses, and, in many cases, on all hese aspec s
a he same ime. This poin deals wi h he p inciples bea ing on he challenges o implemen ing TQM.
2.3.1. ORGANIZATIONAL CHANGE
Acco ding o Lewin (in Eh enbe g e S upa k, 1994) implemen ing TQM means unde going a p o ound
o ganiza ional change. He sugges s ha when wo opposi e o ces – one u ging o in oduce he change and
ano he s i ing o keep he s a us quo – a e equally s ong i is possible o speak o a "quasi equilib ium" which
will only be dis up ed i he o me becomes s onge han he la e .
As Lewin (in Eh enbe g e S upa k, 1994) sees i , change is a h ee s ep p ocess du ing which one has o:
a) Reduce he o ces by p o iding in o ma ion which shows he di e ence be ween ac ual and ideal
beha iou ;
b) Induce new beha iou s, alues and a i udes h ough changes in he s uc u e and in he p ocess
c) Enhance a new s a e o equilib ium by ein o cing alues, no ms and he o ganiza ional cul u e
Eh enbe g and S upa k (1994) claim he o ganiza ional cul u e is ine i able. When TQM is implemen ed, public
o ganiza ions mus be able o g asp he p ocess o change o TQM philosophy means con inuously imp o ing
he managemen p ocess. Thus (Be y: 1990) i is possible o in luence a i udes and na u ally o ob ain be e
esul s by ge ing indi iduals o do hings di e en ly.
The e o e, unde s anding he cul u al en i onmen is i al o TQM implemen a ion and by ex ension o he
success o he p ospec i e change. Figu e 1 ep esen s he le el o in e en ion equi ed o he in ended change.
Sou ce: Be y (1990:30)
Fig- 1: Cycle o Change
A i udes
Ac ion Resul s
INNOVATIONS AND TECHNOLOGY PROJECTS AND OPERATIONS MANAGEMENT IN THE CITY DEVELOPMENT
491
2.3.2 ORGANIZATIONAL CULTURE
Any o ganiza ional cul u e na u ally eac s o he impac o change and TQM and in o de o an icipa e he la e
i is necessa y o unde s and he o me .
Schein (1985 in Eh enbe g e S upa k, 1994) de ines cul u e as he collec i e knowledge sha ed by a gi en g oup
when de eloping i s capaci y o su i e in an ou side en i onmen and o manage i s in e nal a ai s. Cul u e
appea s as he solu ion o bo h he wo king g oup’s in e nal and ex e nal p oblems and is ega ded by new
membe s as a co ec way o unde s and hink, and eel hem. These solu ions ha e g adually become
assump ions ega ding eali y, u h, ime, space, human na u e, human ac i i y and human ela ionships and,
a e a while hey became so o gua an eed and lacking any sign o consciousness (Schein in Eh enbe g e
S upa k, 1994). This is how cul u e ope a es.
A long e m TQM based change o he o ganiza ional cul u e mus no igno e i s ole a ed elemen s; i should,
he e o e, include impo an alues and basic assump ions.
An impo an ea u e in any cul u e is he indi idual’s o g oup’s willingness o change. Wilkins and Pa e son
(1985 in Eh enbe g and S upa k, 1994) sugges ha cul u al change mus e lec sha ed assump ions on equi y
( he u h among membe s), compe ence (how he indi iduals’ skills con ibu e o he o ganiza ion), and
adap a ion o change ( he o ganiza ion s uc u e con ol).
These au ho s insis on he need o unde s and public adminis a ion esis ance o de ia e om adi ional ways
o doing hings and adop ing new beha iou s be o e a emp ing he change.
2.3.3 ORGANIZATIONAL STRUCTURE
The o ganiza ion s uc u e and i s ac i i y p ocessing model a e key elemen s o each objec i es and esul s in a
TQM con ex . This s uc u e should complemen cul u e and ake he p ocesses in o conside a ion, de eloping
measu es o gua an ee he consume s’ sa is ac ion and o p o ide co ec decisions based on da a and ac s.
Acco ding o B own e al (1994), o ganiza ions pass on he esponsibili y o manage TQM implemen a ion o a
hie a chy consis ing o “commi ees” and eams. In eg a ion is he key o a success ul change. When TQM is
i mly embedded in he o ganiza ion’s ope a ing p ocedu es quali y becomes one among he many wo king uni s
and eams. Ne e heless-se quali y pe o mance depends on he esponsibili ies o each o ganiza ion.
2.3.4 LEADERSHIP
Leade ship is an impo an s imulus leading o change as well as a key elemen wi hin he o ganiza ion’s cul u e
and s uc u e. As B own e al (1994) pu i , he leade plays a undamen al ole in consolida ing TQM and is
especially c i ical in showing his/he commi men .

CITIES IN COMPETITION
492
Likewise, He sey and Blancha d (1988 in Eh enbe g and S upa k, 1994) de ine leade ship as he in luence
needed o each ce ain goals and p opose a leade based leade ship model. The mo e e ec i e a leade ship is he
mo e i shows a g ea conce n abou p omo ing dialogue, pa icipa ion, and delega ion. TQM in ol es people
e enly encou aging hem i s o pa icipa e in a plan and hen o ac on hei own.
B own e al (1994) co obo a e he hesis ha in o de o implemen TQM success ully he leade should de elop
a s a egy compa ible wi h he employees’ s yle. These will wo k ha de o implemen quali y p oac i ely ins ead
o sepa a ely.
Acco ding o Wes e al (1993) i TQM implemen a ion is o be success ul, leade ship mus be up o he
challenges. I mus also be ega ded as an o ganiza ional phenomenon consis ing o a se o s a egies used by he
leade s o implemen TQM. The leade s’ asks may be desc ibed as ans o ma ional, ansac ional and
ep esen a i e (Wes e al, 1993; Eh enbe g e S upa k, 1994).
2.3.4.1 TRANSFORMATIONAL LEADERSHIP
Schon (1971 in Eh enbe g e S upa k, 1994) e e s ha he i s and pe haps mos complex ask o a leade is o
d aw he p oblem. The p ocess o knowing wha o de ine, wha decisions o make, wha goals o achie e, by
wha means is based on p oblema ic si ua ions which a e always unce ain.
A leade mus bea in mind he mission and he s a egy, he o ganiza ional cul u e and he human esou ce
managemen . When designing a new ision, a leade should line up cul u e wi h he o ganiza ional s uc u e and
encou age subcul u es which mee he o ganiza ion’s goals. The manage uses he sys em and he human
esou ce managemen (educa ion and aining p og ams, ewa d and p omo ion sys ems) o shape cul u e in such
a way as o gua an ee ha TQM implemen a ion obeys and is s ongly commi ed o he o ganiza ion’s
objec i es.
Bu s (1978 in Eh enbe g and S upa k, 1994) makes a dis inc ion be ween . ans o ma ional leade s who
“exchange hings” (usually wo k o o es) and ano he ype o ans o ma ional leade who also exchange hings
bu in a cons uc i e way, ha is, unde s anding and mee ing wi h indi idual needs. This kind o
ans o ma ional app oach is consis en wi h he TQM philosophy. Be man and Wes (1995) emphasize he ole
o he ans o ma ional leade as someone who u ns enewal in o some hing accep ed a he han ejec ed.
G ady (1992 in Wes e al, 1993) has enounced some o he mos impo an TQM ans o ma ional asks: o
sp ead in he whole o he public o ganiza ion he no ion o a commi men o he consume ; o ensu e ewa ds
leading o iden i ying consume s’ needs; o ain and help ci il se an s and manage s in se ing esponsibili ies
and using new echniques o measu e pe o mances and s udy p oblems; o inc ease coo dina ion among uni s;
and o s imula e a con inuous imp o emen o all he a eas al eady men ioned.
2.3.4.2 TRANSACTIONAL LEADERSHIP
In o de o be e ec i e ans o ma ional s a egies mus be accompanied by ansac ional ones. The la e make
su e ha TQM me hods and p inciples a e accep ed bo h by ci il se an s and o he public agen s (Be man and
Wes , 1995).
INNOVATIONS AND TECHNOLOGY PROJECTS AND OPERATIONS MANAGEMENT IN THE CITY DEVELOPMENT
493
Wes e al (1993) desc ibe his ype o leade ship ei he in e ms o willingness (accommoda ion, p omises o
u u e bene i s...) o coe ci eness (manipula ion, h ea s...). In iew o hese objec i es, ansac ional leade s
wo k o make su e ha TQM me hods, s a egies and p inciples a e adop ed by he o ganiza ions. The main idea
unde lying his leade ship is ha i is ancho ed in expec ancy heo ies since accep ing he change is a
communica ion p ocess nego ia ed be ween op managemen and he ci il se an s (Bada occo and Ellswo h,
1989 in Wes e al, 1993).
The mos commonly used leade ship ansac ional s a egies a e:
a) Top down planning;
b) A e age le el eam implemen a ion;
c) Suppo ing ini ia i es leading o speeding up se ices (Wes e al, 1993)
The i s s a egy is no highly ecommended o changing o ganiza ional cul u e. The second is he mos
commonly used and c ea es an e o owa ds ob aining success in implemen ing TQM. I is ansac ionally
impo an because i in ol es ci il se an s, op manage s and, some imes, medium manage s. The op manage
allows employees and medium manage s o implemen s a egies so ha he o ganiza ion is no h ea ened in any
way. The las one b ings abou li le changes; he e o e i is o en used oge he wi h he a e age eam
implemen a ion s a egy.
In o de o o e come employees’ esis ance o changing ce ain measu es should be consis en ly applied like
pe o mance measu es, moni o ing pe sonnel sa is ac ion, acknowledging objec i es, p omo ing he wo ke s’
de elopmen and ewa ding (Be man and Wes , 1995). Examples o pe o mance measu es a e he numbe o
uni s using TQM, he cos sa ing/ educ ion, he quan i iable inc ease in employmen and cus ome ’s sa is ac ion.
I is impo an o moni o he pe sonnel’s pe o mance o i p o ides in o ma ion as o whom and wha lies a
he bo om o hei wo ies.
2.3.4.3 REPRESENTATIVE LEADERSHIP
Rep esen a i e leade ship is he p ocess o jus i ying esul s, aims, and p ocesses as well as gaining he app o al
o he o ganiza ion s akeholde s. I implies a subs an ial educa ional e o and dealing wi h poli ical obs acles.
Be man and Wes (1995) claim ha i helps making ex e nal s akeholde s, like poli icians and communi y
g oups accep he ad an ages o TQM. Wi hou hei accep ance he ini ia i es o a ain quali y may be a ec ed
and inno a ions like TQM will no las long.
Acco ding o Wes e al (1993) his kind o leade ship can be c i ical in e ms o TQM implemen a ion o i
helps educe ime cos s, minimizes he esis ance o change among senio manage s used o adi ional sys ems,
educes in e media e s a membe s’ app ehension by ewa ding hem and mee ing wi h hei expec a ions, and
p o ides inancial suppo o TQM ini ial e o s..
Examples o his kind o leade ship a e he communi y’s sugges ions which a e o en used as a means o
minimizing p oblems and lea ning om he ex e nal en i onmen .
2.4 DIFFICULTIES IN IMPLEMENTING TQM IN PUBLIC ADMINISTRATION
CITIES IN COMPETITION
494
When a TQM p og am ails he easons o i s ailu e a e o en asc ibed o e e yone bu he execu i e s a .
Some imes i is so, bu mo e o en han no i begins wi h he execu i e s a no ge ing eally commi ed o i
(B own e al, 1994). Howe e , he e a e many o he easons why TQM ails.
Wes e al (1993) call he a en ion o he ac ha TQM is no aul less. One o i s main sho comings is ha i is
po en ially an i-democ a ic since i ocus on he consume - he one who can pay o he goods wan ed – and no
he public in gene al. F ede ickson (1992 in Wes e al, 1993) de ends ha public agencies should be esponsible
o he cons i uen s’ needs. This is pa icula ly ele an in a eas such as mo o way olls, pa ole policies, solid
was e managemen , in ela ion o which consume s’ and cons i uen s’ in e es s equen ly di e ge. Ano he
conce n has o do wi h he possibili y o TQM o cing uni o mi y upon public se ices. The no ion ha public
se ices may ac mechanically in ela ion o indi idual consume s’ needs is also e e ed by Jonhs on (1993 in
Wes e al, 1993) who s a es ha di e en o ms o beha iou mus be adop ed acco ding o he people in
ques ion so ha hei needs a e ully p o ided o . We may conclude ha TQM applied o public se ices mus
ackle people’s needs indi idually o ensu e hey a e sa is ied.
Acco ding o Be man’s and Wes ’s s udy (1995) he e a e many o he impedimen s o TQM implemen a ion
such as he adi ional adminis a i e unc ions, he need o a long e m commi men ha med by changes in he
poli ical con ex , he di icul y in ansposing expe iences om he p i a e in o he public sec o , and some imes
he misunde s anding o he eal aims o implemen ing TQM in public adminis a ion. Be man and Wes ha e
no iced ha many o ganiza ions implemen TQM inno a ions a a ce ain le el a he han ca y ou a o al
commi men wi h success.
Bowen and G eine (1991 in Be man e Wes , 1995) oo, belie e TQM implemen a ion equi es a ce ain
commi men wi h aining and adequa e ewa ds, wi hou which TQM is no easible. These au ho s e e in he
same s udy ha he need o aining on he pa o manage s and employees canno be unde es ima ed. And, o
cou se, we canno igno e he ac ha TQM implemen a ion akes a long ime o e lec i sel upon he sala ies
due o inancial cons ain s and he need o esou ces.
Radin and Co ee (1993) conside he p esence o mul iple con lic s and lobbies inside a public o ganiza ion o
be one he main p oblems ega ding TQM implemen a ion. The dominan g oup usually c ea es p oblems which
make i di icul o s abilize ela ionships. I becomes hos ile and seizes he ime o changing as i s oppo uni y
o s ike.
Fo McGowan (1995) he e a e many lessons o lea n om hese di icul ies. The i s is ha qui e o en TQM
ails because i is no unde s ood o i is misused o bo h. O ganiza ions mus be awa e ha TQM means
changing managemen p ocedu es on a sys ema ic basis, including edesigning o ganiza ional and ope a ing
s uc u es, ede ining managemen oles, lea ning know-how on he pa o employees and o ien ing
o ganiza ional objec i es.
The second is ha TQM canno be a “pa chwo k” o managemen s uc u es and sys ems due o i s con en ional
echniques. Fo he change o be bene icial, he whole o he o ganiza ion will ha e o change and no jus a
small pa o i . Public o ganiza ions mus be se iously and o ally commi ed o TQM so ha hei managemen
p ocedu es and philosophy can be eally changed o he be e . This is also he only way o a oid disc epancies
be ween aims and p ocedu es esul ing om he decision making p ocess and con ol unc ions.
Finally, McGowan conside s ha in an o ganiza ion “subjec ” o he TQM philosophy he wo ke s can
coo dina e hei ac i i ies ee om o ganiza ional impedimen s. The public o ganiza ion should consis o a
INNOVATIONS AND TECHNOLOGY PROJECTS AND OPERATIONS MANAGEMENT IN THE CITY DEVELOPMENT
495
chain o connec ed p ocesses whose end link is he consume in need o a con inuous in eg a ion, which includes
sha ing in o ma ion and collabo a ing. The way TQM is ega ded a ies conside ably, namely in wha conce ns
possible esul s and how o achie e hem. Some ci il se an s may be willing o de elop hei eam wo k and
in e pe sonal skills mo e e ec i ely bu hey usually esis quan i a i e de elopmen and analy ic asks.
3. CASE STUDY
3.1 EMPIRICAL STUDY AIMS AND METHODOLOGIES
Adap ing he p oduc i e sys em o goods and se ices o go e nmen policies’ social and economic goals needs
is some hing ha equi es quali y as an ins umen . Bilhim (2000:191) belie es ha nowadays, people would be
only oo eluc an o accep an au ho i a ian, a ogan adminis a ion di o ced om social p oblems; ins ead,
hey would demand ha public adminis a ion be he engine o he coun y’s social, cul u al, and economic
de elopmen , p o iding quali y se ices a he han a hind ance.
The Po uguese go e nmen has been imp o ing he quali y o local public se ices h ough adminis a i e
mode niza ion p o ocols wi h ci y and own halls unde Resolu ion 23/94 Ma ch 17 wi hin he echnical and
inancial coope a ion be ween cen al and local adminis a ions (Resolução do Conselho de Minis os, n.º
108/2001).
Wi h his s udy i s au ho s wish o con ey he no ion o how he municipali y o Vila Real156 can bene i om
implemen ing TQM. In his sec ion we in end o add ess he impo an ole played by bo h an o ganiza ional
cul u e and i s en i onmen and managemen p ocedu es upon he no mal unc ioning o an ins i u ion -Vila Real
own hall- in e ms o imp o ing i s se ice quali y. Namely we wan ed o check whe he he e we e a ou able
condi ions o launching a quali y p og am a a ious le els, e.g.: a consis en willingness on he pa o all
employees o se o h a p og am based on hei pa icipa ion; eadiness o esis ance o emba k on a
pa icipa ion p ocess which changes he usual ules o powe in local municipali ies; esis ance o suppo o a
p og am depending on a cul u e a ou able o eam wo k.
In o de o ca y ou his p ojec we used he case s udy me hodology. To be mo e p ecise, in July 2002 we ook
50 ques ionnai es o he own hall o Vila Real157 o be ul illed a e wa ds by a ep esen a i e sample o he
employees in he a ious depa men s. The ques ionnai e ul ilmen a e was 82%.
156 Cha ac e iza ion o Vila Real Popula ion
Popula ion A ea Popula ion
Densi y
Ac i e
Popula ion
P ima y Sec o
(% Pop. Ac i a)
Seconda y
Sec o (% Pop.
Ac i a)
Te ia y
Sec o (%
Pop. Ac i a)
Unemploymen
Ra e
49 957 378,5
Km2
132 hab/Km2 44,5% 6,5% 22,5% 70,9% 7,8%
Sou ce: INE ( Na ional S a is ic Ins i u e) (2002)
157 Vila Real Town Hall (CMVR) has abou 325 wo ke s, al hough hal o hem a e ex e nal wo ke s, ha is, hey a e no ull ime wo ke s. Thus we hink he sample is
ep esen a i e. Fu he in o ma ion ega ding Vila Real own hall
To al Expenses in 103 Eu os
Non-capi als Capi al
2000 8535 11260
2001 9418 22995
Sou ce: NSI (2002, 2003)
CITIES IN COMPETITION
502
G á ico 17 : Respos as às queixas
dos clien es
61%
37%
2%
Sim
Não
N/R
G aphic 17: Answe s o clien ’s
complain s
Yes
No
N/A
G á ico 18 : Comunicação como ac o es a égico
98
%
2
%
Sim
Não
G aphic 18: Communica ion as a s a egic
Yes
No
Sou ce: own ga he ed da a
Public adminis a ion quali y is also abou c ea ing a eedback be ween ins i u ions and he ci izens hey se e.
Use s’ sugges ions and complain s may be a aluable con ibu ion o a mo e e ec i e communica ion be ween
municipali ies and he ci izens. 61% o he own hall cle ks ha e s a ed ha he se ices espond o he clien s’
communica ions. The e is a high pe cen age o nega i e answe s hough.
Sou ce: Own collec ed da a
3.2.7 COMMUNICATION
F om he numbe o a i ma i e answe s o whe he he communica ion in he municipali y is clea and simple i
is possible o conclude ha i is done objec i ely and does no gene a e ambigui ies o misunde s andings.

INNOVATIONS AND TECHNOLOGY PROJECTS AND OPERATIONS MANAGEMENT IN THE CITY DEVELOPMENT
503
Sou ce: Own ga he ed da a
Resul s ega ding iden i ying bo h he ins i u ion and he cle ks in communica ion suppo s a e encou aging.
They e lec anspa ency ules applied o se ices ansla ed in o he ci izens’ easie access o he a ious
adminis a ion depa men s.
Sou ce: Own ga he ed da a
4. CONCLUSION
Public Adminis a ion s a egy o con inuously imp o e i s se ices should be a “consume – se ice
managemen ” consis ing o p ocessable objec i es and an o ganiza ional pe spec i e mee ing wi h he
consume s’ expec a ions: “The igh hing igh he i s ime”( Wagenheim and Reu nink, 91 in Eh enbe g e
S upak, 1994).
So ha public adminis a ion emb aces TQM a numbe o assump ions mus be ough .
1. TQM is ne e a go e nmen p io i y: o imp o e se ice quali y is ha dly a na ional p io i y.
2. TQM is no pa o public cul u e.
3. The h ea o loss o au ho i y and powe in he eam p ocess.
G á ico 19 : Cla eza nas com unicações
86%
12% 2%
Sim
Não
N/R
G á ico 20 : Linguagem simples
90%
10%
Sim
Não
G aphic 19: Clea
communica ions
G aphic 20: Simple language
Yes
Yes
No
G á ico 21: Iden i icação da
Ins i uição
96%
2% 2%
Sim
Não
N/R
G á ico 22: Iden i icação dos
uncioná ios
71%
24%
5%
Sim
Não
N/R
G aphic 21: Ins i u ion
iden i ica ion
G aphic 22: Cle k iden i ica ion
Yes
No
N/A
Yes
No
N/A
CITIES IN COMPETITION
504
Acco ding o Shoop (1991 in Eh enbe g and S upak, 1994) public o ganiza ions a e seldom a aid o loosing
cus ome s o consume s. Incen i es o inc easing quali y and imp o ing consume s’ sa is ac ion a e usually
was ed on hem. Top manage s and in e media e s a p e e secu i y and i hey eel h ea ened i is no likely
hey will adhe e o TQM philosophy.
In he las couple o yea s, howe e , Po uguese Public Adminis a ion has shown signs o wishing o change.
P esen ly o y and make Po uguese Public Adminis a ion mo e o e and equipped is se ing he pa h o a
ci izen o ien ed public se ice cul u e. In he a ious public o ganiza ions leade s will ind many compe ences,
esponsibili ies and oppo uni ies ha only pe se e ance will make possible o o e come.
We ha e ied o see how i is i al o any Adminis a ion o be able o coun on a solid, dynamic and cohesi e
wo king eam ee om he excessi e weigh o hie a chical leade s. To igno e his may be o condemn he
o ganiza ion o ailu e. I is necessa y o dialogue wi h he wo ke s, o delega e asks, o communica e e ec i ely
in o de o gain he us o he a ious eams.
In he speci ic case o Vila Real own hall, and acco ding o he esul s o he empi ical s udy, he e is s ill a long
way o go in wha conce ns dialogue, in o ma ion, and communica ion. Top down communica ion should also be
encou aged o i we a e o ha e quali y se ices he in o ma ion mus ci cula e and cle ks mus be able o
communica e wi h hei supe io s. Ano he aspec o be de eloped is he pe sonal con ac p ac ice in he sense
ha i imp o es he se ices o he clien s. Once again he leade plays a c ucial ole in es ablishing a ela ionship
be ween he clien and he echnician which will help know he o me s’ needs be e .
Finally, he e is no o ganiza ional cul u e in he municipali y o Vila Real. Ye , i is an impo an ea u e which
dis inguishes a success ul ins i u ion. I he cle ks do no ully g asp he o ganiza ion cul u e i will be e y
di icul o imp o e quali y se ice in Vila Real own hall.
We a e con inced ha his municipali y has enough, ela i ely impo an ea u es which call o he
implemen a ion o a quali y managemen sys em. In wha conce ns a ou able condi ions o c ea e such a
p og am, i is ou belie ha he e is s ill a long way o go. Al hough he e is an appa en willingness on he pa
o all he cle ks o adop TQM philosophy, a s ong esis ance is also o be expec ed since i would mean
changing he usual ules, ha ing cle ks and hei supe io s pa icipa ing in he p ojec and, abo e all, iden i ying
and ecognizing an o ganiza ional cul u e which s ill does no exis . We hink he solu ion o his in ol es
Pa icipa ion a he han Hie a chy; Coope a ion a he han Independence. I is necessa y o a ou he spi i o
enewal, de ending alues such as e ec i eness, e iciency, and quali y; abo e all i is impe ious o assume an
“i e e sible commi men o quali y in a con inuous and g adual enewal p ocess” (Go e nmen Resolu ion no
108/2001).
REFERENCES
Be man, E.; Wes , J. (1995): “Municipal commi men o To al Quali y Managemen : a su ey o ecen p og ess”, Public Adminis a ion
Re iew, Washing on.
Be y, Thomas (1990), Managing he To al Quali y T ans o ma ion, McG aw-Hill, New Yo k.
Bilhim, João (2000), Ciência da Adminis ação, Publicação da Uni e sidade Abe a, Lisboa.
B own, M.; Hi chock, D.; Willa d, M. (1994), Why TQM ails and wha o do abou i , I win-P o essional Publishing, New Yo k.
Conno , Pa ick E. (1997), To al Quali y managemen : a selec i e commen a y on i s human dimensions, wi h special e e ence o i s
downside, Public Adminis a ion Re iew, Washing on.
INNOVATIONS AND TECHNOLOGY PROJECTS AND OPERATIONS MANAGEMENT IN THE CITY DEVELOPMENT
505
Eh enbe g, R.; S upak, R. (1994), To al quali y managemen : i s ela ion o adminis a i e heo y and o ganiza ional beha io in he public
sec o , Public Adminis a ion Qua e ly, Randalls own.
McGowan, Robe (1995), To al Quali y Managemen : lessons om business and go e nmen , Public P oduc i i y & Managemen Re iew,
San F ancisco.
Mo ei a, Ka hia (2000), A implemen ação dos p incípios da Ges ão da Qualidade To al na ges ão dos ecu sos humanos: es udo de caso,
Disse ação de mes ado da Uni e sidade Fede al de San a Ca a ina, San a Ca a ina.
Radin, B.; Co ee, J. (1993), A c i ique o TQM: P oblems o implemen a ion in he public, Public Adminis a ion Qua e ly, Randalls own.
Rosenhoo e , D.; Kuhn, H. (1996), To al quali y managemen and he public sec o , Public Adminis a ion Qua e ly, Randalls own.
S upack, R.; Ga i y, R. (1993), Change, challenge, and he esponsibili y o public adminis a o s o o al quali y managemen in he
1990s: A symposium, pa 2, Public Adminis a ion Qua e ly, Randalls own.
Wes , J.; Be man, E.; Milako ich, M. (1993), Implemen ing TQM in local go e nmen : he lide ship challenge, Public P oduc i i y &
Managemen Re iew, San F ancisco.
DL n.º 166-A/99 de 13 de Maio.
INE (2002, 2003), Anuá io Es a ís ico da Região No e.
Resolução do Conselho de Minis os n.º 108/2001.