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首页> 外文OA文献 >Isomorphism, institutional entrepreneurship and total quality management (TQM) : a case study in the implementation of quality management standards and excellence models in South African developmental local government
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Isomorphism, institutional entrepreneurship and total quality management (TQM) : a case study in the implementation of quality management standards and excellence models in South African developmental local government

机译：同构，制度创业和全面质量管理（TQm）：南非发展地方政府实施质量管理标准和卓越模型的案例研究

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摘要

Within the new constitutional order, South African local government has been afforded specific status and is protected as a distinctive sphere of government in terms of the Constitution Act 108 of 1996. Municipalities are no longer a mere function of national or provincial governments. In addition to this entrenched status, the Constitution and other developmental local government legislation vests local government with specific functions and responsibilities as part of the process of building a new democracy and promoting socio-economic development and upliftment. Consequently, local government managers are under constant pressure to improve the performance and quality of service delivery. They are expected to satisfy a number of stakeholders, achieve increases in efficiency, as well as attain developmental service delivery goals as contained in their Integrated Development Plan (IDP). Quality management standards and excellence models in support of the total quality management (TQM) philosophy are relatively new public management approaches that changes traditional organisational decision-making practices to deliver services to its customers in more effective and efficient ways. In essence, quality management standards and excellence models are performance management methodological practices, techniques and tools designed to meet and exceed public requirements. It accomplishes this through determining what constitutes excellence in customer service, and then empowering employees to a never-ending search for quality improvement in the delivery of services, in terms of the continuous improvement and continuous process improvement philosophies, of which total quality management (TQM) is premised on. Consequently, quality management standards and excellence models (such as the ISO 9001: 2008 QMS, ISO 14001: 2004 EMS, EFQM and SAEF Excellence Models) as methodological practices, techniques or tools in support of the critical factors (CFs) of the total quality management (TQM) philosophy, namely: (1) customer-based approach, (2) senior management commitment and leadership, (3) quality planning, (4) management based on facts, (5) continuous improvement, (6) involvement of all members of the organisation, (7) education and training, (8) teamwork, (9) communication systems, (10) learning, (11) process management, (12) co-operation with suppliers, and (13) organisational awareness and concern for the social and environmental context, can provide a framework by which to achieve the goals of effective and efficient service delivery in developmental local government, as they foster a culture of performance and accountability. Local government managers could use these quality and excellence methodological practices, techniques and tools, as a starting point to improve efficiencies in their municipalities, as the programmes afford them an opportunity to systematically evaluate the municipality and determine what leads to organisational success and deliverables. Institutional theory suggests that organisations are both influenced by and can influence the society in which they operate. Institutional theorists believe that the motivation for a change in internal practices might not only be performance related, but may primarily be to enhance or maintain the legitimacy of the respective institution. Institutional theory also focuses on the social contract that exists between the institution and society. This social contract is believed to represent the expectations of society. From an institutional point of view, it has been suggested that institutions may change and adopt the norms of society to appear legitimate to that society. This infers that when societal norms and values change, institutions will be expected to change. These societal pressures combined with legislative changes, require institutional entrepreneurs to respond to these isomorphic pressures, and will work to preserve the institution's legitimacy by incorporating, or at least appearing to incorporate, new practices, norms and values. The aim of this research study was to analyse within an institutional theory framework, the implementation of quality management standards and excellence models in support of the total quality management (TQM) philosophy and developmental local government within two South African municipalities. The research investigation has been undertaken within the social constructionist paradigm and using the case study method. Interviews and documents were the data sources and thematic analysis was used as a tool to analyse the data by applying a theory-driven coding procedure. The findings from the two research sites, namely Makana Municipality in Grahamstown and Drakenstein Municipality in Paarl reveal that the implementation of quality management standards and excellence models in support of the total quality management (TQM) philosophy in both municipalities was not a smooth process and there were many challenges such as political instability, lack of commitment on the part of the senior leadership and management, staff and skills shortages, resistance by staff to implementation and resource constraints. Institutional theory has proved to be useful in understanding why the Makana and Drakenstein Municipalities implemented quality management standards and excellence models. Because of coercive, mimetic and normative isomorphic pressures affecting the Makana and Drakenstein municipalities, change was imperative if these institutions were to remain relevant and legitimate in order to address its service delivery mandate of effectiveness and efficiency. Institutional theory provided a theoretical lens to understand and appreciate the pressures that affected the municipalities because of its new developmental mandate as encapsulated in new municipal legislation. It also assisted in understanding how institutional entrepreneurs responded to these pressures to conform. The implementation of quality management standards and excellence models in the Makana and Drakenstein municipalities was adversely affected by volatility amongst the political leadership of both municipalities. The successful implementation of these standards and models would require collective action from the political, bureaucratic and procedural entrepreneurs in order to enhance effective, efficient and accountable service delivery. However, in both the Makana and Drakenstein municipalities, institutional entrepreneurs, namely councillors and officials were not working together as a collective to implement quality management standards and excellence models. Evidence has shown that the absence of stable political leadership and noncooperation and collaboration amongst institutional entrepreneurs contributed significantly to the non-institutionalisation of quality management standards and excellence models in these Municipalities. This implies that legitimacy has not been achieved, due to institutional entrepreneurs not collaborating and collectively working with each other to implement the quality management standards and excellence models. Thus, this research study suggests that the strategic and collective role of the political and administrative leadership as institutional entrepreneurs is critical if the municipality is to achieve its aims and objectives, namely effective, efficient, and accountable service delivery in developmental local government. Recommendations in respect of future research and to practitioners have also been offered.
机译：在新的宪法秩序中，根据1996年的第108号宪法，南非地方政府已获得特殊地位，并作为独特的政府领域受到保护。市政当局不再仅仅是国家或省政府的职能。除了这种根深蒂固的地位，《宪法》和其他发展性地方政府立法赋予地方政府特殊的职能和责任，这是建立新民主制度，促进社会经济发展和振兴过程的一部分。因此，地方政府管理人员承受着不断提高其绩效和服务质量的压力。他们有望满足许多利益相关者的需求，提高效率，并实现其综合发展计划（IDP）中包含的发展服务提供目标。支持总体质量管理（TQM）理念的质量管理标准和卓越模型是相对较新的公共管理方法，它改变了传统的组织决策惯例，以更有效和高效的方式向其客户提供服务。本质上，质量管理标准和卓越模型是绩效管理的方法实践，技术和工具，旨在满足并超越公共要求。它通过确定什么是卓越的客户服务来实现这一目标，然后根据持续改进和持续过程改进的理念，授权员工进行永无止境的追求，以提高服务交付质量，其中全面质量管理（TQM） ）的前提。因此，质量管理标准和卓越模型（例如ISO 9001：2008 QMS，ISO 14001：2004 EMS，EFQM和SAEF卓越模型）作为支持总体质量关键因素（CF）的方法实践，技术或工具。管理（TQM）理念，即：（1）基于客户的方法；（2）高级管理层的承诺和领导力；（3）质量计划；（4）基于事实的管理；（5）持续改进；（6）参与组织的所有成员，（7）教育和培训，（8）团队合作，（9）沟通系统，（10）学习，（11）流程管理，（12）与供应商的合作，以及（13）组织意识以及对社会和环境环境的关注，可以提供一个框架，以实现发展中的地方政府有效和高效地提供服务的目标，因为它们可以培养绩效和问责文化。地方政府经理可以使用这些质量和卓越的方法实践，技巧和工具，作为提高市政效率的起点，因为这些计划为他们提供了系统评估市政并确定导致组织成功和交付成果的机会。制度理论表明，组织既受其经营所在的社会的影响，又可以影响其经营所在的社会。制度理论家认为，改变内部实践的动机可能不仅与绩效有关，而且可能主要是增强或维持各自机构的合法性。制度理论还关注制度与社会之间存在的社会契约。人们认为这种社会契约代表了社会的期望。从制度的角度来看，有人建议制度可以改变并采用社会规范，使之对那个社会显得合法。这表明，当社会规范和价值观发生变化时，制度将有望发生变化。这些社会压力与立法变革相结合，要求机构企业家应对这些同构压力，并将通过纳入或至少似乎纳入新的做法，准则和价值观来努力维护机构的合法性。这项研究的目的是在一个体制理论框架内分析质量管理标准和卓越模型的实施情况，以支持两个南非市政当局的全面质量管理（TQM）理念和发展中的地方政府。研究调查是在社会建构主义范式内并使用案例研究方法进行的。访谈和文件是数据来源，主题分析被用作通过应用理论驱动的编码过程来分析数据的工具。来自两个研究地点的发现，即Grahamstown的Makana市政当局和Paarl的Drakenstein市政当局表明，在两个市政当局中实施质量管理标准和卓越模型以支持全面质量管理（TQM）的理念并不是一个平稳的过程，并且存在许多挑战，例如政治不稳定，高层领导和管理层缺乏承诺，人员和技能短缺，人员对实施的抵制和资源限制。事实证明，制度理论对于理解为什么马卡纳市和德拉肯斯坦市实施质量管理标准和卓越模型是有用的。由于强制性，模仿性和规范性的同构压力影响着马卡纳和德肯斯坦的市政当局，如果这些机构要保持相关性和合法性，以解决其提供服务的有效性和效率要求，就必须进行变革。制度理论为理解和理解影响市政当局的压力提供了理论视角，因为新的市政法规中包含了其新的发展任务。它还有助于理解机构企业家如何应对这些压力以使其顺从。两个城市的政治领导层之间的动荡不利地影响了马卡纳和德拉肯斯坦市质量管理标准和卓越模式的实施。这些标准和模型的成功实施将需要政治，官僚和程序企业家的集体行动，以增强有效，高效和负责任的服务提供。但是，在马卡纳和德拉肯斯坦两个城市，机构企业家，即议员和官员，都没有为实施质量管理标准和卓越模式而集体合作。有证据表明，缺乏稳定的政治领导以及机构企业家之间的不合作与协作，极大地导致了这些城市中质量管理标准和卓越模式的非制度化。这意味着由于机构企业家未进行协作并相互协作以实施质量管理标准和卓越模型，因此尚未实现合法性。因此，本研究表明，如果市政当局要实现其目标和目标，即在发展中的地方政府中有效，高效和负责任地提供服务，则政治和行政领导作为机构企业家的战略和集体作用至关重要。还提供了有关未来研究和从业人员的建议。

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    Naidoo Pravine;

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  • 年度 2010
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