ISO 9000 In The Civil Service of Malaysia

1. Malaysia and the ISO 9000 Standards

Malaysia with a population of about 22 millions people. Malaysian economy depends largely on the manufacturing industry.

Manufacturing organizations in Malaysia have been implementing ISO 9000 standards since the International Organization for Standardization (ISO) first published the first edition of the standards in 1987. The first ISO 9002 : 1987 certification was awarded on 19 October, 1998 to a tyre manufacturing factory. This certificate was issued by SIRIM, (Standards & Industrial Research Institute of Malaysia), formerly the National Standard Institution in Malaysia.

The ISO 9000 standards has gained widespread acceptance among organizations in the Malaysian private sector and more than 6,000 ISO 9000 certifications had been awarded.

2. Excellent Work Culture in the Civil Service

Since launching the Excellent Work Culture movement at the end of 1989, the Malaysian Civil Service has been undergoing a process of reformation and transformation in its efforts to change the mindset of civil servants, and to institutionalize a culture of excellence.

As a result, various strategies and improvement programmes were implemented to achieve organizational excellence. These included :

• adoption of the Total Quality Management (TQM) approach to meeting customer requirements;
• training in human resource development to produce skilled workers who can manage the improvement programmes effectively;
• streamlining, simplifying and eliminating procedures and regulations deemed cumbersome by the private sector;
• implementation of an extensive computerization programme to enhance the efficiency and productivity of Government system and move towards a paper-less civil service; and
• adoption of ISO 9000 by the entire Malaysian Civil Service.

3. The Objective of Implementing ISO 9000 in the Civil Service

On 1 November 1995, the Government of Malaysia decided that the Civil Service should implement the ISO 9000 standards.

The Malaysian Government believes that the universally accepted ISO 9000 standards can contribute significantly to improving quality, enhancing development of an excellent work culture, leading to a more systematic management of quality, and provides a means of consolidating quality management systems in the Civil Service.

Furthermore, under the Malaysian Incorporated Concept, a primary function of the Civil Service is to facilitate the growth of the private sector. In discharging this function, it is only proper that the Civil Service implements the ISO 9000 standards which had been widely adopted by the private sector that it serves.

The former Prime Minister of Malaysia, Honourable Tun Dr. Mahathir Mohammad, in his speech delivered at the Second Commonwealth Association for Public Administration and Management (CAPAM) Biennial Conference in Malta on 21 April 1996, emphasized that the quality of an effective government administration cannot be lower than that of its clients – specifically the private sector.

On 11 July 1996, Development Administration Circular No. 2/96, was launched as a next step in improving quality in the Malaysian Civil Service. DAC No. 2/96 provided guidelines for the implementation of the ISO 9000 Quality Management System in the Malaysian Civil Service. It was envisaged that as Malaysia moves into the Second Millennium, every Malaysian Government Agency should have at least one core business process certified to one of the ISO 9000 Quality Management System models.

The Government developed a schedule by which the entire Malaysian Civil Service was expected to have adopted ISO 9000 by the year 2000. Then, the staff strength of the Civil Service stood at over 800,000 and it compassed 781 Government Agencies comprising 24 Ministries, 114 Federal Department, 52 Federal Statutory Bodies, 13 State Secretariats, 128 District Offices, 145 Local Authorities, 9 Resident Offices, 239 State Departments and 57 State Statutory Bodies.

4. Implementation Responsibility

The Malaysian Administrative Modernization and Management Planning Unit (MAMPU) in the Prime Minister’s Department and the National Institute of Public Administration (INTAN) were assigned as lead agencies in implementing ISO 9000 in the Malaysian Civil Service.

MAMPU’s functions are to:

• act as the secretariat for the National Steering Committee for the implementation of ISO 9000 in the Malaysian Civil Service ;
• provide consultancy services to Government Agencies which are implementing ISO 9000 act as the second party auditor for Government Agencies; and
• augment INTAN in providing training to agencies in the area of awareness and appreciation of ISO 9000 and documentation skills.

INTAN’s principal function in the ISO 9000 implementation programme is to provide awareness and appreciation training programmes to all Government Agencies as well as documentation skills, and training in internal quality audit.

At the agency level the heads of the respective agencies are responsible for the successful implementation of the programme.

5. Implementation Strategy

The strategy and plan for implementing ISO 9000 in the Malaysian Civil Service can be divided into four groups of activities as follows:

• Promotion of ISO 9000;
• Developing and upgrading skills in consulting, auditing and documentation training for MAMPU and INTAN officers;
• Training for Government Agencies; and
• Implementation in Government Agencies.

5.1. Promotion of ISO 9000

The first phase of the implementation programme started with promotion activities. It was to emphasize commitment building by increasing awareness among civil servants on the rationale and importance of implementing ISO as well as providing an understanding of the concept and focus of ISO 9000.

The preparation of comprehensive guidelines embodied in DAC 2/96 entitled “Guidelines for Implementing ISO 9000 in the Civil Service” was done. These guidelines were launched by the Chief Secretary to the Government on 11 July 1996. DAC 2/96 was circulated to all Secretaries General of Ministries, Heads of Federal Departments, Heads of Federal Statutory Bodies, Honorary State Secretariats and Local Government Authorities and is also available on the Civil Service Link (CSL) which is a government on-line information service for easy reference by user agencies. The guidelines assisted ISO 9000 implementation in several ways by :

• reflecting the commitment of the Government.
• serving as a medium to explain ISO 9000 and its implementation.
• clarifying some of the issue confronting the Civil Service during adoption of ISO 9000.
• emphasizing the responsibilities of all levels of personnel to be involved in the process.

In conjunction with the launching, an exhibition to provide information on ISO 9000 was held. MAMPU published a tri-monthly newsletter entitled ‘Forum ISO 9000’ to report the latest developments relating to ISO 9000 in the public sector. The newsletter served as a medium for the exchange and sharing of knowledge and experiences related to ISO 9000.

5.2. Developing and upgrading skills in ISO 9000 consultancy and auditing

In the implementation of the ISO 9000 standards in the Civil Service, MAMPU had been given the responsibility of providing consultancy services to Government Agencies as well as carrying out second party audits. To ensure that this responsibility is carried out effectively, MAMPU officers responsible for these tasks were trained in the related fields. An ISO 9000 unit was set up for this purpose. MAMPU and INTAN officers were given the appropriate training and exposure to function effectively as ISO 9000 consultants, auditors, and trainers.

5.3. Training for government agencies

This phase began in early 1997 and was devoted to training. MAMPU and INTAN performed this training task. The target groups trained were top management and officers at the middle management level who are directly involved in implementing ISO 9000. Three types of training packages, that is awareness training, documentation skills training, and internal quality audit training were conducted.

Awareness training was aimed at providing exposure and understanding to top and middle management on the ISO 9000 standard as well as guidance on how to prepare detailed implementation plans. Each training session was for a duration of one day. This training programme was completed by January 1997.

Documentation skills training, on the other hand, was meant specifically for core groups who had been assigned the responsibility of implementing ISO 9000 in their respective agencies. Emphasis was on equipping these groups with the required skills and knowledge particularly in documentation. A special training package was developed for this purpose. Skills training sessions were also held for officers from other training institutions to enable them to conduct training for their own target groups. The skills training sessions commenced in early 1997 and each session lasted for a duration of five days.

Training in internal quality audit was conducted specifically for officers responsible for conducting internal quality audits in their respective agencies. Each training session lasted three days.

Agencies also utilized the services of ISO 9000 consultants, when the needs arise.

5.4. Implementation in government agencies

The third phase involved the actual implementation of the ISO 9000 standards in Government Agencies. Implementation of ISO 9000 in the Civil Service was carried out in two stages.

In the first stage, all Government Agencies were required to develop an action plan that would ensure the effective implementation of at least one core ISO 9000 process by the year 2000. This served as a learning experience that would eventually enable agencies to implement the standard throughout their organization.

To implement ISO 9000, agencies could obtain consultancy services from MAMPU or from private consultants. However, agencies wishing to engage private consultants were required to obtain approval from the ‘Committee on the Selection and Appointment of Consultants’ chaired by the Director-General of MAMPU.

6. Implementation Issues

The implementation of ISO 9000 in the Malaysian Civil Service presented enormous challenges to MAMPU and INTAN. Although there were some public sector organizations, which had been certified to the ISO 9000 models, there was an apparent lack of reference materials for guidance on implementing ISO 9000 in the Civil Service as well as a general lack of literature regarding ISO 9000 in service organization. Thus, the implementation of ISO 9000 was a learning process for MAMPU and INTAN. The implementation issues may be summarized as follows:

6.1. Interpretation of ISO 9000 for civil service organizations

The ISO 9000 Quality Management System model is generic and can be applied to both the manufacturing and service industries. Nevertheless, as the model and guidelines originated from a manufacturing and product-oriented environment, the terminology and conceptual application of the requirements embodied in the 20 elements of ISO 9001 (1994 Edition) need to be interpreted in the context of a Civil Service organization. In order to overcome this difficulty, MAMPU and INTAN established a strong working partnership, particularly in the sharing of knowledge and experiences. In addition, officers were sent for training and exposure in all areas related to ISO 9000 consultancy and auditing. At the same time, the assistance of experienced private sector consultants was sought.

6.2. Management commitment

The successful implementation of ISO 9000 in any organization necessitates the absolute commitment of management. This is a prerequisite without which there is no possibility of achieving and maintaining the ISO 9000 certification. In order to build this commitment, the programme of “creation of awareness and commitment " focused not only on the top management of public sector agencies but was extended to the staff of the agencies. This approach is in line with the concept that “quality is everybody’s business”, not just the task of the Chief Executive Officer. Such an approach is also necessary to support the creation of a quality culture.

6.3. Personnel constraints

With more than 800,000 public sector workers and more than 780 agencies to be attended to, the training, consultancy, and auditing requirements were indeed daunting. To overcome the personnel constraints in meeting these requirements, permission was given selectively to agencies to engage private consultants as well as private certification bodies for third party audits especially for those agencies, which have dealings with foreign organizations. In addition, a training of trainers programme was established for other Government training institutes for their respective target groups.

6.4. Integrating ISO 9000 documentation requirements with existing documentation

Although there is an enormous amount of documented Government policies, procedures, work instructions and records, ISO 9000 implementation requires some additional documentation and records. If there is organization-wide certification, then it only involves the integration or merging of the documentation. However, if only one process or one section of the agency is certified, then both sets of documentation, that is, the existing document as well as the new ISO 9000 documents, will need to be maintained. In order to minimize the amount of documentation, personnel must be well trained in documentation skills and where possible reduce the number of documents. The burden of documentation may be reduced in the future as the Government has creating an “Electronic Government”.

6.5. Management of change

The implementation of ISO 9000 will also involve change with regard to work culture in the Civil Service. This change needs to be managed, particularly at the agency level by the respective agency’s management. Therefore, managers of Government Agencies must play the role of change managers. They will have to be equipped with the knowledge and skills to manage change.

7. Monitoring the Progress of the Programme

The progress of ISO 9000 implementation in the Civil Service was monitored closely by the Government through first party internal audits of the Government Agencies, followed by second party Compliance Audits conducted by MAMPU. Agencies found to have complied with all the requirements of ISO 9000 were issued with a "Malaysian Civil Service ISO 9000 Certificate", registered by MAMPU. The audit report presented findings on the evaluation of the overall performance of the agency. Some Government Agencies with international linkages applied for third party audit to secure international recognition of their quality system. Table 1 shows status of implementation until 14 August 2001.

Table 1. Status of ISO 9000 Implementation (until 14 August 2001)

8. Migration to the ISO 9000 : 2000

With the publication of the third edition of the ISO 9000 (that is, the year 2000 version), a decision was made in the Meeting of the Panel for Development of Public Administration (PANEL) on 8 December 2002 whereby it was stipulated that all Government agencies should migrate to the ISO 9001:2000 standard.
The Civil Service has taken steps to migrate to the ISO 9001:2000 standard with the launching of Development Administration Circular Letter No. 2 of 2002 entitled “Guidelines for the Implementation of ISO 9001:2000 in the Public Service”. All Government agencies that have been certified with ISO 9000:1994 standard can migrate to the ISO 9001:2000 standard. Agencies whose ISO 9000:1994 certificates have expired are required to continue with the implementation of the Quality Systems in place pending the ISO 9001:2000 standard.
An official letter outlining policies on the Implementation of ISO 9001:2000 in the Public Service was circulated to all heads of Government agencies to facilitate them in the implementing the ISO 9001:2000 standard.

8.1. Policies on the implementation of ISO 9001 : 2000

The following policies were adopted :

• All Government agencies can migrate to the ISO 9001:2000 standard from the year 2003;
• For the year 2003, MAMPU will no longer entertain request for audits to the ISO 9000:1994 standard;
• Government agencies can obtain awareness training, training on documentation and Internal Audit training from INTAN;
• Government agencies are also permitted to appoint private consultancy firms for the purpose of awareness training, training on documentation and Internal Audit training. The selected consultancy firms have to be registered with the Ministry of Finance and be on MAMPU’s list of ISO 9000 Consultants. Approval for the appointment of consultants should be obtained from MAMPU prior to the appointment.
• Agencies that are implementing ISO 9000 for the first time are required to select a scope that reflects their core function and must be approved by their top management before forwarding it to MAMPU;
• Government agencies are permitted to appoint private Certification Bodies to conduct audits for the purpose of ISO 9001:2000 certification. These private Certification Bodies are required to register with the Ministry of Finance and accredited by the Department Of Standards Malaysia. The appointment of these certification Bodies has to be communicated to MAMPU. Agencies are required to forward a copy of their ISO 9001:2000 certificates to MAMPU for purpose of informing the PANEL.
• All expenses incurred for the appointment of private Consultancy Firms and Certification Bodies have to be borne by the respective agencies. The appointments should adhere to purchasing regulations stipulated by the Ministry of Finance.

8.2. Steps for the implementation of ISO 9001 : 2000

In assisting the Government agencies in implementing ISO 9001:2000, MAMPU developed a road map or “Steps in the Implementation of ISO 9001:2000 In the Public Service”, with detailed explanation of the steps involved. By understanding the steps involved, agencies could plan effectively the ISO 9000 implementation programme in their organization. The main activities involved in the implementation of ISO 9001:2000 are as follows ;

• Exposure to the ISO 9001:2000 standard
• Selection of the Scope for Implementation
• Conduct of Gap Analysis
• Preparation of Quality Manual, Procedures and Work Instructions
• Internal Audit
• Implementation of ISO 9001:2000 Quality Management System
• Auditing for the purpose of Certification

8.3. Other requirements in the implementation of ISO 9001 : 2000

Other requirements are :

• Department Heads must chair the Management Review Meetings
• Management Review Meetings must be held at least twice yearly
• Internal Audits must be conducted at least twice yearly
• The Quality Management System must be documented with a Quality Manual, Quality Procedures for core processes, Quality Procedures for administrative and supporting services, and Work Instructions.

8.4. Progress of the migration to ISO 9001 : 2000

With the decision to implement the ISO 9000 :2000 standard, many Government agencies have taken the initiative to migrate or implement the ISO 9001:2000 standard. As of 13 January 2004, a total number of 199 agencies have migrated or implement the new standard. See Table 2.

Table 2. Status of ISO 9001 : 2000 Implementation (as of 13^th January 2004)

9. Conclusion

The implementation of ISO 9000 represents an additional step forward in the continuing process of creating a quality Civil Service for the Malaysian Civil Service. ISO 9000 focuses on the management process that delivers the product or provides the service to the customer. It does not define the quality of the product or the service. Thus, it is recognized that ISO 9000 is necessary but an insufficient condition for the provision of quality Civil Service. In order to consistently provide quality Civil Service the Malaysian Civil Service will augment the quality management system based on the requirements of ISO 9000 with TQM tools and best management practices.

Acknowledgements

The author would like to thank Ms. Alene Yong Shio Ping for her assistance in proof-reading this paper and verifying the facts contained in it.

References

• Government of Malaysia (1996), Guidelines for the Implementation of MS ISO 9000 in the Public Service, Development Administration Circular No. 2 of 1996, Prime Minister’s Department
• Government of Malaysia (1996), The Civil Service of Malaysia : Towards Excellence Through ISO 9000, Malaysian Administrative Modernisation and Management Planning Unit, Prime Minister’s Department
• Government of Malaysia (1997), Additional Guide On The Implementation of MS ISO 9000 Certification Scheme for Quality Systems of Government Agencies, Development Administration Circular Letter No. 1 of 1997, Prime Minister’s Department
• Government of Malaysia (2002), Guidelines for the Implementation of ISO 9001:2000 in the Public Service, Development Administration Circular Letter No. 2 of 2002, Prime Minister’s Department
• Mahatir Mohammad (1996), Speech by the Prime Minister of Malaysia, at the Second Commonwealth Association for Public Administration and Management (CAPAM), Biennial Conference (21 April 1996), Malta
• Muhammad Rais Bin Abdul Karim (1997), ISO 9000 in the Pubic Service of Malaysia, a paper presented at the 9^th ASEAN Conference on Civil Service Matters (30 June – 4 July 1997) in Singapore
• Musalmaih Binti Haji Asli (1998), Entire Malaysian Civil Service Adopt ISO 9000, Forum MS ISO 9000 for Public Service, No 1/98, January / February 1998.
• Yong, Kok Seng (2002), ISO 9000 Implementation in the Civil Service of Malaysia, a paper presented at the 9^th National Convention of Quality (3 & 4 October 2002), Fiji National Training Council, Fiji

Kok Seng Yong

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