Authors: Maria Rammata, Eleftherios Antonopoulos, Odysseas Kopsidas

Title: The Common Assessment Framework in practice: a performance enhancing tool or a box-ticking formality? Evidence from the Greek public sector

Abstract

Extended abstract (500 words)

The Common Assessment Framework (CAF) is based on the principles of Total Quality Management (TQM) and is a tool for improving the performance of public organizations. In the context of its implementation, the core element is the self-assessment of organizations and staff, the preparation of an improvement plan based on the evaluation and its implementation.

During the last decade, the Greek public sector has been placed under external and domestic pressure to overhaul its structures and improve performance. In light of these challenges, it is important to ask if CAF can effectively contribute to quality improvements. Hence, this paper examines and discusses critically CAF implementation in the Greek public services. The existing literature on CAF applications is reviewed and fieldwork interviews are used to provide empirical testing in six of the CAF applications.

Analyses of CAF applications are divided into three parts, following a three-step adaptation model. Thus, the first step concerns the mapping of the ex-ante situation before the introduction of the CAF to the organisation and the presentation of the institutional and legislative framework governing the CAF in Greece. In the second part, in-depth examination of administrative change induced through the implementation of the CFA in the organization units is conducted. In the third part, progress of implementation in the selected public services is assessed and recommendations for improvement are made. Conclusions and lessons learned from CAF implementation are presented.

Findings show that in the majority of cases studied, CAF has been a first-time application of quality management principles and thus introduced performance measurement and improvement action plans. Additional positive findings include the introduction of novel practices in the context of organizations studied, such as staff satisfaction measurements, as well as the documentation of actions and the bottom-up promotion of the drive to achieve excellence in the organization. However, the spread of the tool across and within public service organisations remains limited so far, and many responses attest to the piecemeal approach followed in many cases, and perceived weaknesses of abstract, catch-all sub-criteria designed to cover all types of services. An important issue that has emerged from fieldwork interviews, is the alleged lack of strong top management commitment to the application of CAF, which leads to discontinued efforts without connection with a quality policy. Key recommendations include the need to strengthen policy coherence and coordination on public service performance measurement and its link to quality policy, to provide further incentives for CAF applications and promote a standardised approach, which could pave the way for quality accreditation of the organisations involved.

Keywords: Common Assessment Framework, Total Quality Management, Greek public sector, performance assessment criteria, self-assessment

JEL classification codes

H110 Structure, Scope, and Performance of Government

Abstract (no more than 200 words)

The Common Assessment Framework (CAF) is recognised as a tool for improving the performance of public bodies based on the principles of Total Quality Management (TQM) (e.g. measurement, Key Performance Indicators (KPI), assessment, standardized procedures, etc.). Organisational self-assessment constitutes a key element in its application and it enhances the integration of essential management principles in the every-day working routine of public services. During the last decade, the Greek public sector has been placed under external scrutiny and domestic pressure to overhaul its structures, improve its overall performance and upgrade its positive impact on the socioeconomic development. In light of these challenges, it is important to discuss if CAF and under what conditions can effectively contribute to introduce quality improvements in the Greek public sector. Hence, this paper examines and discusses critically CAF implementation in specific Greek public services, e.g. a general hospital A&E department, a recruiting office, and a general directorate of a central government ministry. The existing literature on CAF applications is reviewed and fieldwork interviews are used to provide empirical testing in three of the CAF applications. Findings show its limited spread so far, the piecemeal approach followed in many cases, and perceived weaknesses of abstract, catch-all sub-criteria designed to cover all types of services. However, in the majority of cases studied, CAF has been the first application of quality management principles and thus introduced performance measurement tools and improvement action plans. Key recommendations include the need to provide incentives for CAF applications and promote a standardised approach, which could pave the way for quality accreditation of the organisations involved.