[The following article appears in [The_Public_Sector_Network_
News_, Winter 1995 edition, pages 12 and 14.]

           THE DESCHUTES COUNTY, OR, PUBLIC WORKS DEPARTMENT 
                          TRANSITION TO QUALITY

     Our department's journey toward a quality work culture began
over four years ago, in recognition of our customers' demands for
increased levels of service, increased service quality, and
decreased service costs. The department's 100-person work force
maintains, preserves, and constructs county roads, and disposes
of municipal solid waste generated by 90,000 citizens and
businesses. Service monies come from state gas taxes, federal
forest revenue sharing, improvement districts, and fees.
     Our foundation in the evolution to quality was W. Edwards
Deming's 14 points for quality management. Many other quality
management works that address customer service and quality were
also used. We determined that the process of change would be
evolutionary. Yet, a visit to our department and a review of our
current organization demonstrates we have been through a
revolution.
     Our organization chart is an inverted pyramid with the
customer on top and the board of county commissioners on the
bottom. Our ratio of management to employees is 1 to 16. Our
managers focus on long-range business management; coaching and
counseling; intergovernmental relations and sharing of services
with other units of local and state governments; quality
assurance; cost control; customer relations; and the level of
programs of service.
     One strategy used was to initiate and focus change at the
employee level. We have observed that those agencies attempting
transition that insist on spending a couple of years attempting
to change the attitude and behavior of managers and supervisors
are not very successful. It is easy to talk about change if you
do not have to walk the talk. Employees see no change, just
promises they consider the most recent management fad.
     Another key strategy was to gain union, county commissioner,
and personnel department support for change. A priority task was
to develop and maintain a high level of communication and trust.
Little outside assistance was sought or needed early on in the
transition except for specific training, such as conflict
resolution and probable cause recognition. One cannot take
someone else's system and import it, but ideas and strategies can
be useful.

What Has Been Accomplished

     Early changes included: The establishment of nine
self-reliant teams each based upon the provision of a common
service; the positions of supervisor and lead were eliminated
(replaced by teams); new team employees are hired by the team
(and discharged); the compensation plan was changed from a system
based upon time in service to demonstrated skills; and teams were
made responsible for team member and team performance
evaluations.
     Traditional supervisory responsibilities were delegated to
teams. Among these responsibilities were: Teams are responsible
for one-year probation evaluations and recommendations to pass or
terminate; performance evaluations and recommendations for pay
raises; first-level discipline and first-level grievance;
conflict resolution among members; work scheduling; vacation
scheduling; establishing work hours; the provision of training
and cross-training; taking the initiative and making decisions;
participation in the preparation of the annual budget; and
establishing team goals.

What We Are Doing

     Our current emphasis is on customer satisfaction; training
and certification programs; developing a quality assurance and
control program; putting into place a results measurement system;
and developing partnerships with the public and private sectors.
To this end we recently entered into a cooperative agreement with
the state Department of Environmental Quality (through a
partnering process) for implementing our solid waste management
program, including the siting of a new landfill. We have found
that partnering is a valuable tool for use not only in
construction but for improving other relationships.
     We have come a long way toward developing a quality
organization, but are acutely aware of how far we have yet to go.
We are proud of our accomplishments and will share information
with those who may see a benefit. We host visiting groups and are
comfortable with disclosing our problems as well as with touting
our successes.

Tips for a successful transition:
     The policy body, key managers, supervisors, and union(s)
must be supportive.
     The effort must have an energetic, committed, and respected
leader or champion.
     Do not expect quick results. Changing behavior is a
long-term effort; therefore the commitment to the transition must
be long-term (five years minimum).
     Expect work performance to suffer early in the transition
since employees do not know what is expected of them under a new
system and they no longer work in the old system.
     You will have problems with a few supervisors or managers;
be prepared to take action.
     Ensure timely communication with all- no secrets or hidden
agendas.
     Most employees will adopt a wait-and-see attitude; find the
positive leaders.
     Once employees are comfortable with the transition and learn
to trust management, they will become a major support base and
will drive your future successes.
     Managers and supervisors will continue to have doubts into
the third year or more.
     There is no blueprint or published time schedule for
transition that an agency can adopt.
     Each agency or department is unique and must work through
the process in its own time and in its own manner.
     Management must assure key persons that they will continue
to have a job if-.
     Victories are measured through a series of small actions
that can be accomplished and that develop trust and confidence.
     It is wise to consolidate gains and "cast them in stone" to
reduce the risk of losing them with the loss of a leader or
change in a board or union;
     Do not pit one team against another; choose an outsider as a
competitor, such as the private sector or another public agency.
     Keep a record of where you are and where you have been.
     Attempt to set up measuring systems that demonstrate change,
good or bad.
     Identify and develop a network of people who are doing
similar things, and use it.

For further information, call or write: Larry Rice, Director of
Public Works 61150 S.E. 27 Bend, OR 97707 Phone: (503) 388-6581
Fax: (503) 388-2719