Empowering Front Line Employees for IQPC Ottawa 2002
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An experience of change at the U.S. Department of Labor
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Empowering Front Line Employees for IQPC Ottawa 2002
- 1. Empowering Front Line Workers An Experience of ChangeAn Experience of Change at theat the U.S. Department of LaborU.S. Department of Labor Bruce A. WaltuckBruce A. Waltuck Co-creator, USDOL Employee InvolvementCo-creator, USDOL Employee Involvement andand Quality Improvement SystemQuality Improvement System im4xlns@hotmail.comim4xlns@hotmail.com
- 2. EIQI Joint Statement of Purpose USDOL and NCFLL, August 1990 ““We recognize that ourWe recognize that our employees are our greatestemployees are our greatest asset. . .”asset. . .”
- 3. The “Dreaded ‘E’ Word” What doesWhat does EMPOWERMENT meanEMPOWERMENT mean to YOU, in YOURto YOU, in YOUR organization?organization? What SHOULDWhat SHOULD Empowerment mean?Empowerment mean? Who fears theWho fears the empowerment of front-empowerment of front- line employees the most?line employees the most? Why?Why? What can you do to trulyWhat can you do to truly empower people?empower people?
- 4. Empowerment is. . . ““Giving people meaningful input into theGiving people meaningful input into the decisions that affect them.”decisions that affect them.” Bruce WaltuckBruce Waltuck Unions, Management and QualityUnions, Management and Quality Irwin Professional Books, 1994Irwin Professional Books, 1994
- 5. Questions. . . About the U.S. Department of Labor--About the U.S. Department of Labor-- Why Did We Change?Why Did We Change? What is the EIQI Partnership System?What is the EIQI Partnership System? How Did EIQI Empower People?How Did EIQI Empower People? How Did EIQI Do?How Did EIQI Do? What Happened to EIQI andWhat Happened to EIQI and Empowerment?Empowerment?
- 6. U.S. Department of Labor P r in c i p a l O r g a n i z a t io n o f t h e U . S . D e p a r t m e n t o f L a b o r 1 0 , 0 0 0 E m p l o y e e s a t A p p r o x im a t e ly 9 0 0 W o r k s i t e s A / S e c r e t a r y A d m in is t r a t io n a n d M a n a g e m e n t A / S e c r e t a r y B u r e a u o f L a b o r S t a t is t ic s A / S e c r e t a r y E m p lo y m e n t S t a n d a r d s A d m in is t r a t io n A / S e c r e t a r y E m p lo y m e n t a n d T r a in in g A d m . A / S e c r e t a r y M in e S a fe t y a n d H e a lt h A d m in . A / S e c r e t a r y O c c u p a t io n a l S a fe t y a n d H e a lt h A d m in . E liz a b e t h D o le S e c r e t a r y o f L a b o r
- 7. National Council of Field Labor Locals National Executive Committee R e p r e s e n t in g O v e r 8 , 0 0 0 W o r k e r s a t N e a r ly 9 0 0 W o r k s it e s W it h 2 3 A ffilia t e d L o c a l U n io n O r g a n iz a t io n s R o n Y a r m a n E x e c u t iv e V ic e P r e s id e n t J a c k C u n n in g h a m T r e a s u r e r J im G r e e n e R e c o r d in g S e c r e t a r y R ic h a r d C o o n V ic e P r e s id e n t F r a n k D a n c y V ic e P r e s id e n t R o g e r J a c k s o n V ic e P r e s id e n t K e n M a g lic ic V ic e P r e s id e n t H u g h S m it h V ic e P r e s id e n t P a u l T r a c y V ic e P r e s id e n t J im W e y r a u c h V ic e P r e s id e n t J e s s e R io s P r e s id e n t
- 8. Traditional Decision-Making Command & ControlCommand & Control Management byManagement by ObjectivesObjectives Adversarial Labor-Adversarial Labor- Management RelationsManagement Relations No Mandate toNo Mandate to ImproveImprove No Accountability forNo Accountability for Change ManagementChange Management
- 9. Why Did We Change? Economic, PoliticalEconomic, Political and Social Factorsand Social Factors Productivity MandateProductivity Mandate World-wide Focus onWorld-wide Focus on TQMTQM Inefficiency ofInefficiency of Adversarial Labor-Adversarial Labor- ManagementManagement RelationshipRelationship
- 10. Elements of the EIQI System Success Leaves Clues Team-Based Approach to Decision-MakingTeam-Based Approach to Decision-Making Decisions by ConsensusDecisions by Consensus Data-Based LearningData-Based Learning Structured Approach to Problem-SolvingStructured Approach to Problem-Solving Process-OrientationProcess-Orientation (See Peter Scholtes’ “Team Handbook”)(See Peter Scholtes’ “Team Handbook”)
- 11. Elements of the EIQI System Specific DOL/EIQI Objectives Broad Employee InvolvementBroad Employee Involvement Labor-Management PartnershipLabor-Management Partnership Minimal BureaucracyMinimal Bureaucracy FlexibleFlexible Tool-kit ApproachTool-kit Approach New Leadership InfrastructureNew Leadership Infrastructure
- 12. The Legal Landscape Incentives to Cooperate Greater Leadership Commitment Broad Employee Support Increased Quality and Productivity Expand Bargaining Scope Past Legal Limits Maintain Jobs Build Better and Stronger Union
- 13. Linkage: Traditional L-MR vs. EIQI ISSUE IN CONTRACT? EIQI Team Team Decision Impact Working Conditions? IMPLEMENT Change Working Conditions? Notice to Union? Bargaining? Resolved? IMPASS..MOUIMPLEMENT <<LMR>> <<EIQI>> Y N N Y Y N N Y * * * OK to use team. Requires Waiver. Note that new issues may be given over from traditional L-MR to EIQI Note that copy of every completed team report goes to union reps before any implementation
- 14. EIQI Administration Unique Union-Management Pair StructureUnique Union-Management Pair Structure Reduced “Committees” to MinimumReduced “Committees” to Minimum Full Support of Respective LeadersFull Support of Respective Leaders One Pair for Each Principal AgencyOne Pair for Each Principal Agency Pairs Responsible forPairs Responsible for ALLALL EIQIEIQI Development and Implementation IssuesDevelopment and Implementation Issues National U-M CoordinatorsNational U-M Coordinators
- 15. Groundrules for L-M Partners No “Embarrassments”No “Embarrassments” No “Ex Parte” ActionsNo “Ex Parte” Actions No “11th Hour”No “11th Hour” DeadlinesDeadlines Shared OpportunitiesShared Opportunities No “Gotchas”No “Gotchas” Prompt RepliesPrompt Replies Can “Agree toCan “Agree to Disagree”Disagree”
- 16. The FOUR C’s Cornerstones of Partnership and Empowerment COMMUNICATIONCOMMUNICATION CONSULTATIONCONSULTATION CONSIDERATIONCONSIDERATION COMMITMENTCOMMITMENT
- 17. What Has EIQI Done? ““Win-Win” ContractsWin-Win” Contracts Serving Our CustomerServing Our Customer 10,000 Improvements10,000 Improvements Improvement TeamsImprovement Teams Saving $$$$Saving $$$$ Aligned EmployeesAligned Employees With Strategic GoalsWith Strategic Goals Provided MeaningfulProvided Meaningful Input to DecisionsInput to Decisions
- 18. EIQI Empowerment Over 200 processOver 200 process improvement teamsimprovement teams nationwide at peaknationwide at peak Front-Line leaders andFront-Line leaders and team membersteam members participating as equalsparticipating as equals with managementwith management nationwide in everynationwide in every principal agencyprincipal agency
- 19. The Legal Landscape EIQI Empowerment created in early 1990 AFGE Policy on Partnerships written late 1990 Clinton Executive Order 1993 Bush Executive Order 2001
- 20. The Rise - and Fall - of Empowerment Discontinuity -Discontinuity - Leadership changesLeadership changes Vocal advocates ofVocal advocates of POSITION-based,POSITION-based, ADVERSARIALADVERSARIAL processprocess Win/LOSE notWin/LOSE not Win/WINWin/WIN Empowerment withoutEmpowerment without accountabilityaccountability
- 21. Meet the New Boss, Same as the Old Boss Fragile trustFragile trust deteriorates asdeteriorates as obstinate leaders areobstinate leaders are not held accountablenot held accountable for progressfor progress Bush rescinds ClintonBush rescinds Clinton E.O. - partnership andE.O. - partnership and empowermentempowerment declared “dead”declared “dead”
- 23. It’s Not Over ‘til It’s Over. . . U-M Pairs continue toU-M Pairs continue to exist in agenciesexist in agencies Workforce ExcellenceWorkforce Excellence system is great successsystem is great success New DOL-NCFLLNew DOL-NCFLL CBA removesCBA removes partnership referencespartnership references Managers andManagers and employees wantemployees want empowermentempowerment
- 24. EIQI Joint Statement of Purpose USDOL and NCFLL, August 1990 ““We recognize the need to buildWe recognize the need to build cooperative and participativecooperative and participative work relationships amongwork relationships among employees, union officials, andemployees, union officials, and managers.”managers.”
- 25. Focus on Empowerment 1. Create constancy of purpose1. Create constancy of purpose 8. Drive out fear, build trust8. Drive out fear, build trust - W. Edwards Deming, The 14 Points- W. Edwards Deming, The 14 Points Listen to each other, talk to each other,Listen to each other, talk to each other, respect each other, work together to makerespect each other, work together to make things better -things better - B. WaltuckB. Waltuck
Hinweis der Redaktion
- Personally, I am most proud of the original EIQI “Joint Statement of Purpose,” which was signed by Labor Secretary Elizabeth Dole, and NCFLL President Jesse Rios. I was the principal author of this one-page proclamation, which officially gave birth to EIQI in the United States Department of Labor. Today, despite setbacks, despite the great obstacles of human resistance to change, EIQI is at the core of the Department of Labor’s positive change efforts. The labor-management partnershps fostered through EIQI have been captured in a handbook for the first time, and distributed to every employee. The EIQI system remains where other efforts have fallen. It is no accident that “Employee Involvement” comes first in EIQI.
- As with any change initiative, there were reasons why the U.S. Department of Labor undertook the development of EIQI. In this presentation, attendees will learn about the Department, its principal employee union, and the changes brought about by the implementation of the EIQI system. Likewise, this presentation discusses EIQI in detail, covering its structure, its achievements, and its current integration with the U.S. Government Performance and Results Act.
- The United States Department of Labor is comprised of nearly 20 separate agencies. Initially, EIQI was implemented in the six DOL agencies which account for about 90% of the Department’s employees outside the Washington, D.C. area. The DOL is a traditional pyramid-shaped, hierarchical organization. Through EIQI, literally thousands of employees at all levels of the organization have gained significant input into the Department’s decision-making and improvement processes.
- The National Council of Field Labor Locals is an affiliate of the American Federation of Government Employees (AFGE). The Federation is the largest Federal employee union in the United States. The approval of EIQI by the NCFLL was strongly advocated by the late John Sturdivant, President of the AFGE. John was a personal friend, and a visionary in his commitment to progressive labor-management relationships in the public sector.
- The Department of Labor, in the years before EIQI, used the “Management By Objectives” method to both set goals, and assess performance. I saw the late Dr. Deming once, and he described Management By Objectives as being “like driving a car only looking in the rear-view mirror; and how far do you think you can go driving like that?” The MBO method is in stark contrast to the TQM principles of EIQI, particularly as we work now under the Government Performance and Results Act (GPRA) system. EIQI fully aligns with GPRA.
- In the years of “Big Government,” we never thought of ourselves as being like the private sector. We never thought we had to worry about “customer focus,” and thought we had no “market share” considerations. But social, economic, and political paradigms changed. Government shrank, and we learned that only an emphasis on the improvement of quality could both enhance performance, and customer satisfaction. Our “market share” is the allotment of budgetary resources given by the Congress each year. If Congress and the citizens do not approve of our quality and services, “market share” decreases- just like any competitive private sector firm. EIQI toook full account of these factors in its design and implementation.
- We studied both successful TQM implementations, and those which had failed. We learned from both the public and private sectors. In 1989, there were just a few TQM efforts well underway in the American public sector. Despite the criticism that the U.S. Internal Revenue Service has taken in recent months, the IRS was both an early advocate of TQM, and had learned it had to build its improvement system on the foundation of labor-management partnership. By benchmarking BOTH the success AND failure of other TQM efforts, we were able to understand the common elements of the successful implementations.
- Labor-management partnership was essential to EIQI, and was a fundamental design criteria. The NCFLL was a competent and progressive union, and labor relations law in the U.S. in 1989 would have severely limited the implementation of unilateral TQM efforts affecting union constituent employees. Minimal bureaucracy was also a key. Neither management nor the union wanted to staff new layers of administrators just to run the EIQI system. Likewise, the diverse agency missions and cultures of the DOL required a highly flexible Quality Improvement approach, which EIQI provides.
- Today, the goals stated to Congress by Labor Secretary Alexis Herman fully reflect the integration of EIQI values into the Department. We clearly understand that our mission is to seek universal voluntary compliance with the laws we enforce. But now, after nearly a decade of EIQI and labor-management partnership, we also understand that we can best influence behavior towards increased quality and better service by emphasizing and building partnerships.
- Jim Armshaw and I took several months to decide what fundamental organizational structure EIQI should have. We knew the union leadership was not conversant with TQM, and many managers were also skeptical. As we considered the Quality of Work Life and Quality Circle efforts dominant in the 1980’s, we recognized the benefits of the team and consensus behaviors. From this understanding, and our practical necessities, came the idea to strip the team/committee model to its most minimal unit- a union-management pair, themselves both fully empowered to act, and fuly responsible for EIQI development and implementation in their DOL agency. This was a unique innovation in Quality Improvement, and a key contribution of EIQI.
- Jim Armshaw and I took several months to decide what fundamental organizational structure EIQI should have. We knew the union leadership was not conversant with TQM, and many managers were also skeptical. As we considered the Quality of Work Life and Quality Circle efforts dominant in the 1980’s, we recognized the benefits of the team and consensus behaviors. From this understanding, and our practical necessities, came the idea to strip the team/committee model to its most minimal unit- a union-management pair, themselves both fully empowered to act, and fuly responsible for EIQI development and implementation in their DOL agency. This was a unique innovation in Quality Improvement, and a key contribution of EIQI.
- COMMUNICATION: people talking to each other. CONSULTATION: We take the initiative, to bring new ideas or information to our partner through communication. We consult- together. CONSIDERATION: That what we say to each other is being sincerely, and thoughtfully listened to- what we say matters to our partner. COMMITMENT: to do what we say we will, to follow through, to maintain the trust and open communication that our partner deserves.
- EIQI has had a tremendous positive impact on the Department of Labor in several key areas. In labor-management relations, EIQI literally facilitated the negotiation of the first interest-based, fully-consensus Collective Bargaining Agreement in the United States Federal sector. I am especially proud to have been a principal negotiator, and signer of that 200-page agreement (every word of which was agreed to by all 22 negotiators!) The “Serving Our Customer” exercise also marked a historic breakthrough for the Department, and for EIQI. In a single month, over 90% of the DOL emplyees voluntarily participated, and created nearly 10,000 customer service improvement decisions- an achievement still unmatched in the Federal sector.
- Today, the goals stated to Congress by Labor Secretary Alexis Herman fully reflect the integration of EIQI values into the Department. We clearly understand that our mission is to seek universal voluntary compliance with the laws we enforce. But now, after nearly a decade of EIQI and labor-management partnership, we also understand that we can best influence behavior towards increased quality and better service by emphasizing and building partnerships.
- I developed a strategy based heavily on the use of public-private partnerships. By educating a room of employers and practitioners about the law and regulatory environment, I can do more to influence their behavior towards compliance. This effort implements the precepts of both EIQI and the GPRA, and has been shared with the NPRG. Today, after just two years of effort, our partnership has been called “the model for the rest of the country.” We have every one of the industry’s leading employer and employee advocacy groups working with government- not against it. We are changing the culture, on the Partnership Path.
- Personally, I am most proud of the original EIQI “Joint Statement of Purpose,” which was signed by Labor Secretary Elizabeth Dole, and NCFLL President Jesse Rios. I was the principal author of this one-page proclamation, which officially gave birth to EIQI in the United States Department of Labor. Today, despite setbacks, despite the great obstacles of human resistance to change, EIQI is at the core of the Department of Labor’s positive change efforts. The labor-management partnershps fostered through EIQI have been captured in a handbook for the first time, and distributed to every employee. The EIQI system remains where other efforts have fallen. It is no accident that “Employee Involvement” comes first in EIQI.