Khairulanwar Bin Ismail & Muhamad Haziq Bin Zaini Alamar

1.0 Introduction

The challenges facing by governments are becoming increasingly more complex due to

technological and cultural changes, demographic shifts, and the ever faster movement of money,

goods and people. Governments globally are also encountering greater fiscal constraints,

economic uncertainties, declining effectiveness of standard practices and procedures, as well as

difficulties in attracting and retaining top talent. Increased affluence and exposure to global

services has led to more sophisticated demand and rapidly rising expectations from the public,

further escalating challenges in public service delivery.

An important part of addressing these challenges requires adapting to new models of service

delivery that are better suited to today’s technologies, norms and citizen needs. These new

delivery and service requirements provide a clear opportunity for the Government to reform in

order to be more cost-effective and better equipped to meet the demands and expectations of the

public for 2020 and beyond. This will also require the public sector to be leaner, facilitative,

more efficient, more productive, more skilled, more open, more innovative, and less

bureaucratic, in order to better deliver for the public and for Malaysia.

In this study, we choose Immigration Department of Malaysia to measure how the public service

deliveries work as government agencies who serve public. From the study, it expected how the

immigration department manage their service delivery either it provide benefit to the public or

having better future as a public services delivery for improvement.

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2.0 The Public Service Delivery

The needs of improvement in administration is to improve the effectiveness and efficiency of the

government as a whole and the civil servants as a backbone of the government in implementing

the policy regulated by the government in order to make sure the public gets the good service in

term of education, health, economy , social and etc.

As a general, the public service delivery is meant the improvement of administration, in which

may perform in conflict situation, to specific remedies for administration and values each ideas

and suggestion for better government and acts according to their own recipe in ( Caiden, 1969).

On the other hand, in enhancing the public administrative capability in achieving the national

development goals, a systematic and integrated step is brought in making the fundamental

changes to the public administration (Hanh, 1970).

2.1 Evolution of Public Service Delivery in Malaysia

In begin on 1960’s, the government of Malaysia has come out with the several

initiatives under the public service delivery improvement, the list of the programs

introduced by the government is Rural Development Program (RDP), The Red Book,

First Malaysia Plan (1960-1970) and The Mongtgomery-Esman Report. The existence of

RDP is to assist and helps the rural areas, and maintains the areas that lived by

indigenous people and preserved their population. Under the development plans made by

the government, which the First Malaysia Plan (1956-1960) and the Second Malaysia

Plan (1961-1965), through this plans, the agricultural development is promoted by the

government in improving the economy of people that lived in rural areas especially for

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the farming communities (Malaya 1961, Chee 1979). In RED Book, it focuses on

providing basic infrastructure and institutions such as electricity, water, school and

others.. Under RED Book, to ensure rapid growth of rural development, FELDA and

RIDA were establishing. Meanwhile, in 1966 Montgomery was present their report and it

mentioned about recommendation to Malaysia government to change their approach from

maintenance administration to the development administration.

In seventies era, it is a necessary for Malaysia civil service to begin development

programs to ensure effectively and efficiency of services. It begins with establishment of

Development Administration Unit (DAU). It was under Prime Minister Department with

the purpose is to providing operation style and focus on development. Its function is to be

agents of enhancement and improving administration as well to improve public services.

In 1971, New Economic Policy (NEP) was introduced and it brought Malaysia to new

modernization era (Rais, 1995). This policy is transforming public services to a new

institution whereby it expands the function and competes with private sector.

Furthermore, this policy focuses on upgrading the knowledge of public servant to

effectively in dealing with public (United Nation, 1995). It is whereby DAU play a role

in preparing long and short term plan for civil servant to improve. This plan leaf to

establishment of National Training Institute (INTAN) in 1972 and succeed in training

civil servant in improving their skill and knowledge. In this era, Public Complaint Bureau

(PCB) also established to allow public complains about civil service so it can improve the

effectiveness of the services and public trust.

In eighties era, the enhancement of public service delivery begin when New Public

Management (NPM) was introduced. NPM is started along with Look East Policy (1982)

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and Privatisation Policy (1983). This two policies change the way of Malaysia public

service. For Look East Policy, it applies how Japan and Korea manage their public

services such as decentralization management, focus on quality and treat employees

better (Rais, 1995). For privatization, it reduce burden of government through shift the

management of organization through privatization. The purpose of NPM is to enhance

the public service delivery. The alternative such as leadership by example, punch card

system will improve the public service performance as well in service public.

In nineties era, the administration is in the right track to be improved. It focuses on

achieving vision 2020. Hence, National Development Policy (NDP) was introduced. In

this era, government focuses to develop Malaysia totally in various aspects. It is the

reason quality of service become priority to the services. TO ensure the quality, TQM,

quality day, ISO 9000 and others is introduce to enhance quality in public services. First

reform in this era is downsizing the civil services. For instance, between years of 1992 to

1997, there are 570 agencies were review and restructured. Sistem Saraan Baru also was

introduces as standardize the salary system in Malaysia during nineties. Meanwhile,

Multimedia Super Corridor (MSC) and Cyber City also were introduced by government

to enhance IT in public service as well in public. It proves that government tries to

improve the service in Malaysia into Technology country which is less bureaucracy.

For current enhancement of public service delivery, government tried to enhance the

economics of Malaysia alongside with quality of service. New Economic Model (NEM)

alongside ceaselessly change in the ICT base and correspondence could enhance

Malaysia financial development and their nature of administrations. It accepted over 10

years together with learning and advancement would be a key to accomplish this

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objective (Najib Razak, 2011). In term of open administration conveyance change,

government reinforces their administration through use the web for worldwide joint

effort, development and data sharing. The effect of this reinforce are change the way

how government serve individuals and make distinctive quality to their administrations.

In 2011, Malaysian government presents Open Segment ICT Key arrangement. The

reason for this arrangement is to driving open segment computerized change. That is to

say, government attempted to use the employments of innovation with a specific end goal

to upgrade their asset to meet consumer loyalty. Reinforce the ICT in the no limits period

will guarantee subject ready to make the most of their administrations with government.

It because of capacity to having data at whatever time and anyplace without expends a

period and organization.

In this arrangement, their vision was to pervasive utilization of ICT towards a national

driven and to actualize e-government overall in people in general administrations. The

mission was to give better online administrations to national and business (Sapiah, n.d). It

demonstrate how the development of open administrations conveyance after some time.

2.0 The Application of Public Service Delivery in Malaysia (Immigration Department of

Selangor).

In looking at the improvement and enhancement of the public service delivery in Malaysia, the

Immigration Department of Selangor one of the government agencies under Ministry of Home

Affairs, has been selected for the observation and study. Under the enhancement, through the

theory it is shows a positive results towards the performance and improvement of the

government involving the service delivery and providing a good facilities to the citizens.

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The department has been considered as a successful department in managing the issues of

immigrants and foreign workers through a certain procedures that regulated by the government.

In getting the better results regarding the department is all about, we already conducted some

interview with some of Immigration Department staff in order to get a clear picture regarding the

improvement in the government agencies in Malaysia especially the department. According to

Salam, (Immigration Department, 2016), the objective of the department is managing the

immigrations matters aligned with the National priority. The existence of the department is to

handling the issues regarding the immigration either for the citizens and the foreigners.

Moreover, the administrative reform is one of the efforts done by the government in changing the

environment for creating the values and new technology in government administrative system in

improvise and enhance the effectiveness of the existence system.

Under the Malaysia Circular Development of Public Administration in 1993, there are several

conduct and guidelines towards the client charter made by the government which is being putted

under the Prime Minister Department, this circular is created for the government agencies in

preparing a fast service delivery, effective and efficient and meet with the customer expectation.

The actual benefits to the department are to act as a Key Performance Indicator (KPI) in making

easier for the department in evaluating their performance. Besides, it would help to improve the

discipline, responsibility and accountability in the civil service and contributed to the most

transparent of civil service in the country. In improvising the efficiency of government agencies

in 2009 (PEMUDAH Report, 2009), the department has reduce the time consumed in approving

the Occupation Pass Approval or “Permohonan Pas Pekerjaan”. The time consumption regarding

the Positional Approval is from 14 to the 7 work days. Thus, from the 7 days to the 3 days for the

Pass Approval and the Temporary Pass will be given in 3 days of workdays. All the

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improvement policy and the implementation will be monitored by the Monitoring Team in make

sure all the implementation are carried smoothly and followed the Standard of Procedures (SOP).

3.1 Biometric System

The introduction of new system in the context of immigration in our country is the most

welcoming initiative taken by the government. The biometric system that been introduced

will make the department become easier in analyze the data and kept the information

regarding the foreign workers. The launching of the system started during the 14 th of

Immigration Day’s Celebration on Jan 31, The Chief Director of Malaysia Immigration

Department says, Datuk Alias Ahmad, the initiative taken is under the Malaysia

Immigration Department Transformation Plan Phase 2, cover the enhancing and

improving the department as a whole including the enforcement (Utusan Online). More

than that, the department also creates the Intelligence Division and Analysis which will

be functioned as to investigate and collect the information regarding the immigration in

the country.

The step taken by the department is to ensuring the action that been made is more

effective and efficient in implementing the enforcement including in overcome the border

crossing crime and human trafficking. This is a great effort that taken by the department

in reducing the crime and cases in order to preserve the peace and security especially

involving our territory. In addition, in managing the foreigners issues, the department

also introduced the data enforcement which consists of biometric data through the

mobility enforcement system which make thing easier for the staff of the departments to

check whether the data is accurate or reliable with the system and the information of the

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foreign workers are exist or not and registered with the department. The enforcer may

use the smart phone through the system and checking the information of the foreign

workers, if they are registered through the system their information will be appeared.

Figure 1.0: Application of Biometric System

The figure above shows the application of biometric system at airport in identify the

foreigners and local citizens. By using the system , the data will stored and the staffs can

check the data and information of people’s whether their information is stored in the

system or not. Of course through this approach it will lead to the less time consuming and

more accurate and reliable compared to the manual one because the staffs need to check

one step by one step and etc.

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3.2 Sistem Imigresen Malaysia (SIM)

Malaysia Immigration Department has asked help from the MAMPU in identifying the

problem in implementing the Malaysia Immigration System. SIM is the new system that

developed in order to replace the application system Immigration of Malaysia (IMM),

which has been implemented since 1998. The ICT consultant team has carry a study

towards the implementation of SIM covering the security information, project

management, ICT infrastructure and system development. The objective for the Phase 1 (

14 Januari 2009 till 30 Mac 2009) is to carry a investigation towards problems that facing

in implementation of SIM which carried by private provider and make a suggestion to

improving regarding the system implementation.

Besides, the Phase 2 ( 3 Jun 2009 to 28 July 2009), is made to specifically suggest the

project technical approach of SIM, ensuring the system guarantee the continuous of good

service delivery of IMM, and guaranteed the system implementation at the standard level

or more better in keeping the security aspect, integrity and the government asset. The

suggestion and investigation towards the enforcement of Immigration system to enhance

the quality and identify what the main problems are in deliver the good services. This

system stores the data of all foreign and local who deal with immigration. It improves the

uses through online system whereby people can check their application through online. It

can reduce manual method and easier. Meanwhile, this system provide better security and

can be access by other intelligence department so if anything happen, the data of the

person can immediately check.

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3.3 Effective and Efficiency in Immigration Department

Since the New Public Management has been applied in the administrative system in

Malaysia, the quality of management has been improved as time passes by. The

department has made a several changes in providing a good service delivery.

As the world tremendously changed and the technology became more advanced, the

department has came out with a good changes such as, in term of making a Passport

Malaysia-International, will take a one hour to be finished after the payments were been

made compared to the previous one, normally it would take a two hours to get a passport.

These changes help the citizens to reduce the time for queuing and waiting to get the

passport. As this help and improve the service delivery, it would attract more people’s to

get the services from the government.

In addition, in enhance their services, the department currently open up the several

branches at Urban Transformation Centre in order to fulfill the needs of people who

cannot make it to make transaction during office hour. Based on the UTC’s website, The

UTC’s locations which involved with the operations is UTC Pudu Sentral Kuala Lumpur,

UTC Perak, UTC Melaka, UTC Pahang, UTC Kedah and Mini UTC Sentul,

(http://www.utc.my/servis/jabatan-imigresen-malaysia-jim/) the opening of these

branches has help a lot of people in make a deal with the department such as to renew the

passport and etc. This initiative give the people’s a chances to make a transaction they

cannot make it in the working hours since some of them are working and have other

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matters to be done. The operation hours of the UTC will be started on 8.30 a.m and

closed on 10.30 p.m.

The last one, the department has been revoked the previous passport validity from 2 years

to 5 years of validity. The charges also has been reduced by the government for each

categories, the applicants whom age above 13 until 59 years old will be charged RM 200

compared to the old one which is RM 300, and the applicants who under 12 years old and

below will be charged for RM 100 compared to previous which is RM 150 and for the

disabled people the charge would not be applied.

Figure 2.0: The New and Old Fees of Malaysia International Passport

4.0 Comparison of Malaysia Immigration Department, Singapore and Thailand

In Malaysia context, the transformation of the public service delivery has going a certain phases

in which to enhance the services delivered by the government agencies to the citizens. As we can

looked at the application of public service delivery in Malaysia regarded the process of

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enhancement related to the Immigration Department of Malaysia, the several improvement has

been done by the Malaysian government in improved the service delivery.

In the previous era, the application of manual approach which involved a paper and form to filled

in by the staffs and the people in order to make a certain transaction is been applied around the

world also involving our neighbourhood countries which Singapore and Thailand. During that

time, most of countries are still using the traditional method especially in Immigration

Department, the agency need to check the personal data information manually and it is requires a

lot of time to check the person one by one. As time passes by, the evolution of service delivery in

public sector has been improved time to time including the application of new system especially

in the Immigration Department in reducing the barriers among the private and the public sector

quality delivery.

In order to tighten the security regarded the entry of the foreign workers from outside of the

country, the biometric system is kindly been applied in most country including Malaysia,

Singapore and Thailand. The application of the system is to enhance the service delivery in own

country to implement more systematic and secured system. In Malaysia the system is known as

MyIMMS which been launched by the Chief Director of the Immigration Department to enhance

the data information involving the foreign workers whom came into our country (Immigration

Department of Malaysia,2013). Through this system the department are able to trace the

information of the foreign visitors or workers and get to checked their background history

whether they have already a crime records or not before this and other information.

Meanwhile in Singapore, the department used the system called Enhanced Immigration

Automated Clearance System (eIACS), the system is created for to also enhance the service

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delivery quality in the country, and it is a futuristic technology that allows the Singapore citizens

to fully utilize their passports card without need to apply for the additional smart card. Since

Singapore is of the busiest country in Asia regarding the trades and businesses the security issues

being of the main concern of the government in providing a secured environment for their

investors and importantly their citizens. The existence of the new system consists of passport

number and thumbprint which will be scanned at the security gates and if the passport number or

thumbprint does not match the security services automatically would be alerted. Compared to the

Malaysian system, the eIACS is more advanced compared to the MyIMMS since it has the

feature which can automatically alert the security services if the data information were not

accurate with the passport numbers and thumbprint.

Meanwhile in Thailand, the Immigration Department is also used the online database system

which make things easier than the manual approach. Even the implementation of the system in

Thailand it is bit late compared to the Singapore and Malaysia, but the collaboration between the

Thailand Police and the Immigration has brought a more advanced system which considered as

upgradable system compared to the Malaysia and Singapore. The technology has cost the

government around over a billion baht, this system can analyse 120 million images or

fingerprints per second with accurate results. Besides it is also can detect and analyse body

characteristics like eyes, blood vessel in fingers and DNA which widely used in Europe and

America. The system also came with the facial recognition screening which allows the systems

to scan the face of people and detect also trace the immigrants whether they already have a

passport or not because some of the cases one people have two passports and more which created

a problem to the local authority to trace them.

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5.0 Analysis and Issues of the Public Service Delivery of Immigration Department

5.1 Strength / Impact

In any policy, programs even an activity there must be a strength which contributes to the

successfulness of the policy. As we can see in the implementation under the Immigration

Department, there are several guidelines used by them in delivers the services to the

citizens.

The support from the management, employees and also the citizens has contributes to the

key success of the department in implement the policy and system for the public. The

determination of the department in enforce the regulations made by the government to

eradicate the issues regarding the immigrants and illegal foreign workers and other issues

related to the immigration has been settled down wisely according the proper decision

making and enforcement (Salam, 2016).

The department handles the NPM or admin reform in the organization by fully utilized

the information technology and communication by using the online approach such as

MyIMMs Biometric System which applies to the peoples either foreign workers or the

local citizens. Throughout this application the government can secured the data from any

misplaced and etc. The data which consists of clients information need to be stored

safely, otherwise it would lead to the data hacking and others. From this approach we can

see the data used is more systematic and well arranged since it was stored in one database

which make the thing easier to located and been searched. Moreover, the foreigners

cannot lie towards the systems since it can trace whether the information of the customer

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is reliable and matching with the data stored in the systems. Here, it proves how the

technology through biometric system leads to better delivery service.

The next one is time consumption. Since nowadays using an online method like online

application and others, it would contribute to the less time consuming by the citizens and

department itself. As been mentioned before, the times that need to make a passport just

take a one hour to be completed after the payment is being made. It is shows the less time

consuming in getting the services and of course it would increase the effectiveness and

efficiency of the organization especially the government reputation. This time consuming

really help either Immigration itself or public. The employees can work in the better

condition because they can save time from doing unnecessary thing but focus on

important thing. For public, they are usually busy person and time consuming could lead

them to saving their time.

Last strength is improving the immigration image to the public. Since immigration

department using the latest technology, it surely will improve public perception toward

them. It is because, the latest technology surely has better safety and security. Moreover,

current world conditions with full criminal make people fear and alert about security.

Having the latest technology will lead immigration toward safety department.

Meanwhile, the image will be improved since the new technology lead to better delivery

services. It mean, the new technology already make any transaction become faster, easier

to access any data and other. These improvements of services delivery lead public to have

satisfaction toward the department.

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5.2 Issues

There a several issues that been identifying within the immigration department during

implementation of their system. These issues are believed will reduce the effectiveness of

public services delivery within organization. Evaluate the issue will be an alternative to

understand it and come out with better solution.

First issues within the department are in term of staff integrity. In these issues, it seems

there is no transparency among some of the immigration staffs. The integrity issues rise

because although the biometric system was introduced to control foreign worker and

illegal, there problem of cross border, human trafficking and illegal seems raise.

According to Immigration department statistic, the number of illegal worker in 2015

achieving 3.7 million and it is increasing from 2014 whereby it is starting of biometric

implementation (utusan, 2015). Here, the staffs misuse their power in allowed illegal

worker or visitor to cross border without using the right authority. It occur due blindly

seek for immediate profit whereby the illegal agent will pay to the responsible staff and

that staff will allow the illegal worker to cross border. This situation may affect national

security since the illegal worker will has no data or information regarding them and they

may involve in past criminal. The impact will left Malaysian in fear due to insecurity. For

instance, in Feb 4, 2015, there are 7 immigration officer was detained due to involved in

syndicated who selling visitor social pas to the Pakistan citizen. This detention included

one officer with deputy director position. This syndicates will charge up to RM 11 000

for every pass (mstar, 2015). It is proven even the system is up to date, some of the

employees unable to follow the rule and choose the wrong way for own sake. The impact

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of this action, the delivery services within the immigration department will be lacking

and inefficiency because the objective of the system cannot be achieved.

Second issue is regarding on breakdown system. The online approach is one of the

popular methods that used in any organization currently whether in the public sector or

the private sector. The application is easier, user friendly and cost a less time consuming

for the customer in getting the services through their fingers. However, there is still

having a weaknesses which is system breaks down or server down. It mean, during using

a system, there a sudden malfunction of the system. When the department having server

down it would delay the services for the long time and since the data and information

stored through the system, the department cannot make any transaction which make

things more badly. The worse scenario is the data within the system might be loss.

According to General Director of Immigration, Immigration system around Malaysia face

a few times of system background and although they are upgrading their system,

sometimes that system is malfunction (Mstar, 2015). This statement proves that

breakdown system is an important issue in the department. If this problem continuously

occurs, it will reduce public trust toward department. It not only will be affect to the

public but employees too. Employees work will be late due to breakdown and the service

delivery will be lack.

Last issues is technical problem involve a system. It means, the systems itself are not be

able to function correctly. The system used in immigration is myIMMs whereby the

system is malfunction in processing the application of public. Even though the system

can be considered as latest technology, but there are some technical problem whereby it

cannot process some data so it make the process become late. According to immigration

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department, in 2015, there are about 30 000 application of foreign worker to renew their

working pass is not success. It happen because there are technical problem in the system

where it unable to process the application (mstar, 2015). Even though the technical team

tried to find out the problem, they are still unable to find the real solution. To avoid the

continuous complain from the employers, agent and people, the department had no choice

in reopening the manual counter to solve the problem.

6.0 Recommendations

To overcome the weaknesses in term of transparency by employees, proper training should be

held among the responsible employees. Since there are latest systems but some of them misuse

the system for profit purpose, proper training will be an alternative so they will realize their

responsibility. The training should included technical and practical aspect which will make

employees understand the reason they should not misuse the system. In this training, it should

include all aspect of internal and external. It means, the training not only teach how to use the

system in proper way but it also include the sentiment and responsibility within the employees so

any work they do will not involve any wrongdoing. From the fact, the officers who commit a

problem are looking for profit purpose. The training should train them to consider workplace as a

personal belonging. So, it will increase awareness of employees to protect and give full

commitment to do a work. For instance, in Google Malaysia, they have training for their staff to

treat Google office as their second home and family so the staff will give full ability and hearth

in their work.

For system breakdown, the immigration department should up to date their system so they will

have auto saving system. It mean, if the breakdown occur, the lost data could be recover and able

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to avoid potential problem in future. Breakdown could cause the all system disable. During a

transaction, the system will shut down and unable to use. If this happen frequently in

immigration department, customer could feel dissatisfied with them. They dissatisfied because it

is impossible to come to the immigration department everyday to deal with an issues where it

suppose can be finish earlier if the breakdown did not occur. Frequently up to date the data will

cause the data will not losing if the breakdowns occur. It can be happen because the data is safely

stored in the system due to up to date. If the system is recover back, the data can immediately

detect without create new data. Meanwhile, to avoid it, immigration department should prepare

backup generator so it can be function during breakdown as well can prevent from losing data.

From the history, breakdown always occur in department but people have to wait until the

system recover to deal with department. If the generator exist, it may be able to improve

effectively of delivery service because public did not to wait the system to recover. For example,

in hospital, during operation, if there are blackouts, generator will play a role to replace

electricity so the operation could be continue. Such example should be copy by immigration if

they are intending to improve their delivery services.

Last recommendation is develop proper system before implement it in the immigration

department. From the cases of unable to process the application of foreign worker, it seems this

problem is frequently occur till it achieve 30 000 applicant. If they are able to provide better

system, this problem surely not happens. To do so, the department should make research and

development of the system. It mean, the system should be test frequently and measure the

reliability of the system before it can be implement in the department. If they able to do so and if

any problem occur, they can easily detect the problem and the rate of the problem could be

reduce.

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7.0 Conclusion

The improvement of the public service delivery refer to a systematic and effort to changes public

administration to enhance their capability in achieving national goals. It means, to meet the

objective, enhancement is necessary to ensure the objective can be achieved. To do so,

government need to plan a systematic method so anything they did could bring good deeds to the

public. Since transformation will act as a change agent for the government to serve the peoples to

meet their satisfaction, continuously improvement is needed within the administration so it can

continuously serve the people with a greater service.

In context of Immigration department, the enhancement of the service quality plays an important

role in enhancing their services. It basically improves their traditional way to the better services

deliver which is easier to control by employees and understand by publics. To sum up, the

service delivery quality in the public sector is necessary in public administration because it can

ensure the effectiveness of services by government and better quality so it can improve public

satisfaction towards government. In future, if this improvement continues, it surely could provide

better services for public.

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