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Summary 

Since 2000, the government of the Macao Special Administrative Region of China has been promoting the Quality Charter Program, the purpose of which is to optimize the functioning of the public administration.  All government agencies that have implemented the Quality Charter Program must give priority to optimizing administrative procedures, improving the mechanism for handling suggestions and complaints, and periodically evaluating the degree of citizen satisfaction.  The government of Macao has established a comprehensive system for conducting citizen satisfaction surveys and a widely-adopted mechanism for handling public complaints, claims, and suggestions.

I. Policy and Regulatory Basis for Citizen Satisfaction Survey Project 

A.    Policy Basis

In November 2000, the Chief Executive of the Macao Special Administrative Region (MSAR) delivered the Policy Address for Fiscal Year 2001 at the Legislative Assembly Meeting, and stated that “the government will promote the Quality Charter Program to enhance administrative accountability and service efficiency.”[1]  In November 2002, the Chief Executive stated at the Legislative Assembly Meeting that the government would make a greater effort to put the Quality Charter Program at the top of its agenda.[2]  Since then, government agencies of the MSAR have gradually implemented the Program, which requires the agencies to establish mechanisms for handling suggestions and complaints, and to periodically assess the degree of citizens’ satisfaction.

In the Policy Address for Fiscal Year 2005, the Chief Executive of the MSAR asserted that the government must further promote the Citizen Satisfaction Survey Project (the Project), and must provide technical support for agencies that have not adopted the Project.  The Policy Address also estimated that the Project would be widely implemented by all public administration services and bodies in 2006.[3]

B.     Regulatory Basis

1.      Executive Order No. 69/2007 (Amended by the Executive’s Order No. 69/2010)

In February 2007, the Chief Executive of the MSAR issued Executive Order No. 69/2007, which stated that the Quality Charter Program is one of the MSAR’s strategic measures aimed at optimizing the services provided by government agencies.  The Executive Order also declared that in order to evaluate the quality and efficiency of all public services and entities, the Commission for Evaluation of Public Services would be established under the Secretariat for Administration and Justice.[4]  The Annex to the Executive Order provided organizational details of the Quality Charter Program.[5]

2.      Order of the Secretariat for Administration and Justice No. 22/2007

In September 2007, the Order of the Secretariat for Administration and Justice No. 22/2007 was issued pursuant to Chief Executive Order No. 69/2007.  The Order approved the criteria for evaluating the quality and efficiency of services and public entities.  The Citizen Satisfaction Survey Project, which includes the solicitation and collection of feedback from service recipients, was established as one of the major evaluation mechanisms under the Quality Charter Program.[6]

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II. Overview of the Citizen Satisfaction Survey Project 

The Directorate of Administration and Public Services of the MSAR, which is the government agency in charge of conducting research, promoting modernization, and providing assistance for the administration and public services, established the Thematic Website for Optimization of Public Service (Public Service Website).  This centralized website collects regulations, information, statistics, and reports related to the Quality Charter Program.  Also, public services and bodies can submit opinions or obtain information through the website, as well as request technical support from the Directorate of Administration and Public Services.[7]

A.    Scope

According to the Public Service Website, regardless of the type of services provided, any government agency and public entity may assess the degree of citizen satisfaction, provided that the recipients of its services are citizens or other listed entities (including industrial and commercial companies, associations, public bodies, foreign investors, and tourists).[8]

B.     Form of the Survey

Government agencies that have adopted the Quality Charter Program are required to conduct a citizen satisfaction survey at least once a year.  However, the specific times and form of the survey are determined by the agency itself.  According to the Public Service Website, most government agencies conduct the survey annually; some others conduct the survey biannually.[9]  The duration of the survey can last from several months to a year, which is determined at each agency’s own discretion.  

The form in which the feedback is collected is also determined by each agency.  According to the Public Service Website, most government agencies use face-to-face or telephone interviews, or send out written questionnaires through electronic means, by fax, or by mail.[10]  For example, the 2016 Directorate of Legal Affairs Services Citizens Satisfaction Survey Report indicates that the agency adopted two ways of conducting surveys: distributing a written questionnaire to each citizen when he or she receives service at the counter during the feedback collection period, and mailing or faxing questionnaires to the service recipients.[11]

C.    Content of Questions

According to the Public Service Website, at least the five metrics below are assessed during the feedback collection process.  The website also provides a set of standardized questions for use by government agencies in collecting voluntary feedback on these metrics:

  • Degree of convenience: Whether an individual or entity can easily and quickly receive a service provided by the agency.
  • Employee conduct: Whether an individual or entity is treated with respect in an active, professional, and timely manner.
  • Environment and facilities: Whether the equipment installed by the agency gives citizens a sense of comfort and convenience.
  • Internal process: Whether the services provided to citizens undergo an internal process based on the principles of justice, impartiality, and reasonableness.
  • Overall satisfaction: Whether the services provided by the agency satisfy citizens’ requirements and intention.[12]

In addition to the questions developed under the above-mentioned five metrics, each agency has the discretion to develop questions relevant to its specific operations or programs.  For example, the 2016 Directorate of Legal Affairs Services Citizens Satisfaction Survey Report indicates that the agency also included service information, electronic service, and overall quality in its evaluation metrics.  Some agencies also include a question asking for general suggestions.[13]

D.    Analysis and Publication of Results

Government agencies that have adopted the Quality Charter Program are required by the Program to collect feedback from service recipients, analyze the results of the citizen satisfaction survey, compose a report on the survey, and publish the report on the centralized Public Service Website and each agency’s official website annually.[14]

The aggregated annual report on the solicitation of citizens’ voluntary feedback generally includes a brief introduction of the survey, a presentation of the results, an analysis of the results, a trend analysis, suggestions on improvement, and steps to be taken.[15]

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III. Mechanism for Handling Public Complaints, Claims, and Suggestions 

According to article 21 of Decree-Law No. 5/98/M, which was published on February 2, 1998, all public departments and agencies must collect and respond to public complaints, claims, and suggestions monthly.[16]  The response to the claims and complaints from individuals and entities whose identification and address have been indicated must be given within forty-five days from the date on which the complaints were received.  Anonymous claims and complaints, however, may be destroyed at the direction of the chief officer in charge of the agency.[17]

On October 25, 2000, the Secretariat for Administration and Justice issued Order No. 13/2000.  Paragraph 1 of the Order provided that officials of public service agencies and bodies must designate the person responsible for analyzing and reporting the treatment of public complaints, claims, and suggestions pursuant to article 21 of Decree-Law No. 5/98/M.[18]

According to the Public Service Website, agencies that have adopted the Quality Charter Program are required to disclose to the public their annual reports on public complaints, claims, and suggestions.  Such reports generally include statistics, a summary, and a discussion of the treatment and results of public complaints, claims, and suggestions. The reports do not include private information or materials that are not appropriate for disclosure.  The reports of each government agency can be accessed on the centralized Public Service Website and on each agency’s official website.[19]

The Public Service Website also provides an introduction to the mechanism for handling public complaints, claims, and suggestions.  The introduction summarizes the function of, principle of, procedure for, and special issues related to the mechanism.[20]

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Prepared by Yichao Zhang
Foreign Law Consultant
October 2017


[1] Aomen Tebie Xingzheng Qu Zhengfu 2001 Nian Caizheng Niandu Shizheng Baogao [Policy Address for the Fiscal Year 2001 of the Government of Macao Special Administrative Region] (Nov. 9, 2000), http://bo.io.gov.mo/edicoes/cn/raem/lag2001/ (in Chinese), archived at https://perma.cc/VKR3-UACK.

[2] Aomen Tebie Xingzheng Qu Zhengfu 2003 Nian Caizheng Niandu Shizheng Baogao [Policy Address for the Fiscal Year 2003 of the Government of Macao Special Administrative Region] (Nov. 20, 2002), http://bo.io.gov.mo/edicoes/cn/raem/lag2003/ (in Chinese), archived at https://perma.cc/B3HF-HW6G.

[3] Aomen Tebie Xingzheng Qu Zhengfu 2005 Nian Caizheng Niandu Shizheng Baogao [Policy Address for the Fiscal Year 2005 of the Government of Macao Special Administrative Region] (Nov. 16, 2004), http://bo.io.gov.mo/edicoes/cn/raem/lag2005/ (in Chinese), archived at https://perma.cc/EP75-MP5R.

[4] Di 69/2007 Hao Xingzheng Zhangguan Pishi [Executive Order No. 69/2007] (promulgated by the Chief Executive of MSAR, Feb. 22, 2007; amended by Executive Order No. 69/2010, Mar. 22, 2010), http://bo.io.gov.mo/bo/i/2007/ 08/despce_cn.asp#69 (in Chinese), archived at https://perma.cc/6VGT-47VA.

[5] Id., Annex.

[6] Di 22/2007 Hao Xingzhen Fawu Si Sizhang Pishi [Order of the Secretariat for Administration and Justice No. 22/2007] (promulgated by the Secretariat for Administration and Justice, Sept. 17, 2007), http://bo.io.gov.mo/ bo/i/2007/38/despsaj_cn.asp#22 (in Chinese), archived at https://perma.cc/8E4F-4B4J.

[7] Thematic Website for Optimization of Public Service, http://app.safp.gov.mo/qs (in Chinese; last visited Oct. 24, 2017), archived at https://perma.cc/N4SE-5J74

[8] The Scope of the Citizen Satisfaction Survey Project, Thematic Website for Optimization of Public Service, http://app.safp.gov.mo/cms/view?aid=99&mid=748 (in Chinese; last visited Oct. 24, 2017), archived at https://perma.cc/ARJ9-T94L

[9] Quality Charter Program, Thematic Website for Optimization of Public Service, http://app.safp.gov.mo/qs/ reconhecimento (in Chinese; last visited Oct. 24, 2017), archived at https://perma.cc/6T6B-LEMW.

[10] Id.

[11] Id.  

[12] The Content of the Citizen Satisfaction Survey Project, Thematic Website for Optimization of Public Service, http://app.safp.gov.mo/cms/view?aid=99&mid=749 (in Chinese; last visited Oct. 24, 2017), archived at https://perma.cc/3GZ6-FCHZ.

[13] Id.

[14] Id.

[15] Id.

[16] A “complaint” is a statement that the service recipient is unsatisfied with the service provided by the agency, while a “claim” is a demand, allegation, or accusation made by the service recipient requesting further treatment.

[17] Di 5/98/M Hao Faling [the Decree-Law No. 5/98/M] (promulgated by the Chargé d’État of Macao, Feb. 2, 1998), http://bo.io.gov.mo/bo/i/98/05/declei05_cn.asp (in Chinese), archived at https://perma.cc/D96F-JLQ7

[18] Di 13/2000 Hao Xingzhen Fawu Si Sizhang Pishi [Order of the Secretariat for Administration and Justice No. 13/2000] (promulgated by the Secretariat for Administration and Justice, Oct. 25, 2000), http://bo.io.gov.mo/ bo/ii/2000/43/despsaj_cn.asp (in Chinese), archived at https://perma.cc/VAC6-RUPL.

[19] Mechanism for Handling Public Complaints, Claims, and Suggestions, Thematic Website for Optimization of Public Service, http://app.safp.gov.mo/qs/estat_intro (in Chinese; last visited Oct. 24, 2017), archived at https://perma.cc/UP94-5K34

[20] Id.