Introduction
Health systems are organisations built by society to respond
to the health needs of people and populations. It is
imperative that health systems, regardless of their source of
funding, are sustainable, provide quality care and develop
in line with their users' expectations. When said health
systems are public and free of charge, this need becomes
even more pertinent, otherwise they risk extinction. 8 The
occurrence of safety incidents during the provision of
health care is a reality of modern health systems. The
implementation of policies and strategies to reduce these
incidents, a proportion of which are preventable, is
recognised internationally and nationally as leading to
health gains and is now an unequivocal commitment to
health.20 Promoting user safety requires a coordinated and
persistent effort by all stakeholders and a systemic,
continuous approach that promotes safety and a culture of
safety, based on a non-punitive approach and continuous
improvement.20
According to the Manual of Policies and Strategies for
Quality in Health Care21 drawn up by the World Health
Organisation, when establishing a national quality policy, it
is paramount to spell out the definition of quality that will
underpin the national approach, to ensure a common
understanding and a language that is acceptable to the
country's local context. In Portugal, as early as 2012, quality
in health was defined in the National Health Plan (PNS)
2012-20162, by Saturno et al. as the provision of accessible
and equitable health care, with an optimal professional level,
which takes into account the available resources and
achieves citizen adherence and satisfaction. It implies the
adequacy of healthcare to the needs and expectations of the
citizen and the best possible performance. The degree of
quality in health can be conditioned by multiple factors: i)
extraordinary social, political, environmental, scientific and
technological developments; ii) uncertainty and
unpredictability of occurrences such as epidemics and
disasters, climate change and terrorism; iii) characteristics of
the health system; iv) determinants of the demand for care
(ageing, chronic illness, more information, expectations and
demands, among others) and the capacity to respond
(human resources, growing specialisation, multidisciplinary
and intersectoral work, among others); v) new concepts of
health outcomes and quality of life.2 More recently, the
development of the 2030 National Health Plan (PNS)1 was
based on three key assumptions: i) the social value of health
as a major objective in people's lives; ii) the central role of
health as a "starting point" and "end point" for achieving the
2030 Sustainable Development Goals; iii) population-based
strategic health planning as a methodological tool with its
various components and stages.1
The perspectives for promoting quality in healthcare involve
cycles of continuous quality improvement through the
systematic identification of problems and opportunities with
the aim of solving or improving them, establishing desirable
and realistic standards, identifying and acting on critical
points, planning and implementing changes,
monitoring and evaluating.2 The processes should be
multidisciplinary, non-punitive and at the initiative of
the professionals and associated with professional
development plans. They should involve strategies such
as monitoring, benchmarking, as well as external
evaluation, including accreditation processes and the
identification of good practices, among others.3 These
can take place at the level of the professional, the team,
the service, the institution and the supervisory body. All
hierarchical levels within the organisation must be duly
evaluated, valued and held accountable for decisions,
whether they are health professionals, managers or
politicians. They should spell out objectives, indicators
and targets; organisational and delivery models (which
allow for comparability and the identification of good
practices) and structure, process and outcome
standards.4
In the context of the new models of healthcare
organisation, clinical governance is the process by
which healthcare organisations are responsible for
continuously improving the quality of their services and
ensuring high standards of care, creating an
environment that encourages excellence in clinical care.
The term governance was imported from the
commercial world, which defined Corporate
Governance as a system by which companies protected
shareholders' investments and minimised the risks of
fraud and malpractice. In 1998, Clinical Governance
was introduced for the first time in the National Health
Service's health white paper in the UK, reflecting a
strategy to modernise and improve the quality of the
health system.5
In the present article, for conceptual clarification, the
word governance and governorship have the same
meaning. However, the word governorship has a
broader meaning (power, policies, charisma, legislation)
and the concept of governance has a narrower but
more transparent meaning, as it describes the processes
of implementing defined policies.6
Since 2001, Portugal has been trying to improve health
by making accountability mechanisms explicit, and
from 2003 onwards, particular importance has been
given to processes aimed at increasing transparency in
the work of the different health units and professionals
in the National Health Service (SNS). In this way,
clinical governance was one of the strategies adopted
by the new organisational structures of the Health
Centres (formerly Health Centre Groupings) to
improve and maintain the quality of their care.7
The key principles of excellence in clinical governance
include: i) orientation towards results; ii) orientation
towards the user; iii) leadership and coherence of
objectives; iv) management of processes and activities;
v) development and involvement of employees; vi)