how to

improve
organisational
climate

April 2000
 improving climate
“We often talk about the promotion of a
performance culture, improved service delivery
and client service. We agree that people are our
Introduction
Today’s public service operates in an environment
characterised by strong resource constraints coupled with

improving organisational climate

key resource for the overall performance of our community demands for more and better quality services.
organisations. The question is are we treating It is required to meet high standards of accountability and
ethical behaviour.
people as if this is the case?”
Dr Brian Head, The constant search for more cost effective work
Public Service Commissioner, practices and methods of service delivery will continue in
Queensland Public Service. the future. Moreover, rapid advances in technology are
having a profound impact on the kinds of jobs we do and
the ways in which we do them.
A Strategic Framework for Workforce Management
Salaries and related costs comprise around 40% of the
WORKFORCE
State Budget and over 70% of budget in some agencies.
CAPABILITY Any attempt to improve public sector performance,
Having the right
people in the
therefore must centre on the way in which the public
right place at the service workforce is managed and the ways public
right time
servants work.
To provide a general framework for managing people
the Office of the Public Service Commissioner (OPSC)
WORKFORCE WORKFORCE
LEADERSHIP PERFORMANCE developed A Focus on People – A Workforce Management
Mobilising people Creating a BUSINESS Strategy for the Queensland Public Service (QPS) [Figure
to deal effectively performance culture OUTCOMES
with current and centred on continuous left]. The Strategy emphasis four factors: workforce
future challenges improvement and
best practice leadership; workforce performance; workforce capability;
and organisational climate which influence business
outcomes. The key to understanding the model is the fact
ORGANISATIONAL that it is a highly integrated system: a change in one of the
CLIMATE
Creating a postive
components will have an impact on each of the others.
work environment
where people feel
valued and
respected

1
 Key indicators of how the workforce is managed and the This Guide
type of leadership and culture which exists, are clustered
This guide provides ideas for managers and work groups on
around organisational climate. In 1997, Cabinet endorsed
how to improve organisational climate. The guide
the use of the Queensland Public Agency Staff Survey
progresses the general framework in the Workforce
(QPASS), or an alternative tool, to measure organisational
Management Strategy by focusing on behaviours which
climate and morale in the QPS. QPASS measures ten
make a difference to workforce leadership; workforce
aspects of organisational climate:
performance; workforce capability; and organisational
• workplace morale climate. As noted earlier, changes in one area impact on the
other elements in the Workforce Management Strategy.
• workplace distress

• supportive leadership Keys to success

• participative decision making This guide contains a range of behaviours and attributes
which have contributed to high scores on QPASS scales
• professional interaction
(supportive leadership; professional growth; professional
• professional growth interaction; participative decision making; appraisal and
recognition; role clarity; goal congruence and individual
• appraisal and recognition
and workplace morale) in a range of work groups.
• role clarity

• goal congruence

• excessive work demands

Most QPS agencies have now used QPASS or an alternative
instrument to measure climate and morale or staff
satisfaction. OPSC has worked in collaboration with many
of these agencies to demonstrate the links between
organisational climate and business outcomes.
OPSC also has significant long-term partnerships with
universities to progress the linkages between
organisational climate and morale and other measures of
organisational effectiveness.

2
The critical factor for success in improving organisational Further information
climate is to discuss with staff their particular needs
This guide should be read in conjunction with the
and concerns.
Queensland Public Sector Staff Survey (QPASS) Manual,

improving organisational climate

It is important for groups using this guide to understand the QPASS Help Guide. Sample workshops for use in work
that strategies for improvement need to be developed groups to identify strategies are available in the Employee
and contextualised by each particular work group Opinion Survey “How to” Guide. These documents are
for them to have ownership and meaning to that available on www.psier.qld.gov.au under the Organisational
work group. Climate link. Further information can be obtained from
It is also critical to success that management Workforce Strategies Branch, Public Sector Industrial
understands the significance of people issues in the and Employee Relations on (07) 3224 5490.
achievement of outcomes and is prepared to support
work group improvement strategies. Managers play a key
role in creating the work place environment, which is
reflected in QPASS scores.
Improvement in work group scores on climate and morale
can be obtained by implementing a small number of
strategies (2 or 3 achieved is better than 20 not achieved).
Most focus on improving processes or interpersonal
relationships. Many of these are cost neutral.
The research across the QPS has shown that those work
groups with higher scores on QPASS:

• are better able to deal with change in a positive

manner;

• are more robust in dealing with systems barriers such

as information technology problems; and

• are the best places to introduce new initiatives.

3
 supportive leadership
Supportive Leadership in this survey refers to
the perception that managers are approachable, • devolves decision making to the relevant level eg
encourages staff to address problems relating to their
dependable, supportive, know the problems faced own job responsibilities
by staff and communicate well with them..
Work groups that demonstrated a high rating for
• is available to provide advice and support and is fair in
sharing their time according to the needs of staff eg
supportive leadership perceived their leaders doesn’t take calls during meetings with staff
performing a range of the following behaviours.
• provides opportunities to participate in work group
• uses every possible opportunity to improve the
business literacy of staff by providing information on
decisions

the strategic context in which the department operates, • ensures teams have the capacity and authority to make
decisions so that they can quickly respond to problems
its key objectives and strategies and the links to work
group activity • encourages supportive relationships through mentoring
and professional development groups ie. staff working
• demonstrates by their actions that they do not require
absolute control by trusting staff to get their jobs done
together to reflect on project progress and outcomes
and what could have been improved and reporting
• encourages self-reliance and self-confidence so that
staff takes responsibility upon themselves
back to the group

• conducts regular meetings with both staff and the local

• lets self managed teams and individual staff manage
their own work within reasonable and agreed limits.
management team and ensures that staff consider
attendance as critical to work group success
This can be demonstrated by not changing decisions,
correspondence or reports unless the reasons are • models the department’s values and behaviours
clearly explained and the discussion focuses on
professional development

• is clear about what decisions they will make and what

decisions the staff will be part of and explains
decisions taken at other meetings to staff members

• supports the decisions made by staff. Instead of

rejecting a decision, asks how the staff member came
to that decision. If the manager then agrees, the
decision is supported, if they disagree, the manager
uses this as a developmental opportunity to explain
why the decision cannot be supported

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• recognises staff and work group achievement by
formally acknowledging them at meetings, in other
forums and with colleagues
• provides a clear idea of what types of behaviours are
acceptable and unacceptable and why
• ensures that poor behaviour is not rewarded
• is open to discussion and negotiation
• deals with personality conflicts in the work groups or
between work groups
• is careful not to allow the work group to develop a
siege or victim mentality as this will impact on quality
of work life and business performance
• does not allow the work group morale to suffer
because of management inaction
• understands and promotes that staff do not always
need to get on personally but they do need to get on
professionally
• is strong enough to ask for advice if necessary
• focuses on the present and the future and not on the
past and past responses by exploring innovative
options to recurrent problems and doing something
to change work practices or policies that no longer
contribute effectively to work group outcomes.
• understands that there is not just one answer to
a problem and that they don’t always have the
right answer
• is consistent and delivers. If they say they will do
something then they do it
• assists staff to do their work efficiently by having a
improving organisational climate
quick turn around time on areas of comment or advice
• values staff problem solving by showing that it is all
right to make the occasional mistake
• puts on an occasional morning tea or other activity
to celebrate birthdays and other key milestones.
Encourages staff to organise such events and makes
time available to attend
• makes the effort to get to know about staff and
something about their lives outside work
• goes into ‘bat’ for staff on issues the staff see as
important. Where necessary advocates on their behalf
with senior management
• explains and provides information on unpopular
management decisions to staff and does not allow an
‘us’ and ‘them’ mentality to develop
• presents information in a positive manner so that staff
are better able to rise to the challenge
• takes care of their own professional development and
seeks personal and work group improvement
• allows staff to develop improvement actions important
to them based on climate and morale results
• implements some of the other activities outlined in this
guide to enhance work group skills, interpersonal skills
and work group environment
5
 professional growth
Professional Growth in this survey refers to the
perception that there is interest, encouragement,
and opportunities for training and career
development.
Work groups that demonstrated a high rating for
Professional Growth reported a range of the
following behaviours.
• support for training and development and other
professional development activity is demonstrated at
the senior management level through commitments in
strategic and business plans and resource allocation
• training and development is an element in the work
unit business plan and is allocated a budget. All staff
are responsible for ensuring that training is
appropriate and meets budget. Regular reports can be
tabled at team meetings
• training is tracked and recorded and reviewed to
ensure equity and efficacy in aligning with business
objectives
• work groups discuss the training needs of the group
and the individuals in that group and articulate the
links to business objective
• individuals can nominate their own training needs and
the activities they wish to undertake to meet these
needs and negotiate these with the work group
• replacement staff are provided, where possible and
appropriate, to backfill when off-work professional
development is undertaken so that this activity does
not lead to “catch up” work
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• training to be undertaken is recorded on individual
and/or team performance or development plans and is
delivered
• time is made for individuals to pass the skills or
knowledge they learned through training or other
development activities to others in the group. This
means building in opportunities for contributing to the
professional growth of the work group eg having
regular time at team meetings
• opportunities are provided for staff to train others in
their specific skills and roles
• clear support is offered for staff who wish to engage in
additional education (eg tertiary education) and the
nature of this support is clearly articulated in policy
• new staff induction includes information on the
department’s objectives and key strategies, the links to
Government priorities, and the planning and reporting
requirements of the work group and the department
and their role in that
• clear information about possible career progression
opportunities is provided. If there is no career path in a
certain area then staff are informed of this and explore
other options for professional growth such as skill
maintenance activities, conference leave or further study
• opportunities to act up or act horizontally are provided
where available
• staff take part in selection panels for new work group
members to develop skills in interviewing and to
interact with staff at other levels. New graduates and
new staff are mentored
 professional interaction
Professional Interaction refers to acceptance
and support from others, with involvement, sharing,
good communication and help when needed.
Work groups that demonstrated a high rating for
professional interaction reported a range of the
following behaviours.
• ways for staff to demonstrate department values in
behaviours in their interactions with clients and other
staff are included in business planning activities and
recorded as principles of behaviour
• formal and informal systems are in place to enhance
communication between units. Rotate responsibility for
staff to sit in on the team meetings of other work
groups to provide information to them about the work
of their group. Report back at team meetings on the
activities of the other groups
• opportunities are provided for all team members
participating in a project to see the finished products
(eg to get out on site, attend launch, be thanked in
improving organisational climate
internal communication).
• work based personal development activities are included
as part of professional growth and development activities
( eg team roles, personality types, conflict resolution)
• the focus is on team performance, not on individual
competitiveness
• the work group task and relational problems are
collectively solved at team meetings and/or in
task groups
• new staff are allocated a buddy
• a place to congregate as a work group is provided
• morning tea or some other informal meeting
arrangements are part of the culture of the work group
An excellent way to contribute to both Professional
Growth and Professional Interaction is through the
team meeting process. This works when:
• the role of Chair and secretary minute taker at
meetings is rotated. Set-up a buddy system for staff
undertaking this role for the first time and keep that
in place until they feel comfortable with managing
the process
• everyone gets a chance to participate in meetings by
commenting on issues, presenting project updates or
relevant information or reports. Staff are encouraged
to ask questions and feel comfortable asking others for
help or assistance
7
 continued…

• meetings have a set regular time. An agenda to which

staff can contribute items is circulated before meetings
• “reflection time” or a “check-in/check-out” process
are encouraged so that individual concerns can be
addressed
• copies of all information relevant to the meeting are
provided to all staff prior to the meeting (eg financial
reports). Even if staff are not responsible directly for
• formal minutes are taken and circulated through e-mail
or placed in an accessible place or in a common file
budget performance, they will develop their knowledge
by being informed of the budget process and resource
allocation decisions

• the meeting emphasises that the team is the business

and it’s everyone’s responsibility to manage the team

• the meeting process is used to articulate how the work

group is going in meeting its objectives, for staff to
deliver updates on projects and to give information
about departmental activities. This is particularly
important in regional areas where staff often mention
lack of current information

• decisions taken by management without consultation

with staff are explained (eg decisions to buy new IT
systems)

• problems are raised and solved by the group

• apermitted
small number of more vocal individuals are not
to take over meetings

• issues are dealt with as they arise. If matters cannot be

resolved at the meeting, definite actions and
timeframes are assigned

• emerging training and development needs are

discussed and group decisions made

8
 participative decision making
Participative Decision Making refers to the
perception that staff are asked to participate
in decisions and given opportunities to express
their views.
Work groups that demonstrated a high rating on
Participative Decision Making reported a range of
the following behaviours.
• staff understand the strategic context in which their
work group and department operate so that they can
make congruent decisions
• access to relevant information needed to make
decisions is readily available (eg budget, human
resources or other resource information)
• staff have a say over who comes into the team by
involving them in the selection process and allowing
them to take turns on selection panels
• opportunities for staff to work in cross-functional
teams are promoted
• staff are involved in decisions which affect them so
that they have ownership of decisions. This does not
mean endless consultation but rather working to an
improving organisational climate
agreed decision making framework
• staff can make and are supported in decisions relevant
to their responsibilities. They have job related
responsibilities and should be given accountability
for these
• aforums
means for staff to access information or attend other
is provided (eg attend other team meetings)
• staff are kept up to date on changes to policy
and practices
• decisions are really participative and not made by only
a few of the same people in the work group
• staff suggestions are acknowledged and they are
thanked for their input
• the reasons for important decisions in which they have
not been involved are explained to them
• there are formal review processes for projects,
procedures and decisions so that the work group can
discuss what worked and what they would do
differently next time
• atobias for action is promoted and decisions relevant
getting their job done are made in a timely way
• apeople
positive work environment is promoted where
are genuinely encouraged to make decisions
and ask questions to get information necessary to
making a decision
9
 appraisal and recognition
Appraisal and Recognition refers to the perception
that there is quality and regular recognition and
feedback on work performance.
Work groups that demonstrated a high rating for
Appraisal and Recognition (A&R) reported a range of
the following behaviours.
• itandis not assumed that putting in a formal appraisal
recognition scheme will address low scores on this
• each staff member is encouraged to develop a list of
their achievements since the last review and also of
things that didn’t go so well or that they learned from
and would do differently. This should also include their
assessment of how they contributed to the functioning
of the team. Use this as the basis for discussion as it
encourages reflection on achievements and promotes
learning

scale. Low scores may mean more positive feedback on
a regular basis is missing
• informal appraisal and recognition among staff is
encouraged so that each individual is responsible
for showing encouragement and acknowledgment for
other staff
• A&R is a two way or three way activity (manager and
peers) with a developmental focus
• team based A&R systems which the team jointly signs
off on are used
• award programs, where they are used, are treated as
important and not delegated to the too hard or the
haven’t got the time basket
• any positive feedback such as letters of thanks from
clients are displayed and circulated
• negative feedback is dealt with as a learning situation
and staff are not immediately blamed. Explore the
feedback for its accuracy and what can be learned
from it

• there is a section about what each individual will

contribute to the operation of the team in A&R forms

• A&R activities are based on what individuals are doing

at the current time and not what they were doing six
months ago

• A&R is simple, concise, meaningful and informal

• regular feedback and encouragement is provided by
management to staff. This might include having
occasional celebrations for birthdays and to
acknowledge positive team effort

10
 role clarity goal congruence
Role Clarity refers to the perception that Goal Congruence refers to the perception that
expectations, work objectives, responsibilities and personal goals are in agreement with workplace
authority are clearly defined. goals that are clearly stated and understood.

improving organisational climate

Work groups that demonstrated a high rating on Work groups that demonstrated a high rating on
Role Clarity reported a range of the following Goal Congruence reported a range of the following
behaviours. behaviours.

• staff know the strategic objectives of the department

and their work group objectives which contribute to
• staff know the values of the organisation and see these
modelled in the behaviours of the management team
these so that they can make appropriate decisions
• business planning processes are transparent and
• induction processes are in place and include a means
of letting new people know who does what
participative and align with departmental objectives

• the business planning process clearly articulates how

• there is a clear structure, and guidelines for performance the work group will contribute to departmental goals
and values
• astaffculture of tolerance of ambiguity is promoted where
have a number of sources of support when faced
with role changes (eg availability of leader for
• information about key decisions is shared
consultation and peer support) • team based performance plans are linked to unit and
department plans
• circumventing the reporting system is discouraged
ie. if your are a senior manager do not encourage staff • use of information services such as the departmental
intranet is encouraged
to bypass their manager and come to you. If there is a
problem with communication in a work group, deal
with it

• self managed teams are responsible for allocating tasks

in the team

• staff are encouraged to learn what each team member’s

role is

• staff have the “freedom to grow roles” and the

flexibility to expand their jobs.

• the structure of self-managed teams is respected and the

work group has responsibility for managing its business.

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 individual and workplace morale
Individual and Workplace Morale refers to the
perception that staff show enthusiasm, pride in • attention is paid to implementing some of the other
strategies in this document
their work, team spirit and energy .
Work groups that demonstrated a high rating on
• the work group is receptive to ideas and innovations
Individual and Workplace Morale reported a range • staff contributions are valued and caste systems are
discouraged eg engineers are better or more important
of the following behaviours.
than technical staff. It takes all staff working together
• there are activities for staff to interact and “see each
other as people” such as occasional social events or
effectively to achieve great team performance

afternoon teas • career limits and possibilities are clearly identified

• new and temporary staff are properly inducted through
introductions to the unit, inclusion in meetings, and
provision of a buddy
• time is made for business and relationship
development in the work place
• views of all staff are treated as important and equal
and everyone is encouraged to do this
• change is managed positively by providing accurate and
timely information
• staff get regular feedback so that they can feel proud of
their work
• factors beyond its control don’t diminish the ability of
the work unit to fulfil its expected role with the public
or internal clients

• opportunities for staff to get to know the roles and • working long hours and having to travel great distances
is not a continual expectation of the work group
contribution of others are provided

• flexible work practices are promoted where

appropriate for service delivery

• focus on and reward positive behaviours

• there are clearly articulated lines of authority
• there are adequate resources for staff to do their job
effectively

• attention is paid to the physical working environment

eg sufficient office space for all staff, air conditioning is
available when needed, etc

• frustrations
timely manner
to do with IT and HR are dealt with in a

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www.detir.qld.gov.au
Further information can be obtained from
Workforce Strategies Branch, Public Sector Industrial
and Employee Relations on (07) 322 46576