how to

improve
organisational
climate

April 2000

improving climate

A Strategic Framework for Workforce Management

WORKFORCE
CAPABILITY
Having the right
people in the
right place at the
right time

WORKFORCE
PERFORMANCE

Mobilising people
to deal effectively
with current and
future challenges

Creating a
performance culture
centred on continuous
improvement and
best practice

ORGANISATIONAL
CLIMATE
Creating a postive
work environment
where people feel
valued and
respected

Todays public service operates in an environment

characterised by strong resource constraints coupled with
community demands for more and better quality services.
It is required to meet high standards of accountability and
ethical behaviour.
The constant search for more cost effective work
practices and methods of service delivery will continue in
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.

Dr Brian Head,
Public Service Commissioner,
Queensland Public Service.

WORKFORCE
LEADERSHIP

Introduction

improving organisational climate

We often talk about the promotion of a

performance culture, improved service delivery
and client service. We agree that people are our
key resource for the overall performance of our
organisations. The question is are we treating
people as if this is the case?

BUSINESS
OUTCOMES

Salaries and related costs comprise around 40% of the

State Budget and over 70% of budget in some agencies.
Any attempt to improve public sector performance,
therefore must centre on the way in which the public
service workforce is managed and the ways public
servants work.
To provide a general framework for managing people
the Office of the Public Service Commissioner (OPSC)
developed A Focus on People A Workforce Management
Strategy for the Queensland Public Service (QPS) [Figure
left]. The Strategy emphasis four factors: workforce
leadership; workforce performance; workforce capability;
and organisational climate which influence business
outcomes. The key to understanding the model is the fact
that it is a highly integrated system: a change in one of the
components will have an impact on each of the others.

Key indicators of how the workforce is managed and the

type of leadership and culture which exists, are clustered
around organisational climate. In 1997, Cabinet endorsed
the use of the Queensland Public Agency Staff Survey
(QPASS), or an alternative tool, to measure organisational
climate and morale in the QPS. QPASS measures ten
aspects of organisational climate:

workplace distress

This guide provides ideas for managers and work groups on

how to improve organisational climate. The guide
progresses the general framework in the Workforce
Management Strategy by focusing on behaviours which
make a difference to workforce leadership; workforce
performance; workforce capability; and organisational
climate. As noted earlier, changes in one area impact on the
other elements in the Workforce Management Strategy.

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
(supportive leadership; professional growth; professional
interaction; participative decision making; appraisal and
recognition; role clarity; goal congruence and individual
and workplace morale) in a range of work groups.

workplace morale

professional interaction
professional growth
appraisal and recognition
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.

This Guide

It is important for groups using this guide to understand

that strategies for improvement need to be developed
and contextualised by each particular work group
for them to have ownership and meaning to that
work group.
It is also critical to success that management
understands the significance of people issues in the
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.

Further information
This guide should be read in conjunction with the
Queensland Public Sector Staff Survey (QPASS) Manual,
the QPASS Help Guide. Sample workshops for use in work
groups to identify strategies are available in the Employee
Opinion Survey How to Guide. These documents are
available on www.psier.qld.gov.au under the Organisational
Climate link. Further information can be obtained from
Workforce Strategies Branch, Public Sector Industrial
and Employee Relations on (07) 3224 5490.

improving organisational climate

The critical factor for success in improving organisational

climate is to discuss with staff their particular needs
and concerns.

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.

supportive leadership
Supportive Leadership in this survey refers to
the perception that managers are approachable,
dependable, supportive, know the problems faced
by staff and communicate well with them..
Work groups that demonstrated a high rating for
supportive leadership perceived their leaders
performing a range of the following behaviours.

uses every possible opportunity to improve the

business literacy of staff by providing information on
the strategic context in which the department operates,
its key objectives and strategies and the links to work
group activity

demonstrates by their actions that they do not require

absolute control by trusting staff to get their jobs done

encourages self-reliance and self-confidence so that

staff takes responsibility upon themselves

lets self managed teams and individual staff manage

their own work within reasonable and agreed limits.
This can be demonstrated by not changing decisions,
correspondence or reports unless the reasons are
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

devolves decision making to the relevant level eg

encourages staff to address problems relating to their
own job responsibilities

is available to provide advice and support and is fair in

sharing their time according to the needs of staff eg
doesnt take calls during meetings with staff

provides opportunities to participate in work group

decisions

ensures teams have the capacity and authority to make

decisions so that they can quickly respond to problems

encourages supportive relationships through mentoring

and professional development groups ie. staff working
together to reflect on project progress and outcomes
and what could have been improved and reporting
back to the group

conducts regular meetings with both staff and the local

management team and ensures that staff consider
attendance as critical to work group success

models the departments values and behaviours

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 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

is open to discussion and negotiation

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

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

deals with personality conflicts in the work groups or

between work groups

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 dont always have the
right answer

improving organisational climate

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.
for training and development and other
support
professional development activity is demonstrated at
the senior management level through commitments in
strategic and business plans and resource allocation
and development is an element in the work
training
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
is tracked and recorded and reviewed to
training
ensure equity and efficacy in aligning with business
objectives
groups discuss the training needs of the group
work
and the individuals in that group and articulate the
links to business objective
can nominate their own training needs and
individuals
the activities they wish to undertake to meet these
needs and negotiate these with the work group
staff are provided, where possible and
replacement
appropriate, to backfill when off-work professional
development is undertaken so that this activity does
not lead to catch up work

to be undertaken is recorded on individual

training
and/or team performance or development plans and is
delivered
is made for individuals to pass the skills or
time
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
are provided for staff to train others in
opportunities
their specific skills and roles
support is offered for staff who wish to engage in
clear
additional education (eg tertiary education) and the
nature of this support is clearly articulated in policy
staff induction includes information on the
new
departments 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
information about possible career progression
clear
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
to act up or act horizontally are provided
opportunities
where available
take part in selection panels for new work group
staff
members to develop skills in interviewing and to
interact with staff at other levels. New graduates and
new staff are mentored

professional interaction

Work groups that demonstrated a high rating for

professional interaction reported a range of the
following behaviours.
for staff to demonstrate department values in
ways
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

are provided for all team members

opportunities
participating in a project to see the finished products
(eg to get out on site, attend launch, be thanked in
internal communication).

improving organisational climate

Professional Interaction refers to acceptance

and support from others, with involvement, sharing,
good communication and help when needed.

based personal development activities are included

work
as part of professional growth and development activities
( eg team roles, personality types, conflict resolution)
focus is on team performance, not on individual
the
competitiveness
work group task and relational problems are
the
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
tea or some other informal meeting
morning
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:
role of Chair and secretary minute taker at
the
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
gets a chance to participate in meetings by
everyone
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

continued
have a set regular time. An agenda to which
meetings
staff can contribute items is circulated before meetings
of all information relevant to the meeting are
copies
provided to all staff prior to the meeting (eg financial
reports). Even if staff are not responsible directly for
budget performance, they will develop their knowledge
by being informed of the budget process and resource
allocation decisions
meeting emphasises that the team is the business
the
and its everyones responsibility to manage the team
meeting process is used to articulate how the work
the
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
taken by management without consultation
decisions
with staff are explained (eg decisions to buy new IT
systems)

problems are raised and solved by the group

small number of more vocal individuals are not
apermitted
to take over meetings
are dealt with as they arise. If matters cannot be
issues
resolved at the meeting, definite actions and
timeframes are assigned
training and development needs are
emerging
discussed and group decisions made

time or a check-in/check-out process

reflection
are encouraged so that individual concerns can be
addressed
minutes are taken and circulated through e-mail
formal
or placed in an accessible place or in a common file

participative decision making

Work groups that demonstrated a high rating on

Participative Decision Making reported a range of
the following behaviours.
understand the strategic context in which their
staff
work group and department operate so that they can
make congruent decisions
to relevant information needed to make
access
decisions is readily available (eg budget, human
resources or other resource information)
have a say over who comes into the team by
staff
involving them in the selection process and allowing
them to take turns on selection panels
for staff to work in cross-functional
opportunities
teams are promoted

are involved in decisions which affect them so

staff
that they have ownership of decisions. This does not
mean endless consultation but rather working to an
agreed decision making framework

improving organisational climate

Participative Decision Making refers to the

perception that staff are asked to participate
in decisions and given opportunities to express
their views.

can make and are supported in decisions relevant

staff
to their responsibilities. They have job related
responsibilities and should be given accountability
for these
means for staff to access information or attend other
aforums
is provided (eg attend other team meetings)
are kept up to date on changes to policy
staff
and practices
are really participative and not made by only
decisions
a few of the same people in the work group
suggestions are acknowledged and they are
staff
thanked for their input
reasons for important decisions in which they have
the
not been involved are explained to them
are formal review processes for projects,
there
procedures and decisions so that the work group can
discuss what worked and what they would do
differently next time
for action is promoted and decisions relevant
atobias
getting their job done are made in a timely way
positive work environment is promoted where
apeople
are genuinely encouraged to make decisions
and ask questions to get information necessary to
making a decision

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.
assumed that putting in a formal appraisal
itandis not
recognition scheme will address low scores on this
scale. Low scores may mean more positive feedback on
a regular basis is missing
appraisal and recognition among staff is
informal
encouraged so that each individual is responsible
for showing encouragement and acknowledgment for
other staff
is a two way or three way activity (manager and
A&R
peers) with a developmental focus
based A&R systems which the team jointly signs
team
off on are used
is a section about what each individual will
there
contribute to the operation of the team in A&R forms
activities are based on what individuals are doing
A&R
at the current time and not what they were doing six
months ago

A&R is simple, concise, meaningful and informal

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

10

staff member is encouraged to develop a list of

each
their achievements since the last review and also of
things that didnt 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
programs, where they are used, are treated as
award
important and not delegated to the too hard or the
havent got the time basket
positive feedback such as letters of thanks from
any
clients are displayed and circulated
feedback is dealt with as a learning situation
negative
and staff are not immediately blamed. Explore the
feedback for its accuracy and what can be learned
from it

goal congruence

Role Clarity refers to the perception that

expectations, work objectives, responsibilities and
authority are clearly defined.

Goal Congruence refers to the perception that

personal goals are in agreement with workplace
goals that are clearly stated and understood.

Work groups that demonstrated a high rating on

Role Clarity reported a range of the following
behaviours.

Work groups that demonstrated a high rating on

Goal Congruence reported a range of the following
behaviours.

know the strategic objectives of the department

staff
and their work group objectives which contribute to

know the values of the organisation and see these

staff
modelled in the behaviours of the management team

these so that they can make appropriate decisions

processes are in place and include a means
induction
of letting new people know who does what

there is a clear structure, and guidelines for performance

of tolerance of ambiguity is promoted where
astaffculture
have a number of sources of support when faced
with role changes (eg availability of leader for
consultation and peer support)
the reporting system is discouraged
circumventing
ie. if your are a senior manager do not encourage staff
to bypass their manager and come to you. If there is a
problem with communication in a work group, deal
with it

improving organisational climate

role clarity

planning processes are transparent and

business
participative and align with departmental objectives
business planning process clearly articulates how
the
the work group will contribute to departmental goals
and values

information about key decisions is shared

based performance plans are linked to unit and
team
department plans
of information services such as the departmental
use
intranet is encouraged

managed teams are responsible for allocating tasks

self
in the team
are encouraged to learn what each team members
staff
role is
have the freedom to grow roles and the
staff
flexibility to expand their jobs.
structure of self-managed teams is respected and the
the
work group has responsibility for managing its business.

11

individual and workplace morale

Individual and Workplace Morale refers to the
perception that staff show enthusiasm, pride in
their work, team spirit and energy .
Work groups that demonstrated a high rating on
Individual and Workplace Morale reported a range
of the following behaviours.

there are activities for staff to interact and see each

other as people such as occasional social events or
afternoon teas

and temporary staff are properly inducted through

new
introductions to the unit, inclusion in meetings, and
provision of a buddy
is made for business and relationship
time
development in the work place
of all staff are treated as important and equal
views
and everyone is encouraged to do this
for staff to get to know the roles and
opportunities
contribution of others are provided
work practices are promoted where
flexible
appropriate for service delivery

focus on and reward positive behaviours

there are clearly articulated lines of authority
are adequate resources for staff to do their job
there
effectively
is paid to the physical working environment
attention
eg sufficient office space for all staff, air conditioning is
available when needed, etc
to do with IT and HR are dealt with in a
frustrations
timely manner

12

is paid to implementing some of the other

attention
strategies in this document

the work group is receptive to ideas and innovations

contributions are valued and caste systems are
staff
discouraged eg engineers are better or more important
than technical staff. It takes all staff working together
effectively to achieve great team performance

career limits and possibilities are clearly identified

is managed positively by providing accurate and
change
timely information
get regular feedback so that they can feel proud of
staff
their work
beyond its control dont diminish the ability of
factors
the work unit to fulfil its expected role with the public
or internal clients
long hours and having to travel great distances
working
is not a continual expectation of the work group

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