how to improveorganisationalclimate

April 2000

improving climate

impr

ovin

g or

gani

satio

nal c

limat

e

“We often talk about the promotion of aperformance culture, improved service deliveryand client service. We agree that people are ourkey resource for the overall performance of ourorganisations. The question is are we treatingpeople as if this is the case?”

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

Introduction

Today’s 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.

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.

1

WORKFORCE PERFORMANCE

Creating a performance culture

centred on continuous improvement and

best practice

ORGANISATIONALCLIMATE

Creating a postive work environmentwhere people feel

valued and respected

WORKFORCE CAPABILITY

Having the right people in the

right place at the right time

WORKFORCE LEADERSHIP

Mobilising people to deal effectively with current and future challenges

BUSINESSOUTCOMES

A Strategic Framework for Workforce Management

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 morale

• workplace distress

• supportive leadership

• participative decision making

• 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

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.

Keys to success

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.

2

impr

ovin

g or

gani

satio

nal c

limat

e

The critical factor for success in improving organisational

climate is to discuss with staff their particular needs

and concerns.

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.

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.

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 OrganisationalClimate link. Further information can be obtained from Workforce Strategies Branch, Public Sector Industrialand Employee Relations on (07) 3224 5490.

3

supportive leadershipSupportive Leadership in this survey refers to the perception that managers are approachable,dependable, supportive, know the problems facedby 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

doesn’t 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 department’s values and behaviours

4

• 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

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

impr

ovin

g or

gani

satio

nal c

limat

e

professional growth

6

Professional Growth in this survey refers to theperception that there is interest, encouragement,and opportunities for training and careerdevelopment.

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

• 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

7

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

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

impr

ovin

g or

gani

satio

nal c

limat

e

continued…

8

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

staff can contribute items is circulated before meetings

• 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

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

• a small number of more vocal individuals are not

permitted 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

• “reflection time” or a “check-in/check-out” process

are encouraged so that individual concerns can be

addressed

• formal minutes are taken and circulated through e-mail

or placed in an accessible place or in a common file

participative decision making

9

impr

ovin

g or

gani

satio

nal c

limat

e

Participative Decision Making refers to theperception that staff are asked to participate in decisions and given opportunities to expresstheir 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

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

• a means for staff to access information or attend other

forums 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

• a bias for action is promoted and decisions relevant

to getting their job done are made in a timely way

• a positive work environment is promoted where

people are genuinely encouraged to make decisions

and ask questions to get information necessary to

making a decision

appraisal and recognition

10

Appraisal and Recognition refers to the perceptionthat there is quality and regular recognition andfeedback on work performance.

Work groups that demonstrated a high rating for

Appraisal and Recognition (A&R) reported a range of

the following behaviours.

• it is not assumed that putting in a formal appraisal

and recognition scheme will address low scores on this

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

• 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

• 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

• 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

role clarity goal congruence

11

impr

ovin

g or

gani

satio

nal c

limat

e

Role Clarity refers to the perception thatexpectations, work objectives, responsibilities andauthority are clearly defined.

Work groups that demonstrated a high rating on

Role Clarity reported a range of the following

behaviours.

• staff know the strategic objectives of the department

and their work group objectives which contribute to

these so that they can make appropriate decisions

• induction processes are in place and include a means

of letting new people know who does what

• there is a clear structure, and guidelines for performance

• a culture of tolerance of ambiguity is promoted where

staff have a number of sources of support when faced

with role changes (eg availability of leader for

consultation and peer support)

• circumventing the reporting system is discouraged

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

• 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.

Goal Congruence refers to the perception thatpersonal goals are in agreement with workplacegoals that are clearly stated and understood.

Work groups that demonstrated a high rating on

Goal Congruence reported a range of the following

behaviours.

• staff know the values of the organisation and see these

modelled in the behaviours of the management team

• business planning processes are transparent and

participative and align with departmental objectives

• the business planning process clearly articulates how

the work group will contribute to departmental goals

and values

• information about key decisions is shared

• team based performance plans are linked to unit and

department plans

• use of information services such as the departmental

intranet is encouraged

individual and workplace morale

12

Individual and Workplace Morale refers to theperception that staff show enthusiasm, pride intheir 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

• 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

• opportunities for staff to get to know the roles and

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 to do with IT and HR are dealt with in a

timely manner

• attention is paid to implementing some of the other

strategies in this document

• the work group is receptive to ideas and innovations

• staff contributions are valued and caste systems are

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

• 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

• working long hours and having to travel great distances

is not a continual expectation of the work group

www.detir.qld.gov.auFurther information can be obtained from

Workforce Strategies Branch, Public Sector Industrial

and Employee Relations on (07) 322 46576