Leadership for the Common Good

Leadership for the Common Good Tackling Public Problems in a Shared-Power World Second Edition Barbara C. Crosby John M. Bryson

Leadership for the Common Good

Leadership for the Common Good Tackling Public Problems in a Shared-Power World Second Edition Barbara C. Crosby John M. Bryson

Copyright 2005 by John Wiley & Sons, Inc. All rights reserved. Published by Jossey-Bass A Wiley Imprint 989 Market Street, San Francisco, CA 94103-1741 www.josseybass.com No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, photocopying, recording, scanning, or otherwise, except as permitted under Section 107 or 108 of the 1976 United States Copyright Act, without either the prior written permission of the Publisher, or authorization through payment of the appropriate per-copy fee to the Copyright Clearance Center, Inc., 222 Rosewood Drive, Danvers, MA 01923, 978-750-8400, fax 978-750-4470, or on the web at www.copyright.com. Requests to the Publisher for permission should be addressed to the Permissions Department, John Wiley & Sons, Inc., 111 River Street, Hoboken, NJ 07030, 201-748-6011, fax 201-748-6008, e-mail: permcoordinator@wiley.com. Jossey-Bass books and products are available through most bookstores. To contact Jossey- Bass directly call our Customer Care Department within the U.S. at 800-956-7739, outside the U.S. at 317-572-3986 or fax 317-572-4002. Jossey-Bass also publishes its books in a variety of electronic formats. Some content that appears in print may not be available in electronic books. Library of Congress Cataloging-in-Publication Data Crosby, Barbara C., 1946 Leadership for the common good : tackling public problems in a shared-power world / Barbara C. Crosby, John M. Bryson.-- 2nd ed. p. cm. Bryson's name appears first on the earlier edition. Includes bibliographical references and index. ISBN 0-7879-6753-X (alk. paper) 1. Leadership. 2. Political leadership. 3. Common good. 4. Public administration. I. Bryson, John M. (John Moore), 1947 II. Title. JF1525.L4B79 2005 303.3'4--dc22 2004025833 Printed in the United States of America FIRST EDITION HB Printing 10 9 8 7 6 5 4 3 2 1

Contents Preface Acknowledgments The Authors xiii xxv xxix Part One: Understanding Leadership in Shared-Power Settings 1 1 When No One Is in Charge: The Meaning of Shared Power 3 2 Leadership Tasks in a Shared-Power World: Leadership in Context, and Personal Leadership 34 3 Leadership Tasks in a Shared-Power World: Team and Organizational Leadership 64 4 Leadership Tasks in a Shared-Power World: Visionary, Political, and Ethical Leadership 108 5 Policy Entrepreneurship and the Common Good 156 Part Two: The Process of Policy Entrepreneurship 195 6 Forging an Initial Agreement to Act 197 7 Developing an Effective Problem Definition to Guide Action 216 8 Searching for Solutions in Forums 242 9 Developing a Proposal That Can Win in Arenas 267 10 Adopting Policy Proposals 290 11 Implementing and Evaluating New Policies, Programs, and Plans 312 vii

viii CONTENTS 12 Reassessing Policies and Programs 340 Summary and Conclusion 359 References 365 Resource A: Conflict Management 393 Resource B: A Guide to Oval Mapping 395 Resource C: Seven Zones 399 Resource D: Forums, Arenas, and Courts 401 Resource E: Future Search 427 Resource F: Initial Policy Retreats 433 Name Index 437 Subject Index 445

List of Exhibits Exhibit 1.1. Exhibit 5.1. Exhibit 6.1. Tackling Public Problems in a Shared-Power World: Some Definitions 22 Policy Entrepreneurship and the Common Good: Some Definitions 158 Characteristics of Effective Coordinating Committees and Other Policy-Making Bodies 209 Exhibit 7.1. Generic Problem Statement Format 238 Exhibit 11.1. Guidance for Pilot Projects, Demonstration Projects, and Transfer to Entire Implementation System 337 Exhibit D.1. The Three Dimensions of Power 402 Exhibit D.2. Designing and Using Forums 410 Exhibit D.3. Designing and Using Arenas 416 Exhibit D.4. Designing and Using Courts 421 ix

List of Exercises Exercise 1.1. Understanding Public Problems in a Shared-Power World 21 Exercise 2.1. Discovering Cares and Concerns 38 Exercise 2.2. Assessing the Context for Leadership 43 Exercise 2.3. Assessing Global Trends 45 Exercise 2.4. Assessing Cultural Differences 48 Exercise 2.5. Exploring Personal Highs and Lows 50 Exercise 2.6. Assessing Additional Strengths and Weaknesses 60 Exercise 2.7. Analyzing Social Group Membership and Means of Bridging Differences 62 Exercise 3.1. Using Snowcards to Identify and Agree on Norms 72 Exercise 3.2. Assessing Your Team 78 Exercise 3.3. Stakeholder Identification and Analysis 83 Exercise 3.4. Mission Development 85 Exercise 3.5. Constructing an Organizational Vision of Success 88 Exercise 3.6. Assessing Your Organization 103 Exercise 4.1. Outlining and Constructing Personal Visions 116 Exercise 4.2. Using a Power-Versus-Interest Grid 121 Exercise 4.3. Analyzing Interpretive Schemes, or Problem Frames 124 Exercise 4.4. Assessing Visionary Leadership Capacity 130 Exercise 4.5. Laying the Groundwork for a Winning Coalition 137 Exercise 4.6 Assessing Political Leadership Capacity 144 xi

xii LIST OF EXERCISES Exercise 4.7. Exercise 4.8. Identifying Ethical Role Models, and Overcoming Barriers to Ethical Leadership 147 Analyzing Ethical Principles, Laws, and Norms 152 Exercise 4.9. Assessing Ethical Leadership Capacity 153 Exercise 5.1. Thinking About a Public Problem 166 Exercise 5.2. Thinking About the Public Interest and the Common Good 191 Exercise 6.1. The Basic Stakeholder Analysis Technique for a Policy Change Effort 203 Exercise 6.2. Constructing a Stakeholder Influence Diagram 204 Exercise 6.3. Participation Planning Matrix 204 Exercise 6.4. Assessing Stakeholder Attitudes Toward the Status Quo 211 Exercise 7.1. Developing Objectives from Preferred Solutions for a Problem 233 Exercise 7.2. Constructing a Diagram of Bases of Power and Directions of Interest (Goals) 234 Exercise 7.3. Constructing a Map of the Common Good and Structure of a Winning Argument 235 Exercise 8.1. Undertaking a Solution Search Within Specified Areas 254 Exercise 8.2. Constructing a Stakeholder-Issue Interrelationship Diagram 257 Exercise 8.3. Using a Multicriteria Assessment Grid 259 Exercise 9.1. Pursuing a Big-Win or a Small-Win Strategy 276 Exercise 9.2. Constructing a Stakeholder-Support-Versus- Opposition Grid 283 Exercise 9.3. Conducting a Stakeholder Role Play 284 Exercise 9.4. Constructing a Grid of Policy Attractiveness Versus Stakeholder Capability 285 Exercise 11.1. Tapping Stakeholder Interests and Resources for Policy Implementation 327

Preface Our world is so complex, interdependent, and interrelated that the old paradigms of singular leadership will not work and cannot work. SUZANNE W. MORSE Remember that leaders come in both genders, all sizes, [all] ages, [and] from all geographic areas and neighborhoods. MARIAN WRIGHT EDELMAN Several times over the last few years, we ve asked ourselves about our own call to leadership in a world beset by unprecedented challenges and crises, from the AIDS pandemic to global warming to the destruction and fear wrought by terrorism and state responses to it. We have joined particular initiatives to respond to these challenges, but we always return to the conviction that our best contribution is teaching and writing about how the world s citizens can work together for the common good in their organizations and communities. In particular, we realized it was high time to respond to the many users of the original Leadership for the Common Good who asked for more practical guidance in how to lead in a shared-power environment, and for more recent and varied examples of how others are striving to achieve the common good. The new Leadership for the Common Good is our effort to update and make our leadership framework more accessible to a variety of audiences, to connect it with the challenges of the twenty-first century, and to draw on the best of recent research on leadership and public problems. We take heart (and guidance) from the many other leadership scholars and practitioners who also have turned their attention to the importance of shared leadership and the need for collaboration xiii