ADM Leadership Lecture 16 – Catalytic Leadership

The Structure of Public Problems Well-structured problems. –One or a few decision-makers. –Small set of policy alternatives. –Utilities reflect consensus on goals which are clearly ranked in order of decision makers’ preferences. –The outcomes of each alternative are either known with complete certainty (deterministically) or within acceptable margins of probable error (risk). Well-structured problems. –One or a few decision-makers. –Small set of policy alternatives. –Utilities reflect consensus on goals which are clearly ranked in order of decision makers’ preferences. –The outcomes of each alternative are either known with complete certainty (deterministically) or within acceptable margins of probable error (risk).

The Structure of Public Problems Moderately-structured problems. –One or a few decision makers. –Small set of policy alternatives. –Utilities reflect consensus on goals which are clearly ranked in order of decision makers’ preferences. –However, the outcomes are neither certain nor calculable; they are uncertain. Moderately-structured problems. –One or a few decision makers. –Small set of policy alternatives. –Utilities reflect consensus on goals which are clearly ranked in order of decision makers’ preferences. –However, the outcomes are neither certain nor calculable; they are uncertain.

The Structure of Public Problems Ill-structured problems. –Many different decision-makers. –Unlimited alternatives. –Conflict among competing goals. –Outcomes are unknown, not just uncertain. Ill-structured problems. –Many different decision-makers. –Unlimited alternatives. –Conflict among competing goals. –Outcomes are unknown, not just uncertain.

The Structure of Public Problems Structure of problem ELEMENT Well-structured Moderately- structuredIll-structured Decision makersOne or few Many AlternativesLimited Unlimited Utilities (values)Consensus Conflict OutcomesCertainty or riskUncertaintyUnknown ProbabilitiesCalculableIncalculable

The Interconnected Nature of Public Problems Characteristics of Interconnected ProblemsImpact on Public Leadership Problems cross traditional boundaries Requires cross-boundary thinking and action Problems cross organizational and jurisdictional boundaries Interorganizational arrangements required to address the problem Issues are often cross-cutting, transcending functional boundariesCross-functional teams required Problems cross temporal and generational boundaries Must consider intergenerational impacts Involved in interrelated web of other problems; “wicked” or nontame; caught in swamp Extremely difficult to untangle cause- and-effect relationships; difficult to find just one “cause”.

The Interconnected Nature of Public Problems Characteristics of Interconnected Problems Impact on Public Leadership Problems are socially constructed No natural consensus on problem definition Range of problem representations, depending on one’s cognitive and emotional biases Multiplicity of conflicting problem definitions; public leader influences decision process Strategies emerge from one’s definition of the problem and “mental model” of causes and effects Agreement on problem definition is critical for concerted action No optimal solutionsNo quick fixes or easy remedies Problems are intractable and never entirely solved Seek improvements in conditions or outcomes, rather than problem elimination Technical remedies ineffective; real progress requires deeper systemic changes Seek improvements in conditions or outcomes, rather than problem elimination

The Interconnected Nature of Public Problems Web of constraints. –Fragmented public authority. Proliferation of stakeholders and knowledge holders. Diminished influence of special interest groups. –Constraints of public distrust. –Dwindling revenue sources. What is needed is concerted action by multiple and diverse groups. Web of constraints. –Fragmented public authority. Proliferation of stakeholders and knowledge holders. Diminished influence of special interest groups. –Constraints of public distrust. –Dwindling revenue sources. What is needed is concerted action by multiple and diverse groups.

Leadership in a Interconnected World Leadership context. –Problems cross jurisdictional and functional boundaries and are interconnected with other problems. –An increasing number and diversity of impassioned activists, special-interest groups, and legitimate stakeholders demand involvement on each issue. –No one is in charge, and no single agency has sufficient power to achieve objectives unilaterally. Leadership context. –Problems cross jurisdictional and functional boundaries and are interconnected with other problems. –An increasing number and diversity of impassioned activists, special-interest groups, and legitimate stakeholders demand involvement on each issue. –No one is in charge, and no single agency has sufficient power to achieve objectives unilaterally.

Leadership in a Interconnected World Tasks of effective public leadership. –Focus attention by elevating the issue to the public and policy agendas. –Engage people in the effort by convening the diverse set of people, agencies, and interests need to address the issue. –Stimulate multiple strategies and options for action. –Sustain action and maintain momentum by managing the interconnections through appropriate institutionalization and rapid information sharing and feedback. Tasks of effective public leadership. –Focus attention by elevating the issue to the public and policy agendas. –Engage people in the effort by convening the diverse set of people, agencies, and interests need to address the issue. –Stimulate multiple strategies and options for action. –Sustain action and maintain momentum by managing the interconnections through appropriate institutionalization and rapid information sharing and feedback.

Leadership in a Interconnected World No one person or single organization can take the lead role in all four tasks; Leadership evolves and is shared.

Raising Awareness: Focusing Public Attention on the Issue Effective public leaders act as a catalyst, focusing attention toward an issue or problem area, and initially defining a situation in ways that stir others’ interests and mobilize them to search for responses. Effective public leaders do not necessarily promote solutions; they promote problems. Effective public leaders act as a catalyst, focusing attention toward an issue or problem area, and initially defining a situation in ways that stir others’ interests and mobilize them to search for responses. Effective public leaders do not necessarily promote solutions; they promote problems.

Raising Awareness: Focusing Public Attention on the Issue Issue Attention Cycles. –Public problems generally go through an issue attention cycle from a latent concern to the public agenda, to the policy agenda. –Not tidy or linear. Issue Attention Cycles. –Public problems generally go through an issue attention cycle from a latent concern to the public agenda, to the policy agenda. –Not tidy or linear.

Raising Awareness: Focusing Public Attention on the Issue A condition (an existing situation or latent problem) Not every condition will surface as a problem or be defined as a problem A problem (a problem captures the public’s attention) A societal concern becomes salient and important, and thus captures public attention through increasing awareness, visibility and emotional concern A priority issue (an issue rises to priority status of key decision makers) The issue is felt as urgent and pressing, coupled with some optimism that it can be addressed, and thus displaces other problems on the policy agenda.

Raising Awareness: Focusing Public Attention on the Issue Common features required to raise an issue to the public agenda. –One or more focusing events that forcefully dramatize the issue. –Concreteness and clarity of the issue to the general public and applicability to one’s self. –Credibility and legitimacy of the sources of information the public receives. –Sustained media presence or a dramatic spike in media attention. –Issue networks or groups that form around the issue. –Connections to possible or actual policy options. Common features required to raise an issue to the public agenda. –One or more focusing events that forcefully dramatize the issue. –Concreteness and clarity of the issue to the general public and applicability to one’s self. –Credibility and legitimacy of the sources of information the public receives. –Sustained media presence or a dramatic spike in media attention. –Issue networks or groups that form around the issue. –Connections to possible or actual policy options.

Raising Awareness: Focusing Public Attention on the Issue Increased awareness and visibility of the condition. –Show a worsening trend. –Identify troubling comparisons. Increased salience of an issue. –Salience occurs when a condition is viewed as real, personal, and tangible. –Stories and personal anecdotes. –Images. Increased awareness and visibility of the condition. –Show a worsening trend. –Identify troubling comparisons. Increased salience of an issue. –Salience occurs when a condition is viewed as real, personal, and tangible. –Stories and personal anecdotes. –Images.

Raising Awareness: Focusing Public Attention on the Issue Increased emotional concern. –Identify a conditions as threat or opportunity. Threats work better than opportunities. –Develop evidence as a moral gap. Does the condition conflict with closely held moral values? Conditions become problems when enough people believe that the situation is no longer acceptable and that something should be done to fix it. Increased emotional concern. –Identify a conditions as threat or opportunity. Threats work better than opportunities. –Develop evidence as a moral gap. Does the condition conflict with closely held moral values? Conditions become problems when enough people believe that the situation is no longer acceptable and that something should be done to fix it.

Raising Awareness: Focusing Public Attention on the Issue Moving a public problem to a priority status issue. –Creating urgency. Not the same thing as declaring a crisis. Crisis decision-making inhibits the development of more comprehensive options. –Instilling hope and optimism. Must be perceived as do-able. Moving a public problem to a priority status issue. –Creating urgency. Not the same thing as declaring a crisis. Crisis decision-making inhibits the development of more comprehensive options. –Instilling hope and optimism. Must be perceived as do-able.

Raising Awareness: Focusing Public Attention on the Issue Common catalytic strategies. –Intellectual awareness of a worsening condition or troubling comparisons. –Emotional arousal and concern regarding the condition. –Sense that the problem is urgent. –Belief that the problem can be addressed. Common catalytic strategies. –Intellectual awareness of a worsening condition or troubling comparisons. –Emotional arousal and concern regarding the condition. –Sense that the problem is urgent. –Belief that the problem can be addressed.

Raising Awareness: Focusing Public Attention on the Issue Attentional triggers. –Accidents and disasters. –Intentional focusing events. –Reports and evaluations. –Issue windows and timing. Attentional triggers. –Accidents and disasters. –Intentional focusing events. –Reports and evaluations. –Issue windows and timing.

Raising Awareness: Focusing Public Attention on the Issue Strategic use of the media. –Media highlights crises, issues, and controversies. –How an issue is reported effects how it is initially characterized. –Public leaders view the media as opportunities to focus attention on issues rather than as adversaries to be avoided. Strategic use of the media. –Media highlights crises, issues, and controversies. –How an issue is reported effects how it is initially characterized. –Public leaders view the media as opportunities to focus attention on issues rather than as adversaries to be avoided.

Raising Awareness: Focusing Public Attention on the Issue Framing and reframing the problem. –Priority issues must be defined or framed in ways that capture and hold broad interest. –Framing problems is an important catalytic task. –Public leadership requires great strategic sensitivity to how a condition, problem, or issue is initially framed, because framing directly influences whether or not individuals will feel that the condition, problem, or issue is urgent and worthy of attention or merely one of a myriad of other current problems. –Media is central to definition and framing of a problem. Framing and reframing the problem. –Priority issues must be defined or framed in ways that capture and hold broad interest. –Framing problems is an important catalytic task. –Public leadership requires great strategic sensitivity to how a condition, problem, or issue is initially framed, because framing directly influences whether or not individuals will feel that the condition, problem, or issue is urgent and worthy of attention or merely one of a myriad of other current problems. –Media is central to definition and framing of a problem.

Raising Awareness: Focusing Public Attention on the Issue Elevating a public problem to the policy agenda. –Stimulate an awareness and emotional concern that a problem or opportunity exists. –Elevate the problem to priority status by creating a sense of urgency and “do-ability”. –Use attentional triggers and other catalytic mechanisms to expand the number of people who are aware of and concerned about the issue. Elevating a public problem to the policy agenda. –Stimulate an awareness and emotional concern that a problem or opportunity exists. –Elevate the problem to priority status by creating a sense of urgency and “do-ability”. –Use attentional triggers and other catalytic mechanisms to expand the number of people who are aware of and concerned about the issue.

Raising Awareness: Focusing Public Attention on the Issue Strategic questions. –Is the issue on the public agenda already? Has it been on the agenda before? If so, why hasn’t this stimulated sufficient action before? –What are the data on the problem? Is there a worsening condition or a troubling comparison? –Does it need more visibility? How can the project become more real or salient to the public and key decision makers? Strategic questions. –Is the issue on the public agenda already? Has it been on the agenda before? If so, why hasn’t this stimulated sufficient action before? –What are the data on the problem? Is there a worsening condition or a troubling comparison? –Does it need more visibility? How can the project become more real or salient to the public and key decision makers?

Raising Awareness: Focusing Public Attention on the Issue Strategic questions. –How can the media best be engaged? –How can the issue be defined or framed to expand the number of those interested and concerned? Strategic questions. –How can the media best be engaged? –How can the issue be defined or framed to expand the number of those interested and concerned?